Chapter 2 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-1 

2. Refuge Management Direction and Alternatives 

2.1 Introduction 

This chapter presents the management direction for the Alaska 

Peninsula and Becharof Refuges (Refuges) and the alternatives, 

including the preferred alternative. We first describe the goals 

and objectives that focus the management direction of the 

Refuges. In section 2.3, we provide a written description of the 

general management direction that is integral to achieving the 

management objectives. The management directions in section 

2.3, section 2.4, and section 2.24 do not vary by alternative 

unless specifically identified in the discussion of that alternative. 

Because the alternatives vary based on possible combinations of 

different responses to the significant planning issues described 

in Chapter 1, section 1.9, there are only a few objectives that 

vary by alternative. These new objectives are shown within each 

alternative where they would be applied. Most of the 

management direction provided in section 2.3 and section 2.4 

also represents regional (Alaska) management direction as it 

applies to the Alaska Peninsula and Becharof Refuges. The 

primary sources of this management direction are the various 

laws governing the National Wildlife Refuge System (System) 

and the regulations, policies, and other guidance—both national 

and regional—developed to implement these laws. Information 

on the standard management direction for refuges in Alaska can 

be found at http://alaska.fws.gov/nwr/planning/policy.htm. 

Section 2.24 shows the management direction as it applies to 

these refuges. 

The final management Plan will consist of this management 

direction, modified by the Record of Decision and language in 

the alternative selected for implementation, as befits the goals 

and objectives. 

The process used to develop alternatives is described in section 

2.25. Section 2.26 describes those elements that are common to 

all alternatives. Alternatives that were considered but 

eliminated from study are described in section 2.27. Discussion 

of the three alternatives considered for this plan begins in 

section 0. 

2.2 Refuge Goals and Objectives 

The refuge vision statement and the refuge purposes (see 

section 1.4 in Chapter 1) provide the framework for developing 

goals and objectives for managing the Refuges. 
Chapter 2: Refuge Management Direction and Alternatives 

2-2 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

The objectives listed beneath each goal are often applicable to 

more than one goal. In order to avoid unnecessary duplication, 

we have listed each objective only once, under the goal that 

represents the clearest connection. The ordering of the 

objectives is not intended to imply prioritization; in fact, the 

many objectives listed beneath Goal 2 have been clustered into 

rough categories of wildlife, habitat, and fish. Following each 

objective, we list those other goals the objectives are also 

designed to address. 

Many of the objectives that are important for managing 

subsistence activities and public use of the Refuges require 

monitoring or improving our knowledge of the natural resources 

linked to the subsistence or public-use activities. For this 

reason, most of the objectives for subsistence or public use are 

listed beneath Goal 1 or Goal 2, the two of which are focused on 

improving our knowledge of the Refuges’ biological resources 

and on conserving habitat for those resources. 

Goal 1: Ensure quantity and optimal quality of naturally 

functioning habitats available on the Refuges for fish 

and wildlife populations in perpetuity, especially for 

salmonids, migratory birds, the Northern Alaska 

Peninsula caribou herd, moose, and brown bear

The vision statement for the Refuges and the refuge purposes 

emphasize conserving populations and habitats in their natural 

diversity. Although fish and wildlife populations may fluctuate 

for a variety of reasons, if the habitats on which they depend are 

functioning naturally and available in their natural abundance 

and diversity, the opportunity exists for populations to thrive. 

As with many of the other refuges in Alaska, the size, 

remoteness, weather, and complexity of the Alaska Peninsula 

and Becharof Refuges make it challenging to collect data on 

species and habitats. Fulfilling this goal requires information 

about fish, wildlife, and plant populations and their relationship 

to the habitat. Almost all of the objectives stated under Goal 2 

and Goal 4 are objectives that would also provide necessary 

information for achieving Goal 1. 

1. Delineate marbled godwit nesting habitat and range 

in the Ugashik and Cinder drainages and vicinity by 

2008 (also Goal 2). 

2. Cooperate with the State of Alaska in developing an 

interagency study of traditional subsistence access 

prior to the Alaska National Interest Lands 

Conservation Act (ANILCA) and develop and 

implement methodology to formally monitor existing 

off-road vehicle impacts on refuge lands by 2010. 

Monitoring off-road impacts would be conducted to 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-3 

document damage to vegetative cover and soils in 

areas of significant use, including Big Creek, King 

Salmon River (near Egegik), Becharof Lake outlet, 

Yantarni Bay airstrip, and Port Heiden (also Goals 2, 

3, and 7). 

3. Monitor development of inholdings and uses of 

adjacent parcels to identify activities that could 

adversely affect refuge users and resources. Work 

with Service’s Regional Office realty specialists to 

identify opportunities to acquire lands or interests in 

lands from willing sellers to further the goals of the 

refuge and the mission of the National Wildlife 

Refuge System. Additional assistance may be 

provided by working with other federal agencies, the 

state, Native corporations, and nongovernmental 

organizations. 

Goal 2: Improve knowledge of fish and wildlife populations 

and their habitats in order to conserve species in 

their natural diversity, especially those that are 

identified in the refuge purposes, that have restricted 

populations, or that have been identified as species or 

populations of ecological interest 

The Refuges’ objectives for wildlife under Goal 2 are directed 

toward monitoring a diverse group of species, including moose, 

caribou, wolves, bears, waterfowl, bald eagles, seabirds, 

shorebirds, and songbirds. This monitoring will provide valuable 

information for the ongoing management of wildlife populations 

on the Refuges as well as for responding to catastrophic events. 

These inventory and monitoring objectives will be incorporated 

in the wildlife inventory plan and may be revised when the 

Refuges staff completes a formal review of the biological 

program. Successful completion of many objectives will require 

close cooperation or consultation with the Alaska Department of 

Fish & Game (ADF&G), other agencies, the academic 

community, residents with local knowledge, and/or others. 

4. Complete the Refuges’ wildlife inventory plan—which 

includes goals and objectives, priorities, and methods 

for wildlife monitoring and inventory—by October 

2007 (also Goal 1). 

5. Estimate moose density in the Refuges and vicinity, 

using professionally accepted methods, by 2008 (also 

Goals 1 and 3). 

6. Contribute to international efforts to establish trends 

in migratory bird populations by inventorying and 

monitoring landbird populations (as scheduled in the 
Chapter 2: Refuge Management Direction and Alternatives 

2-4 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

wildlife inventory plan) for measures of abundance, 

reproduction, and habitat using methods such as 

Monitoring Avian Productivity and Survivorship 

(MAPS) program, point counts, Christmas bird 

counts, and fall migration monitoring (also Goal 1). 

7. Evaluate the Mother Goose Lake MAPS sites, in 

coordination with Boreal Partners in Flight and the 

Institute for Bird Populations, to determine if MAPS 

monitoring should be continued periodically, 

reinitiated in the future, or initiated at a new location. 

Implement schedule as recommended (also Goal 1). 

8. Cooperate with other land managers to inventory and 

monitor shorebirds in the Bristol Bay lowlands. 

9. Cooperate with other land managers to monitor 

population trends of productivity of swans in the 

Bristol Bay lowlands. 

10. Continue monitoring (as scheduled in the wildlife 

inventory plan) waterfowl staging in upper Bristol 

Bay drainages during spring to document the range 

and annual variation of species composition, 

abundance, and phenology (timing) for use as a 

baseline for long-term impacts from local 

development and for the transition into spring 

waterfowl hunting (also Goal 3). 

11. Conduct year-round monitoring of waterfowl 

harvested by local villagers (also Goal 3). 

12. Continue cooperation with ADF&G on inventory, 

monitoring, and research studies to maximize 

information available for the management of species 

such as moose, caribou, brown bear, and others (also 

Goals 1 and 3). 

13. In cooperation with ADF&G, by 2010, develop 

methodology and begin gathering information on 

trapping effort, harvest, and areas within the Refuges 

(also Goals 3 and 6). 

14. Survey caribou (as scheduled in the wildlife inventory 

plan) in Pacific drainages of the Chignik Unit to 

determine post-calving count and calf composition 

(also Goal 3). 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-5 

15. Monitor Pacific coast murre colonies of Becharof 

Refuge for peak colony count and productivity in 

three of every 10 years in order to document recovery 

from the Exxon Valdez oil spill (also Goal 1). 

16. Monitor bald eagle populations and productivity along 

the Pacific coast of the Refuges every five years and 

initiate inventory of eagles in Bristol Bay drainages 

and of other raptors throughout the Refuges by 2008. 

17. Develop methodology and monitor wolf numbers and 

predation on caribou and moose in the Refuges and 

vicinity by 2008 (also Goal 3). 

18. Monitor seabird colony numbers along the Pacific 

coast of the Refuges, in cooperation with the Alaska 

Maritime Refuge, every 10 years (also Goal 1). 

19. Continue inventory and monitoring of rodent and 

insectivore distributions and trends on the Refuges. 

Knowledge of wildlife habitat characteristics such as 

distribution, quality, function, and availability is an important 

first step in understanding changes in wildlife populations. The 

following objectives are established to develop the necessary 

information and tools for a basic understanding of wildlife 

habitat on the Refuges. 

20. Complete development, by 2008, of a refuge-based 

geographic information system (GIS); hardware, 

software, and data layers) that provides managers 

and biologists with a basic capability for mapping 

available data (also Goal 1). 

21. Assist the Service’s Alaska regional botanist in 

completing the vegetation community classification 

for the Refuges (also Goal 1). 

22. Determine range condition for the Northern Alaska 

Peninsula caribou herd by 2010 (also Goal 1). 

23. Complete a habitat inventory plan that includes goals, 

objectives, priorities, and methods for habitat 

inventory and monitoring by December 2007 (also 

Goal 1). 

24. Develop a map of major vegetation types and 

mosaics—incorporating soils, surficial geology, and 

water—for the Refuges and vicinity by 2010 (also 

Goal 1) 
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2-6 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

25. Develop habitat models and maps for caribou and 

moose on the Refuges and vicinity by 2012 (also 

Goal 1). 

26. Develop habitat models and maps for additional 

species (following the completion of habitat maps for 

caribou and moose) using priorities established in the 

wildlife and habitat inventory plans at a rate of one 

habitat map per year (also Goals 1 and 3). 

27. Complete reconnaissance of invasive plant and animal 

species near communities, ports, and other access 

points by 2010 (also Goal 1). 

28. Determine, by 2006, whether caribou summering in 

Pacific drainages of the Ugashik Unit constitute a 

distinct subpopulation of the Northern Alaska 

Peninsula caribou herd (also Goals 1 and 3). 

29. In cooperation with ADF&G and the National Park 

Service, conduct wildlife inventories, monitoring, and 

research on species—including caribou, moose, and 

brown bear—to increase information available for 

management (also Goal 3). 

30. Continue working cooperatively with partners to 

complete ongoing studies and projects and initiate 

other high-priority projects identified during the 

Becharof Ecosystem Partnership Workshop (March 

1997). Some of the highest-priority projects concern 

learning more about the population dynamics of the 

Northern Alaska Peninsula caribou herd; expanding 

resident and anadromous fisheries baseline data; 

completing vegetative cover and habitat mapping; 

monitoring water quality; and quantifying public uses 

(also Goals 1, 3, 6, and 7). 

31. Work with partners to contribute to understanding of 

climatic changes and their effects on refuge 

resources. 

32. Continue to operate Remote Area Weather Stations 

(RAWS) at Mother Goose Lake and Yantarni for 

collection of weather information. 

The following objectives are designed to increase understanding 

of, and the ability to manage, important fish populations on the 

Refuges. The objectives address species and drainages that are 

important not only for subsistence, commercial, and recreation 

uses, but also for their contribution to the ecological integrity of 

the Refuges. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-7 

33. Evaluate Arctic grayling, lake trout, and Dolly 

Varden population structure and abundance in the 

Ugashik and Egegik drainages by 2006. 

34. Evaluate coho salmon population structure and 

abundance in the Pacific coast and Bering Sea 

drainages by 2010 (also Goal 3). 

35. Evaluate Chinook salmon population structure and 

abundance in the Bering Sea drainages by 2010 (also 

Goal 3). 

36. Reevaluate rainbow trout population structure and 

abundance in the King Salmon River by 2008 (also 

Goal 3). 

37. Conduct creel surveys of the winter fishery in the 

lower King Salmon River, Egegik drainage, by 2015 

(also Goal 3). 

38. Conduct creel surveys of the summer open-water 

fishery at the Ugashik Lakes by 2006 (also Goals 6 

and 7). 

39. Continue implementation of the Fisheries 

Management Plan of 1994 and update the plan by 

2008 (also Goals 1 and 3). 

Goal 3: Provide opportunities for local residents to continue 

their subsistence use of the Refuges, consistent with 

the subsistence priority and other refuge purposes 

The opportunity for continued subsistence use by local residents 

is one of the purposes for which the Refuges were established 

by ANILCA. Objectives for this goal are directed at working 

with local residents and others to understand subsistence uses 

and potential conflicts and to monitor subsistence resources for 

better management. Most of the objectives related to 

subsistence resources are listed under Goal 2. 

40. Continue the Refuge Information Technician program 

to enhance information exchange with local 

communities on subsistence issues (also Goal 8). 

41. Continue monitoring hunter activity in areas of 

potential conflict between local and outside hunters 

and investigate allegations of interference (also 

Goal 7). 

42. Continue to participate in the fish and game 

regulation process through local fish and game 

advisory committees, the Alaska Boards of Fisheries 
Chapter 2: Refuge Management Direction and Alternatives 

2-8 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

and Game, the Subsistence Regional Advisory 

Council, the Alaska Migratory Bird Co-management 

Council, and the Federal Subsistence Board to 

facilitate information exchange and rule-making (also 

Goal 6). 

43. Cooperate with the Federal Subsistence Board in 

making customary and traditional use determinations 

for refuge-area communities, including for finfish and 

beaver. 

44. Expand law-enforcement activities to increase 

education and outreach, field patrols, and 

investigation of cases associated with the 

implementation of spring waterfowl hunting 

regulations (also Goal 8). 

Goal 4: Improve baseline understanding of water resources 

on the Refuges to acquire and maintain the water 

quality and quantity necessary to conserve fish and 

wildlife populations and habitats in their natural 

diversity. 

Objectives for water quality and quantity are directed at 

supporting Goals 1 and 4 and completing baseline studies and 

acquiring the necessary rights to protect water quality and 

quantity, as directed by the purposes of the Refuges, as 

established in ANILCA. 

45. Complete or update an inventory and assessment of 

refuge water resources—including quantity, quality, 

use, and protection status—by 2008. (also Goal 1). 

46. Based on the inventory and assessment (objective 45), 

complete, by 2010, a study plan to investigate the 

water resources of the Refuges to maintain the 

quality and quantity to protect the fish, wildlife, and 

habitats of the refuges in their natural diversity. 

47. Analyze and determine water-rights needs on the 

Egegik drainage by 2005 and formally apply for them 

by 2007 (also Goal 1). 

48. Complete water resource investigations and acquire 

water rights for waters identified in the water 

resource investigation plan (also Goal 1). 

49. Continue limnological studies of Becharof and 

Ugashik lakes in cooperation with King Salmon 

Fisheries Research Office (also Goal 1). 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-9 

50. Complete baseline water-quality studies of Refuges 

lakes and streams following the schedule identified in 

the water resources investigation plan (also Goal 1). 

Goal 5: Preserve and enhance, in perpetuity, wilderness 

values of designated Wilderness, consistent with the 

establishing purposes 

Objectives directed at the Becharof Wilderness Area are 

designed to manage and understand the wilderness values. 

51. Distribute information about Leave-No-Trace 

principles whenever information is requested about 

the Becharof Wilderness Area, and work with 

commercial guides to apply these principles when 

operating within designated Wilderness. 

52. By applying the Leave-No-Trace principles, manage 

recreation settings within designated Wilderness to 

provide opportunities for solitude, self-reliance, and 

other characteristics that depend on a wilderness 

environment while not impairing other uses and 

values associated with wilderness. 

53. Promote consistency, through interagency 

coordination, in wilderness management of the 

Becharof Wilderness and the adjacent designated 

Wilderness of Katmai National Park and Preserve. 

54. Ensure appropriate uses (including administrative 

uses) of the Becharof Wilderness on an ongoing basis 

by expanding law enforcement within designated 

Wilderness and conducting the minimum-requirement 

analysis to all management activities. 

55. Prepare a wilderness stewardship step-down plan 

within one year of release of national wilderness 

guidelines. 

Goal 6: Provide opportunities for quality1

 wildlife-dependent 

recreation, emphasizing short-term, low-density uses 

that require minimal facility development or habitat 

alteration 

 

1

 Quality is defined as the degree to which recreation opportunities and related experiences meet the 

objectives for which they are planned and managed. For further definition of “quality” in relation to 

recreation, see the glossary on page xix. 
Chapter 2: Refuge Management Direction and Alternatives 

2-10 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

The National Wildlife Refuge System Administration Act of 

1966, as amended by the National Wildlife Refuge System 

Improvement Act, states that compatible wildlife-dependent 

recreation is a legitimate and appropriate general public use of 

the System and directs the Service to facilitate hunting, fishing, 

wildlife viewing and photography, and environmental education 

and interpretation on refuges, subject to restrictions or 

regulations as needed. Objectives that are designed to address 

the resources necessary to support wildlife-dependent 

recreation are listed under Goal 2. Other objectives that help to 

provide high-quality experiences are described along with Goals 

7 and 8. General management direction of public use on the 

Refuges, including commercial uses, is described in sections 2.3 

and 2.24. 

56. By continuing to implement and strengthen the 

Refuges special-use permit program—including 

improvement of permittee recording requirements—

and increasing enforcement of and compliance with 

permit stipulations through increased field 

inspections, provide commercial visitor service 

opportunities for the public who would not or could 

not experience a safe, quality visit to the Refuges on 

their own (also Goal 8). 

Goal 7: Provide opportunities for subsistence, recreational, 

and commercial users to enjoy and benefit from 

compatible activities on the Refuges in ways that 

minimize conflicts among user groups 

Section 804 of ANILCA states that subsistence will be the 

priority consumptive use of public lands in Alaska, consistent 

with the purposes for each unit. Fish and Wildlife Service policy 

describes quality recreation opportunities, in part, as creating 

minimal conflict with other wildlife-dependent recreation uses 

or refuge operations. The Refuges need to be aware of and 

address conflicts among refuge users. Many of the objectives in 

Goal 2 that consider harvest levels or monitor populations of fish 

and wildlife also provide important information for 

accomplishing this goal. 

57. Expand the public-use monitoring program for all 

users of the Refuges. A special emphasis will be 

placed on annually monitoring all commercial-use 

activities and on establishing and/or expanding publicuse monitoring camps on a scheduled basis at 

locations where potential exists for user conflicts, 

impacts, or declines in quality. A full-time, permanent 

pilot–resource manager position with collateral law 

enforcement duties, along with one or more seasonal 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-11 

positions, would be required to implement this 

objective (also Goals 6 and 8). 

58. Field-check and update database of Alaska Native 

Claims Settlement Act (ANCSA) 17(b) easements, 

develop GIS maps of easements, establish signs 

onsite, and publish easement information as 

appropriate in coordination with realty specialists and 

local Native corporations (also Goal 6). 

59. Expand profile of refuge law-enforcement activities. 

Law enforcement activities concerning protection of 

fish and wildlife resources will shift from patrols 

being conducted seasonally by collateral-duty refuge 

officers (typically incidental to other missions) to 

dedicated law-enforcement patrols being conducted 

year-round by a full-time refuge law-enforcement 

officer (also Goals 3 and 6). 

Goal 8: Conduct interpretive and environmental education 

programs that increase understanding and support 

for the System; development of a sense of stewardship 

for wildlife, cultural resources, and the environment; 

and enhanced visitor experiences 

60. Use the Refuge Information Technician program to 

conduct educational programs for local rural residents 

on resource conservation and protection, subsistence 

harvest developments, and recreational harvest 

management. Conduct at least one program per year 

in each of the 13 communities associated with the 

Refuges (also Goal 3). 

61. Interpret Refuges resources and programs, provide 

educational material, and increase the quality of 

recreation experiences by fully implementing the 

interagency cooperative agreement to operate the 

King Salmon Visitor Center (KSVC), including 

maintaining responsibility for personnel and 

developing, upgrading, and maintaining permanent 

exhibits annually (also Goal 6). 

62. Increase local children’s awareness of the Refuges, 

wildlife, and conservation by utilizing the Refuge 

Information Technician program to visit, at least once 

a semester during the school year, the 10 village 

schools in the Bristol Bay and Lake and the Peninsula 

boroughs that are within or near the Refuges’ 

boundaries; provide the other seven schools in the 

Lake and Peninsula Borough with educational 
Chapter 2: Refuge Management Direction and Alternatives 

2-12 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

materials and programs at least three times a year 

(during National Wildlife Refuge Week and for the 

Goose Calendar contest). Continue to develop 

programs for National Fishing Week celebration, 

International Migratory Bird Day, and other special 

events. 

63. Conduct the cooperatively sponsored Spirit of 

Becharof Lake Ecosystem Science Camp for 10–15 

refuge-area high school students annually, with 

assistance from Refuge Information Technician 

program personnel. 

64. Inform people about natural, cultural, and 

recreational resources and opportunities on the 

Refuges and their responsible use by developing and 

publishing at least one new or revised refuge-specific 

brochure annually and by maintaining a refuge Web 

site within one year of Plan approval (also Goals 6 

and 7). 

Goal 9: Conserve the special geological and cultural values of 

the Refuges 

65. Conduct a paleontological inventory with emphasis on 

Jurassic sediments within Becharof Lake drainage, 

Ugashik Lakes drainage, and Black Lake drainage by 

2010. 

66. Continue cultural resources management in 

partnership with Native corporations, universities, 

museums, and others in accordance with the Cultural 

Resource Guide. 

67. Continue to work with the Alaska Volcano 

Observatory to further our knowledge of the volcanic 

resources of the Refuges. 

68. Administer and protect cultural resources so that the 

sites, buildings, structures, and objects of aesthetic 

and cultural value are preserved and maintained for 

scientific study and/or public appreciation (also Goal 

8). 

Goal 10: Provide and maintain the facilities and equipment 

necessary to ensure a safe and secure environment 

for the visiting public and Service personnel 

Objectives for facilities management are directed at providing 

necessary buildings and other structures for administration of 

the Refuges in a safe manner. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-13 

69. Continue implementation of the administrative facility 

plan. 

70. Continue an aggressive safety program. 

71. Meet legal requirements for the administrative 

facilities of the Refuges (e.g., hazardous materials 

handling). 

72. Establish a subheadquarters for the Chignik Unit by 

2020. 

73. Construct an administrative facility at the Yantarni 

Bay airstrip. 

2.3 Management Direction 

The management direction provided here explains how Alaska 

refuges would be managed. Some activities discussed here are 

not currently being conducted on the Refuges. For example, the 

discussion on threatened and endangered species would apply 

only if and when a listed species is known or thought to occur in 

the Refuges. 

Although other management categories are used on other 

refuges, only the Moderate, Minimal, and Wilderness 

management categories are currently applicable to the Alaska 

Peninsula and Becharof Refuges. These categories are 

described in detail in section 2.24. 

Not all of the practices described in the following sections will 

apply to these refuges. See Table 2-1 for clarification; those 

activities that have gray backgrounds are not anticipated to 

apply to these refuges during the life of this Plan. Text 

pertaining to those activities is included for reference. 

2.4 Management Policies and 

Guidelines 

Management of the Refuges is governed by federal laws such as 

the National Wildlife Refuge System Administration Act of 1966 

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

the National Wildlife Refuge System Improvement Act of 1997 

(Refuge Improvement Act; P.L. 105-57), and ANILCA; by 

regulations implementing these laws; by treaties; by Service 

policy; and by principles of sound resource management—which 

establish standards for resource management or limit the range 

of potential activities that may be allowed on the Refuges. 

ANILCA authorizes traditional activities such as subsistence, 

the exercise of valid commercial fishing rights, hunting, fishing, 
Chapter 2: Refuge Management Direction and Alternatives 

2-14 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

and trapping in accordance with state and federal laws. Under 

Service regulations implementing this direction, all refuge lands 

in Alaska are open to public recreation activities “as long as 

such activities are conducted in a manner compatible with the 

purposes for which the refuge was established. Such recreation 

activities include sightseeing, nature observations and 

photography, sport hunting, sport fishing, boating, camping, 

hiking, picnicking and other related activities” (50 CFR 

36.31[a]). The Refuge Administration Act, as amended by the 

National Wildlife Refuge System Improvement Act of 1997, 

defines “wildlife-dependent recreation” and “wildlife-dependent 

recreational use” as “hunting, fishing, wildlife observation and 

photography, or environmental education and interpretation” 

(16 U.S.C. § 668ee[2]). These uses are encouraged and will 

receive emphasis in management of the public’s use of the 

Refuges. 

Under all the action alternatives being considered (Alternatives 

2, 3, and 3a), management of the Refuges will comply with the 

factors described previously. As a result, the alternatives share 

a set of common management policies and guidelines. These 

directions provide a common management base on which each 

of the alternatives is built and represent the typical level of 

management necessary to comply with existing law, regulation, 

and policy. 

2.5 Management Emergencies 

It may be necessary, when emergencies occur on the refuge, to 

deviate from policies and guidelines discussed in the 

Conservation Plan. Activities not allowed on the Refuges or 

under a specific management category, as shown in the 

Management Activities table (Table 2-1), may occur during or as 

a result of emergencies. For example, if naturally occurring or 

human-caused actions (e.g., landslides, floods, fires, droughts) 

adversely affect refuge resources, it may be necessary to 

undertake rehabilitation, restoration, habitat improvement, 

water management, fisheries enhancement, or other actions 

that would not otherwise be allowed to the same extent on the 

refuge. Threats to human health and safety may also result 

during emergencies. In emergencies, the refuge manager is 

authorized to take prudent and reasonable actions to protect 

human life and to address immediate health, safety, or critical 

resource-protection needs. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-15 

2.6 Land Exchanges and 

Acquisitions 

Under Section 1302 of ANILCA, and subject to certain 

restrictions, the Service may acquire by purchase, donation, or 

exchange any lands within the boundaries of Alaska refuges. 

Proposed land exchanges or acquisitions must benefit fish and 

wildlife resources, satisfy other purposes for which the refuge 

was established, or be necessary to satisfy other national 

interests. The Service can also purchase conservation 

easements or enter into cooperative management agreements to 

meet these objectives. 

2.7 Land Protection Planning 

Department of the Interior and Service policies require 

development of a step-down plan, called a land protection plan, 

addressing priorities for habitat conservation within refuge 

boundaries. Land protection plans inform private landowners 

what land within refuge boundaries the Service would like to see 

conserved for fish and wildlife habitat. The plans do the 

following: 

 Identify the private lands within the refuge boundary that 

the Service believes should be conserved 

 Display the relative protection priority for each parcel 

 Discuss alternative means of land and resource conservation 

 Analyze the impacts, on local residents, of acquisition 

In Alaska, the Service only acquires land from willing 

landowners. It is Service policy to acquire land only when other 

methods of achieving goals are not appropriate, available, or 

effective. Sometimes resource conservation goals can be met 

through cooperative management agreements with landowners 

or by similar means. The Refuges would work with all 

landowners to ensure that overall fish and wildlife and habitat 

values within the refuge are conserved. 

A pre-acquisition environmental site assessment is required for 

all real property proposed for acquisition by the Service or for 

public domain lands returning to Service jurisdiction (USFWS, 

Part 341 FW 3). 

A land protection plan for the Refuges was completed in 2002. 

2.8 Compatibility Determinations 

The Refuge Administration Act states that “the Secretary is 

authorized, under such regulations as he [or she] may prescribe, 

to . . . permit the use of any area within the System for any 
Chapter 2: Refuge Management Direction and Alternatives 

2-16 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

purpose, including but not limited to hunting, fishing, public 

recreation and accommodations, and access whenever he [or 

she] determines that such uses are compatible . . . .” 

A compatible use is a proposed or existing wildlife-dependent 

recreation use or any other use of a national wildlife refuge that, 

based on sound professional judgment, will not materially 

interfere with nor detract from the fulfillment of the National 

Wildlife Refuge System mission or the purposes for which the 

national wildlife refuge was established. Economic uses must 

contribute to achieving refuge purposes and the System 

mission. Compatibility determinations are not required for 

refuge management activities, except economic activities. 

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

normal administrative procedures for stopping the action. If the 

use was a new use requiring a special use permit, the refuge 

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

already under permit, the refuge manager would work with the 

permittee to modify the use to make it compatible or would 

terminate the permit. 

Ending incompatible uses that do not require a special use 

permit or other formal authorization, or that cannot be 

addressed by other federal or state agencies, would require the 

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

include publishing in the Federal Register the proposed 

regulations and providing opportunity for public comment. 

Compatibility determinations for uses on the Refuges are found 

in Appendix H of this Conservation Plan. 

Compatibility determinations for existing hunting, fishing, 

wildlife observation and photography, and environmental 

education and interpretation must be re-evaluated with the 

preparation or revision of a comprehensive conservation plan or 

at least every 15 years, whichever is earlier. Compatibility 

determinations for all other uses must be re-evaluated every 10 

years or earlier if conditions change or significant new 

information relative to the use and its effects becomes available. 

Additional details on applying compatibility standards and 

completing compatibility determinations are found in the 

compatibility regulations at 50 CFR Parts 25, 26, and 29 and 

Part 603 FW 2 of the Service Manual (USFWS). 

2.9 Mitigation 

In the interest of serving the public, it is the policy of the 

Service, throughout the nation, to seek to prevent, reduce, or 

compensate for losses of fish, wildlife, and their habitats, and 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-17 

uses thereof, from land and water development. To that end, the 

Service developed a “Mitigation Policy” in 1981 that includes 

measures ranging from avoiding an activity that results in loss 

of such resources to seeking compensation by replacement of or 

substitution for resource loss. 

The Service will promulgate regulations, develop stipulations, 

and issue permits to reduce or eliminate potential adverse 

impacts resulting from compatible activities that may be 

authorized under this plan. These regulations, stipulations, and 

permits would mitigate impacts in a variety of means, as 

stipulated in the Mitigation Policy guidelines (USFWS, Part 501 

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

1. Avoiding the impact altogether by not taking a certain 

action or parts of an action 

2. Minimizing impacts by limiting the degree or 

magnitude of the action and its implementation 

3. Rectifying the impact by repairing, rehabilitating, or 

restoring the affected environment 

4. Reducing or eliminating the impact over time by 

preservation and maintenance operations during the 

life of the action 

5. Compensating for the impact by replacing or 

providing substitute resources or environments 

When determining activities or uses as compatible, projects 

should be designed first to avoid adverse impacts. The Service 

generally would not allow compensatory mitigation on National 

Wildlife Refuge System lands, and only in limited and 

exceptional circumstances could compensatory mitigation be 

used to find an activity compatible. The Service Manual, Part 

501 FW 2 and 603 FW 2, provides more information. 

Mitigation may consist of standard stipulations such as those 

attached to right-of-way permits; special stipulations that may 

be attached to leases or permits on a site-specific basis; and sitespecific, project-specific mitigation identified through detailed 

step-down management plans or the environmental assessment 

process. In all instances, mitigation must support the mission of 

the National Wildlife Refuge System and must be compatible 

with the purposes of the refuge. The degree, type, and extent of 

mitigation undertaken would depend on the site-specific 

conditions present and the management goals and objectives of 

the action being implemented. 

2.10 Coastal Zone Consistency 

Although federal lands, including lands in the National Wildlife 

Refuge System, are excluded from the coastal zone (16 U.S.C., 
Chapter 2: Refuge Management Direction and Alternatives 

2-18 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Section 1453[1]), the Coastal Zone Management Act of 1972, as 

amended (PL 92-583), directs federal agencies conducting 

activities within the coastal zone or that may affect any land or 

water use or natural resources of the coastal zone to conduct 

these activities in a manner that is consistent “to the maximum 

extent practicable” 2 with approved state management 

programs. 

The Alaska Coastal Zone Management Act of 1977, as amended, 

and the subsequent Alaska Coastal Management Program, as 

amended, and Final Environmental Impact Statement (1979) 

establish policy guidance and standards for the review of 

projects within or potentially affecting Alaska’s coastal zone. In 

addition, specific policies have been developed for activities and 

uses of coastal lands and water resources within regional coastal 

resource districts. Most incorporated cities, municipalities, and 

boroughs as well as unincorporated areas (coastal resource 

service areas) within the coastal zone now have state-approved 

coastal management programs. 

Although state and coastal district program policies are to guide 

consistency determinations, more restrictive federal agency 

standards may be applied. Federal regulations state that 

“(w)hen Federal agency standards are more restrictive than 

standards or requirements contained in the State’s management 

program, the Federal agency may continue to apply its stricter 

standards . . .” (15 CFR, Section 930.39[d]). 

Certain federal actions may require a Federal Coastal 

Consistency Determination. The Refuges will contact the 

Department of Natural Resources’ Alaska Coastal Management 

Program with the Service’s determination of consistency before 

beginning a project that may affect the coastal zone. 

Section 7-1 of this Conservation Plan is a consistency 

determination covering all the alternatives for managing the 

Refuge. 

2.11 Cooperation and Coordination 

with Others 

2.11.1 Federal, State and Local Governments 

The Refuges will continue to work closely with those federal, 

state, Native and local governments and agencies whose 

programs affect, or are affected by, the Refuges. State, local, 

and Native government input will be sought during the 

 

2

 “To the maximum extent practicable” means, “to the fullest degree permitted by existing law (15 

CFR, Section 930.32).” 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-19 

development of regulatory policies addressing management of 

the Refuge System (Executive Order 13083—Federalism). 

When possible, the Service will participate in interagency 

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

research), cooperative agreements, sharing data, and sharing 

equipment and/or aircraft costs to meet mutual management 

goals and objectives. 

When the refuge is aware of issues involving management 

jurisdiction or authority over submerged lands or other areas, it 

will, under appropriate situations, coordinate with the State of 

Alaska. Coordination may involve formal and informal 

management agreements between the Service and the state, but 

the assertion of management authority will not be contingent on 

completing any agreements or any other action not required by 

federal law. Questions regarding the ownership of specific 

submerged lands may be addressed to the Refuges 

headquarters. 

The Refuges and the State of Alaska will cooperatively manage 

the fish and wildlife resources of the Refuges. The Master 

Memorandum of Understanding between the Service and the 

Alaska Department of Fish & Game (dated March 13, 1982) 

defines the cooperative management roles of each agency (see 

Appendix B). In this agreement, the Alaska Department of Fish 

and Game agreed to “recognize the Service as the agency with 

the responsibility to manage migratory birds, endangered 

species, and other species mandated by Federal law, and on 

Service lands in Alaska to conserve fish and wildlife and their 

habitats and regulate human use.” Correspondingly, the Service 

agreed to “recognize the right of the Alaska Department of Fish 

and Game as the agency with the primary responsibility to 

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

Further discussion of intergovernmental cooperation regarding 

the preservation, use, and management of fish and wildlife 

resources is found in Title 43 CFR, Part 24 (Department of the 

Interior Fish & Wildlife Policy: State and Federal 

Relationships). 

We do not require compatibility determinations for state 

wildlife management activities on a national wildlife refuge 

pursuant to a cooperative agreement between the state and the 

Fish & Wildlife Service where the refuge manager has made a 

written determination that such activities support fulfilling the 

refuge purposes or the System mission. When the activity 

proposed by the state is not part of a cooperative agreement or 

it is not acting as the Service’s agent, a special use permit may 

be required, and a compatibility determination will need to be 

completed before the activity may be allowed. Separate 
Chapter 2: Refuge Management Direction and Alternatives 

2-20 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

compatibility determinations addressing specific proposals will 

be required for state management activities that propose 

predator management, fish and wildlife control (with the 

exception of emergency removal of individual rogue animals), 

reintroduction of species, nonnative species management, pest 

management, disease prevention and control, fishery 

restoration, fishery enhancement, native fish introductions, 

nonnative species introductions, construction of facilities, 

helicopter access, or any other unpermitted activity that could 

alter refuge ecosystems. 

2.11.2 Tribes and Native American Organizations 

The Service’s Native American Policy (USFWS 1994b) 

identifies general principles that guide the Service’s 

government-to-government relationships with tribal 

governments in the conservation of fish and wildlife resources. 

Additional guidance has been provided by Executive Order 

13084, “Consultation and Coordination with Indian Tribal 

Governments,” issued May 14, 1998, and the Department of the 

Interior–Alaska Policy on Government-to-Government 

Relations with Alaska Native Tribes issued January 18, 2001 

(USDI 2001). The Refuges will maintain government-togovernment relationships with tribal governments. The refuges 

will also work directly with regional and village corporations 

and respect Native American cultural values when planning and 

implementing programs on the refuge. 

2.11.3 Owners of Refuge Inholdings and Adjacent Lands 

The Refuges will work cooperatively with inholders and 

adjacent landowners, providing information on refuge 

management activities and policies. The Refuges will consult 

periodically with them regarding topics of mutual interest; will 

respond promptly to concerns over refuge programs; and will 

participate in cooperative projects (e.g., water-quality 

monitoring and fish and wildlife management). 

2.11.4 Service Jurisdiction Over Waters Within the Refuges 

Where the United States holds title to submerged lands beneath 

waters within the Alaska Peninsula National Wildlife Refuge 

and the Becharof National Wildlife Refuge, the Service has 

jurisdiction over activities on the water. The Service’s statutory 

authority to manage these lands and waters comes from the 

National Wildlife Refuge System Administration Act of 1966, as 

amended, and the Alaska National Interest Conservation Act 

(ANILCA). Under provisions of ANILCA, the Service manages 

the federal subsistence program on all waters within and 

adjacent to the external boundaries of the Refuges. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-21 

In 1980, under ANILCA, the U.S. Congress established the 

Alaska Peninsula and Becharof National Wildlife Refuges. 

These areas of land and water may contain both navigable and 

nonnavigable waters. Where waterbodies are nonnavigable 

within the Refuges, the Service has management authority over 

activities on water where adjacent uplands are federally owned. 

Where State of Alaska lands exist beneath navigable 

waterbodies or where the state, a Native corporation, or a 

Native allotee owns the adjacent uplands within areas of the 

ANILCA-established Refuges, the Service’s management 

authority is limited. 

2.11.5 Other Constituencies 

The Refuges will inform local communities, special interest 

groups, and others who have expressed an interest in or are 

affected by refuge programs about refuge management policies 

and activities. The Refuges will seek input from these 

constituents when issues arise that may affect how the refuge is 

managed. Whenever possible, local residents and special 

interest groups will be asked to participate in refuge activities 

so their expertise and local knowledge can be incorporated into 

refuge management. 

2.12 Ecosystem and Landscape 

Management 

Species do not function alone; they function together in the 

environment as part of an ecosystem. The Refuges will employ 

ecosystem-management techniques in resource management of 

the Refuges. Individual species are viewed as integral to the 

diversity of those ecosystems and as such are indicators of the 

healthy functioning of the entire ecosystem. When the Service 

identifies species to use as indicators of the health of the 

ecosystem, it will do so through a rigorous peer-reviewed 

scientific process involving experts from other federal agencies 

and the Alaska Department of Fish & Game. 

Inventorying, monitoring, and maintaining a comprehensive 

database of selected ecosystem components is critical for 

making refuge management decisions and for ensuring the 

proper long-term stewardship of refuge ecosystems. This 

includes regular and recurring monitoring of status and trends 

for ecosystem components such as fish, wildlife, plants, climatic 

conditions, soils, and waterbodies. All monitoring will employ 

appropriate disciplines, new technologies, and scientific 

capabilities whenever practical. 
Chapter 2: Refuge Management Direction and Alternatives 

2-22 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

2.12.1 Air Quality 

The Service’s authorities for air-quality management are 

included in several laws. The most direct mandates to manage 

air resources are found in the Wilderness Act and the Clean Air 

Act. 

The Service is required by the Clean Air Act to preserve, 

protect, and enhance air quality and air quality–related values 

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

plants, animals, soil, water quality, cultural and historical 

resources, and virtually all resources that are dependent upon 

and affected by air quality. In addition, the Wilderness Act 

requires the Service to protect and preserve the Wilderness 

character, including the pristine air quality, of designated areas. 

Class I air-quality sites receive the highest level of protection. 

Very little deterioration is allowed in these areas, and the 

federal land manager has an “affirmative responsibility” to 

protect air quality–related values on those lands. With the 

exception of three Class I air-quality sites in designated 

Wilderness on the Alaska Maritime National Wildlife Refuge, 

all other lands managed by the Service in Alaska are classified 

as Class II and receive protection through the Clean Air Act. 

Moderate deterioration, associated with well-managed growth, 

is allowed in Class II areas. 

If air quality or related resources are at risk, the refuge 

manager will work with the Service’s Air Quality Branch; the 

Regional air quality coordinator; the Alaska Department of 

Environmental Conservation and other state, local, and federal 

agencies and the public, as appropriate, in developing an airquality management plan as outlined in the Service Manual, 

Part 563, FW 2.8 (USFWS). 

2.12.2 Water Resources (Hydrology) Management 

Every national wildlife refuge in Alaska shares the common 

purpose of ensuring that water resources are maintained and 

protected. ANILCA mandates that the Service safeguard water 

quality and necessary water quantity within the Refuges. 

Although the Service has reserved water rights sufficient to 

accomplish the purposes of the Refuges, the National Wildlife 

Refuge System Administration Act 16 (USC 660dd) and the 

Service Manual (403 FW 1-3) direct the Service to obtain, to the 

extent practicable, water supplies of adequate quantity and 

quality for Service facilities, for refuge purposes and as trust 

resources, and to obtain the legal right to use that water 

through state laws, regulations, and procedures. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-23 

The Alaska Region conducted a water-resources threats 

analysis (Harle 1994) for the purpose of guiding water resource 

investigations and protecting water resources by acquiring 

instream-water-rights protection. Based on the results of the 

threats analysis, the Service’s Regional Office developed a 

strategic plan for systematically quantifying the surface water 

on refuges within Alaska (Bayha et al. 1997). 

Using existing data, or through the collection of hydrologic and 

biologic data, the Service applies to the State of Alaska for 

appropriative water rights, for instream water reservations, and 

for water withdrawals to meet the purposes identified in 

ANILCA and the Refuge System Improvement Act. 

Establishing state water rights is only a part of a management 

strategy to protect refuge resources and to understand 

ecosystem processes. Collection of hydrologic data allows the 

Service to accomplish the following: 

 Plan flood-plain and riparian zone management 

 Estimate flow for ungauged refuge streams 

 Supplement historical or current fisheries and wildlife 

studies 

 Detect and evaluate future natural or human-induced 

changes in the hydrologic system 

 Provide stream profile and velocity data for the design of 

fish weirs or other structures 

 Estimate the potential for future flooding and erosion 

 Analyze the impacts of proposed projects on stream flow 

and water supply 

 Provide a basis for decision-making about commercial 

operations on some important streams 

All facilities and activities on refuges must comply with 

pollution-control standards set by Federal laws (e.g., the Clean 

Water Act [33 U.S.C. 1251] and the Safe Drinking Water Act 

[42 U.S.C. 300]), state laws where federal law so provides, and 

the regulations, policies, and standards implementing these 

laws. 

2.12.3 Visual Resource Management 

Visual resource management has two primary purposes: (1) to 

manage the quality of the visual environment and (2) to reduce 

the visual impact of development activities. To accomplish these 

purposes, the Refuges will identify and maintain the scenic 

values of the refuge and will, within the constraints imposed by 

the conservation plan, minimize the visual impacts of 

development and use of the refuge. All activities and facilities on 
Chapter 2: Refuge Management Direction and Alternatives 

2-24 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

the Refuges will be designed to blend into the landscape to the 

extent practical. The Service will cooperate with other federal, 

state, local, tribal, and private agencies and organizations to 

prevent significant deterioration of visual resources. 

2.12.4 Cultural, Historical, and Paleontological Resources 

The Service has long-term responsibilities for cultural resources 

on refuge lands. Cultural resources on refuge lands are 

managed under a number of laws, executive orders, and 

regulations, including the Antiquities Act; the National Historic 

Preservation Act, as amended; the Archaeological Resources 

Protection Act; the American Indian Religious Freedom Act; 

the Native American Graves Protection and Repatriation Act; 

Executive Order 11593, Protection and Enhancement of the 

Cultural Environment; Executive Order 13007, Indian Sacred 

Sites; and Section 36 of the Code of Federal Regulations, 

Part 800. 

The 1980 amendments to the National Historic Preservation 

Act direct the Service to inventory and evaluate cultural 

resources for their eligibility for inclusion on the National 

Register of Historic Places. All significant historic, 

archaeological, cultural, and paleontological resources on the 

refuge will be protected and managed in accordance with 

federal and state law. Because of limits of time, funding, and 

staffing, the Service must designate priorities in evaluating 

cultural resources on refuge lands. Pending a complete 

evaluation, all cultural resources will be considered potentially 

eligible for the National Register. When funds become 

available, the first priority will be to prepare a substantial and 

comprehensive cultural resource overview to be used to guide 

future inventory and evaluation. Sites determined to be eligible 

for the National Register will be protected with an appropriate 

cultural resources management plan. 

This overview—a cultural resource guide for the Refuges—was 

completed in 1996 and is scheduled to be updated in 2008. It 

provides guidance for cultural resource management on the 

Refuges by outlining legal mandates and considerations, 

reviewing current information about the resources, and 

establishing goals and objectives for the program. Cultural 

resource guides and plans are considered step-down plans. 

It is illegal to collect archaeological materials and/or vertebrate 

paleontological remains on the Refuges without a permit issued 

under the provisions of the Archaeological Resources Protection 

Act (for archaeological materials) or of the Antiquities Act of 

1906 (vertebrate paleontological remains). Historic aircraft and 

other World War II material will be managed in accordance 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-25 

with a policy published December 20, 1985, in the Federal 

Register (FR 50:51952-51953). These materials may be 

collected on refuge lands only as authorized by a permit issued 

to a qualified organization or individual. Cultural resource 

research permits will only be issued to qualified individuals 

operating under appropriate research designs. The Refuges will 

encourage archaeologists, historians, ethnologists, and 

paleontologists from educational institutions and other 

government agencies to pursue their research interests on 

refuge lands so long as these research interests are compatible 

with refuge purposes. Research that collects data from 

threatened sites and minimizes disturbance to intact sites will 

be encouraged. 

When any federal undertaking—including any action funded or 

authorized by the federal government and having the potential 

to directly or indirectly affect any archaeological or historic 

site—is planned, a consultation must be initiated with the State 

Historic Preservation Officer, under Section 106 of the National 

Historic Preservation Act. If sites that may be affected are 

found in the project area, their significance will be evaluated to 

determine their eligibility for inclusion in the National Register. 

For eligible sites, consultation will result in a course of action 

causing the least possible impact. Impacts may be minimized in 

a variety of ways, including relocation or redesign of a project, 

site hardening, mitigation through information collection, or 

cancellation of the project if no alternatives are feasible. To 

protect archaeological and historic sites, other uses may be 

precluded. Private interests proposing to conduct commercial 

uses on the refuge will normally be required to fund studies 

necessary for consultation and for mitigation of impacts. 

The Refuges will implement Executive Order 13007, Indian 

Sacred Sites, allowing access to identified sacred sites and 

avoiding adversely affecting the physical integrity of these sites. 

Where appropriate, the Service will maintain the confidentiality 

of sacred sites. 

Further information on cultural resources management can be 

found in Part 614 FW 1-5 of the Service Manual and the 

Service’s Cultural Resources Management Handbook (USFWS 

1992). 

2.13 Fish and Wildlife Habitat 

Management 

2.13.1 Habitat Management 

Habitats are managed in keeping with the purposes, goals, and 

objectives of a refuge. In most cases, this means habitats are 
Chapter 2: Refuge Management Direction and Alternatives 

2-26 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

managed to maintain a natural state with little or no human 

intervention. In some cases, habitats are manipulated to 

maintain or improve conditions for selected fish and wildlife 

populations, to control plant species, or to manage fire fuels on 

refuge lands. Any habitat management and manipulation 

activities will be carried out in support of the purposes, goals, 

and objectives of the Refuges. The Refuges will use the leastintrusive management measures needed. Where practical and 

economically feasible, habitat management practices will 

maintain a natural appearance on the landscape. Habitatmanagement practices, even those carried out for the benefit of 

a single species or small group of species, will, to the extent 

possible, contribute to the widest diversity of native 

(indigenous) wildlife species and habitat types. 

Habitat management and manipulation may be achieved by 

mechanical or manual methods, or by a combination of methods. 

Mechanical treatment could include mechanical removal, 

crushing, cutting, or mowing. Mechanical treatment could also 

include the construction of fish passages, fish ladders, fish 

barriers, water impoundments and structures such as fences or 

artificial nests, and raising or lowering of water levels to 

manage wildlife or waterfowl habitat. Riparian or aquatic 

habitat management and manipulation may be achieved by 

acquiring instream-flow reservations or making beneficial water 

diversions. 

Chemical treatment would involve the use of chemicals to 

restore nutrient levels in a lake system (fertilization) for 

fisheries restoration, to reduce hazardous fuels, or to eliminate 

nonnative plant and animal species, normally by killing them or 

destroying their ability to spread or prosper. Before chemical 

treatment is used, the Refuges will analyze the need for action, 

the options for treatment, and the potential impacts of those 

options. A pesticide-use proposal must be approved by the 

Service’s Regional Office before chemical controls are used on 

refuge lands (30 AM 12 and 7 RM 14). 

Manual treatment could include the use of hand tools to remove, 

reduce, or modify hazardous fuels or nonnative plant or animal 

species or to modify habitats (e.g., removal of beaver dams). 

Aquatic habitat modification may include activities and 

structures such as streambank restoration, passage structures, 

and removal of fish barriers or obstacles that results in physical 

modification of aquatic or riparian habitats to benefit fish 

species. These activities would be undertaken to maintain or 

restore native fish populations and may require appropriate 

National Environmental Policy Act (NEPA) compliance and 

compatibility determinations. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-27 

2.13.2 Fire Management 

The Refuges are exempt from developing a fire management 

plan because of the low incidence of wildland fires 

Wildland Fire Suppression

Fire suppression activity is the work of confining, constraining, 

controlling, or monitoring a fire or portion of a fire to protect, 

prevent, or reduce the loss of identified values. Suppression 

takes place, with the highest priority being the safety of 

firefighters and the public, using the appropriate management 

response based on values to be protected. The Alaska 

Interagency Wildland Fire Management Plan, amended in 

October 1988, is the guiding document for suppression actions. 

The plan establishes four management options—critical, full, 

modified, and limited—that direct a range of wildlife fire 

management responses. Refuge lands have been classified by 

fire management zones for limited, modified, or full 

suppression, with all facilities mapped. 

The Bureau of Land Management—Alaska Fire Service 

(BLM/AFS) provides emergency suppression services on refuge 

lands in Alaska (DOI 2001, DM 2), as directed by the refuge 

manager. Through a cooperative agreement with BLM/AFS, 

the State of Alaska Division of Forestry provides emergency 

suppression services on refuge lands in state protection zones, 

as directed by the refuge manager. 

Wildland Fire Use

Wildland fire use is the application of the appropriate 

management response to naturally ignited wildland fires to 

accomplish resource management objectives outlined in fire 

management plans. Wildland fires may be used to protect, 

maintain, and enhance natural and cultural resources and, as 

nearly as possible, wildland fires will be allowed to function in 

their natural ecological role. Optional management is described 

in a refuge’s fire management plan. 

Prescribed Fire

Prescribed fires are ignited by management action to meet 

specific wildland fuel, vegetation, and habitat management 

objectives. Prior to each ignition, a written, approved plan 

outlining prescription conditions is required. Use of prescribed 

fires must also comply with the Alaska Enhanced Smoke 

Management Plan for Prescribed Fire. The plan provides 

guidance and direction concerning smoke issues related to 

prescribed fire. 
Chapter 2: Refuge Management Direction and Alternatives 

2-28 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

2.13.3 Weed Control (Pest and Nonnative Plant Management) 

Weeds can cause significant impacts to the land and water 

resources and to the species of plants and animals that use these 

habitats. To manage weeds, the Refuges will include weed 

inventories as part of all habitat inventories. The Refuges will 

review a proposed action’s potential to introduce or spread 

weeds and will take measures to reduce the hazards (e.g., 

require weed-free feed for pack animals). The Refuges will 

coordinate with other landowners and agencies and use 

integrated pest-management practices to enhance the detection, 

prevention, and management of weed problems. Use of chemical 

control measures on refuge lands requires Regional Office 

approval of a pesticide-use proposal (30 AM 12 and 7 RM 14). 

2.14 Fish and Wildlife Population 

Management 

Conservation of habitat is a key element in maintaining the 

natural diversity of populations on the Refuges, and 

management of native fish and wildlife populations is an 

important component of maintaining a healthy ecosystem. The 

Refuges will be managed consistent with the Policy on 

Maintaining Biological Integrity, Diversity, and Environmental 

Health of the National Wildlife Refuge System (USFWS, 601 

FW 3) to ensure native species are managed in their natural 

diversity and abundance. 

The Refuges will work with the State of Alaska to conserve fish 

and wildlife populations, recognizing that populations may 

experience fluctuations in abundance because of environmental 

factors and may require management actions for conservation 

purposes. The Refuges will be managed to maintain the genetic 

variability of wild, native fish stocks. 

2.14.1 Wildlife Inventory and Monitoring Plan 

To assess presence, relative abundance, distribution, and trends 

in populations of fish, wildlife, and plants, the Refuges will draft 

a wildlife inventory and monitoring (I&M) plan. The I&M plan 

describes objectives, justification, methods, management 

implications, geographic scale, report schedules, and database 

management for studies on species targeted for inventory and 

monitoring. The I&M plan will include studies that address 

environmental parameters (e.g., weather) and hydrology, soils, 

and fire history to explain potential changes in the distribution, 

relative abundance, and populations of fish, wildlife, and plants. 

The I&M plan will be forwarded to the Service’s Regional Office 

for review by the regional refuge biologist and other 

professional staff prior to final approval by the regional refuge 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-29 

chief. The refuge will update its I&M plan on an annual basis 

but will only need regional review and approval every five years. 

2.14.2 Scientific Peer Review 

Biologists, ecologists, botanists, and other refuge personnel 

conducting scientific investigations will adhere to refuge, 

regional, Service, and Department of Interior policies on 

scientific conduct, including scientific peer review. The overall 

goal of scientific peer review is to ensure that information 

collected, analyzed, interpreted, and reported to the public and 

upon which policy and management decisions are based, meets 

established standards of the scientific community. To achieve 

this goal, refuge biologists, ecologists, botanists, and others 

serving as principal investigators will write a study plan that 

will undergo peer review. In addition, study plans, reports, and 

manuscripts that summarize the results of scientific studies, 

analyses, assessments, or syntheses developed by, or supported 

by, the Service will undergo scientific review prior to 

publication. The type and level of review shall be commensurate 

with the potential significance of the scientific information and 

its likely influence on policy and management actions. 

2.14.3 Compliance with the Animal Welfare Act 

The Animal Welfare Act of 1996 established legal standards for 

animal care and use. To prescribe methods and set standards 

for the design, performance, and conduct of animal care and 

use, research facilities and federal agencies must establish an 

Institutional Animal Care and Use Committee (IACUC). Field 

studies conducted or authorized by refuge employees within the 

purview of the Animal Welfare Act will require review and 

approval of an IACUC. Any refuge study that involves an 

invasive procedure or that harms or materially alters the 

behavior of an animal under study should be reviewed and 

approved by the Fish & Wildlife Service’s (Region 7) IACUC 

prior to implementing field work. 

2.14.4 Marking and Banding 

These activities include fish and wildlife capture, marking, 

banding, radio-collaring, release, tracking, and other 

information-gathering techniques. Cooperation with 

appropriate partners, including the Alaska Department of Fish 

& Game, will be stressed, and specific protocols will be followed, 

taking advantage of all appropriate disciplines and new 

technologies wherever possible. 

2.14.5 Threatened or Endangered Species 

The Refuges will consult with the U.S. Fish & Wildlife Service 

Ecological Services field office on actions that may affect listed, 
Chapter 2: Refuge Management Direction and Alternatives 

2-30 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

proposed, or candidate species or designated or proposed 

critical habitat. These actions include refuge operations, publicuse programs, private lands and Federal Aid activities, 

promulgating regulations, and issuing permits (USFWS 1973, 

Section 7, Consultation Handbook 1998). 

2.14.6 Introductions and Reintroductions 

A species may be introduced on a refuge only if that species is 

native to the refuge (i.e., a reintroduction). Nonnative species 

may not be introduced. Definitions of native and nonnative 

species are found in the glossary. 

Reintroductions can be useful tools for restoring species to 

natural ranges and reestablishing a refuge’s natural fish, 

wildlife, and habitat diversity. Reintroductions would require 

appropriate NEPA compliance, a review to ensure consistency 

with the biological integrity policy, an ANILCA Section 810 

subsistence determination, and a refuge compatibility 

determination. Reintroductions also require extensive 

coordination with adjacent landowners and with the State of 

Alaska. In evaluating the project, the cause(s) of the extirpation3

should be evaluated and management actions taken to alleviate 

the cause(s) prior to reintroduction. 

The environmental requirements of the species and the 

ecological dynamics of the area proposed for the reintroduction 

need to be thoroughly reviewed prior to a reintroduction. Some 

factors to consider include behavior, diseases, general ecology of 

the species, habitat requirements, inter- and intra-species 

competition, life history, genetics, management practices, 

population dynamics, and predators. Consideration should be 

given to whether there have been significant habitat changes 

since extirpation of the species (e.g., is the area still within the 

species’ natural range?). 

2.14.7 Fish and Wildlife Control 

These activities involve the control, relocation, and/or removal 

of native species, including predators, to maintain natural 

diversity of fish, wildlife, and habitats. These management 

actions may be employed with species of fish and wildlife within 

their original range to restore other depleted native 

populations. These activities are subject to appropriate NEPA 

compliance, an ANILCA Section 810 subsistence determination, 

and a refuge compatibility determination. 

Predator management includes the relocation, removal, 

sterilization, and other management of native predators to 

 

3

 localized extinction of a species 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-31 

accomplish management objectives. The Service considers 

predator management to be a legitimate conservation tool when 

applied in a prudent and ecologically sound manner and when 

other alternatives are not practical. The key requirements are 

that a predator-management program be ecologically sound and 

biologically justified. In keeping with the Service’s mandate to 

first and foremost maintain the biological integrity, diversity, 

and environmental health of fish and wildlife populations at the 

refuge scale, a predator population will not intentionally be 

reduced below a level consistent with the low-end of natural 

population cycles (see 601 FW 3). 

A predator-management program requires appropriate NEPA 

compliance, an ANILCA Section 810 subsistence evaluation, 

and, if conducted by other than the Service, a refuge 

compatibility determination. Alternative management actions 

must be evaluated prior to pursuing direct predator-control 

activities. Any proposal to allow or implement a predatormanagement program on national wildlife refuges in Alaska will 

be subjected to public review and closely coordinated with the 

Alaska Department of Fish & Game, local communities, tribal 

governments, and adjacent landowners and/or managers. 

Predator-management activities must be monitored and 

evaluated for effectiveness and resource impacts. 

Normal environmental education and population-management 

activities—such as trapper education programs and regulation 

changes that allow for increased harvests of predatory animals 

by licensed trappers and hunters—are not considered to be 

“predator management.” The control or extirpation of nonnative 

predators is not considered to be “predator management” (see 

Section 2.14.8). 

2.14.8 Nonnative Species Management 

In general, nonnative species (including feral domestic animals) 

are not compatible with refuge purposes or with National 

Wildlife Refuge System policies. When nonnative species (fish, 

wildlife, or plants) occur on a refuge, the Service may control or 

eliminate that species. Where a population of a nonnative 

species has already been established on a refuge and this 

population does not materially interfere with or detract from 

the fulfillment of the mission of the National Wildlife Refuge 

System or the purposes of the refuge, the species may be 

managed as part of the refuge’s diverse ecosystem. 

2.14.9 Fish and Wildlife Pest Management and Disease Prevention 

and Control 

Organisms (e.g., rabies or parasites) that threaten human 

health and property or survival of native wildlife or plant 
Chapter 2: Refuge Management Direction and Alternatives 

2-32 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

species may be managed or removed after consideration of all 

reasonable options and consultation with the State of Alaska 

and other concerned parties. This will normally only occur when 

severe resource damage is likely or when public health or safety 

is jeopardized. Wherever possible, an integrated approach to 

pest management will be used in accordance with the U.S. Fish 

& Wildlife Service Administrative Manual, 30 AM 12 and 7 RM 

14. If chemical controls are used, a pesticide-use proposal must 

be submitted to the Service’s Regional Office for approval. 

2.14.10 Fishery Restoration 

Fishery restoration is any management action that increases 

fishery resources to allow full use of available habitat or to 

reach a population level based on historical biologic data. 

Although the goal of restoration is self-sustaining populations, 

situations may exist in which some form of fishery management 

or facilities could continue indefinitely. 

Where fishery resources have been severely adversely affected, 

the Refuge will work with the State of Alaska, local tribes, and 

other partners to restore habitats and populations to 

appropriate, sustainable conditions. Restoration emphasis will 

focus on strategies that are the least intrusive to the ecosystem 

and that do not compromise the viability or genetic 

characteristics of the depleted population. This may include 

regulatory adjustments and/or evaluations of escapement goals. 

If the stocks have been reduced or are threatened, temporary 

restoration facilities may be allowed in designated Wilderness, 

as long as the facilities will not significantly detract from the 

values for which those areas were established. 

2.14.11 Fishery Enhancement 

Fishery enhancement is any management action or set of 

actions that is applied to a fishery stock to supplement numbers 

of harvestable fish to a level beyond that which could be 

naturally produced based on a determination or reasonable 

estimate of historic levels. This could be accomplished by 

stocking barren lakes, providing access to barren spawning 

areas (fish passages), constructing hatcheries, outstocking in 

productive systems, or fertilizing rearing habitat. 

Refuge management priorities will focus on conserving 

naturally diverse ecosystems. Fishery-enhancement facilities 

for the purposes of artificially increasing fish populations 

normally will not occur within any management category unless 

stocks have been reduced or are threatened. 

Proposals for fishery-enhancement projects will be subject to 

the provisions of NEPA, an ANILCA Section 810 subsistence 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-33 

determination, and a compatibility determination. Only 

temporary fisheries-enhancement facilities may be authorized in 

Minimal and Wilderness management areas. Proposals for 

facilities within designated Wilderness require a minimumrequirements analysis to determine if the facilities are 

necessary within the Wilderness area and would not 

significantly detract from the values for which those areas were 

established. 

2.14.12 Fish Management Planning 

The Refuges Fishery Management Plan is scheduled for 

revision in 2008. This plan provides additional guidance on 

information needs and on management actions needed on the 

Refuges. The Service would involve partners (e.g., State of 

Alaska and local tribes) in the revision process. 

2.15 Subsistence Use Management 

Providing the opportunity for continued subsistence use by local 

residents is one of the purposes of these refuges, as stated in 

Title III Sections 302 (1)(B) and (2)(B) and Section 303 (1)(B) of 

ANILCA. Title VIII of ANILCA further provides that rural 

Alaska residents engaged in subsistence use of resources be 

allowed to continue using refuge resources for traditional 

purposes. These resources include fish and wildlife, house logs 

and firewood, and other plant materials (berries, bark, etc.). 

Many aspects of subsistence management are addressed outside 

of this plan. The Federal Subsistence Board, through its rulemaking process, addresses seasons, harvest limits, and 

customary and traditional use determinations. This board has 

established regional advisory councils to provide for meaningful 

public input to the rule-making process. 

The Refuges will work with others to monitor subsistence 

harvest, including monitoring conducted by other federal land 

management agencies, the State of Alaska, tribal governments, 

Native organizations, or any other party. The Refuges will 

supplement the state’s ongoing harvest and resource monitoring 

programs to provide additional information on the status of fish 

and wildlife populations harvested for subsistence uses. This 

monitoring is intended to identify potential problems before 

populations of fish and wildlife become depleted and to ensure 

preference is given to subsistence users as required by law. All 

information the refuge gathers through subsistence monitoring 

will be shared with local state fish and game advisory 

committees, tribes, and other entities. Refuge staff members 

attend various subsistence-related meetings, including those of 

local fish and game advisory committees and Regional 
Chapter 2: Refuge Management Direction and Alternatives 

2-34 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Subsistence Advisory Councils and provides information on the 

status of subsistence resources and management as they relate 

to the Refuges. 

The noncommercial gathering by local rural residents of fruits, 

berries, mushrooms, and other plant materials for subsistence 

uses and of dead standing or down timber for firewood is 

allowed without a special use permit. Harvest of live standing 

timber for house logs, firewood, or other uses is allowed, 

although specific requirements vary by size and location. See 50 

CFR 36.15 (U.S. Government 1996-2003) for specific details. 

Timber stocks subject to subsistence use will also be monitored 

to ensure they remain available over the long term. 

Under Section 816 of ANILCA, refuge lands may be closed to 

the taking of fish and wildlife if closure is deemed necessary for 

reasons of public safety, administration, or to ensure the 

continued viability of particular populations of fish or wildlife. 

Emergency closure to subsistence taking generally would occur 

only after other consumptive uses competing for the resources 

were restricted or eliminated. 

2.15.1 Access for Subsistence Purposes 

Access to refuge lands by traditional means will be allowed for 

subsistence purposes in accordance with Section 811 of 

ANILCA, subject to reasonable regulation (see 50 CFR 36.12). 

Traditional means include snowmachines, motorboats, dog 

teams, and other means of surface transportation traditionally 

used by local rural residents engaged in subsistence activities. 

Use of these traditional means of travel will be in compliance 

with state and federal law in such a manner to prevent waste of 

harvested resources or damage to the refuge and to prevent 

herding, harassment, hazing, or driving of wildlife. 

As specified in 50 CFR 36.39(c), three- and four-wheeled 

vehicles with a maximum gross vehicle weight of 650 pounds are 

allowed on the Refuges for subsistence purposes. 

2.15.2 Section 810 Evaluations 

The Refuges will evaluate the effects of proposed activities on 

subsistence use to ensure compliance with Section 810 of 

ANILCA. The Refuges will work with the Federal Subsistence 

Board, regional subsistence advisory councils, local fish and 

game advisory committees, tribes, Native corporations, the 

Alaska Department of Fish & Game, and other appropriate local 

sources to determine whether a proposed activity would 

“significantly restrict” subsistence uses. If the Refuges 

determine that a proposal would probably result in adverse 

effects to subsistence use, the Refuges would follow the 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-35 

requirements identified in Section 810 before making a final 

decision on the proposal. 

2.16 Public Access and 

Transportation Management 

2.16.1 Snowmachines, Motorboats, Airplanes, and Nonmotorized 

Surface Transportation 

Section 1110(a) of ANILCA allows the use of snowmachines 

(during periods of adequate snow cover and frozen river 

conditions), motorboats, airplanes, and nonmotorized surface 

transportation methods for traditional activities and for travel 

to and from villages and homesites. Such access shall be subject 

to reasonable regulations to protect natural and other values of 

the refuge (43 CFR 36.11). Specific areas may be closed, in 

accordance with these regulations, to such uses. The refuge 

manager is responsible for determining when snow cover is 

adequate to protect the underlying vegetation and soil from 

damage by snowmachine use. 

2.16.2 Helicopters and Off-Road Vehicles 

The regulations in 43 CFR 36.11 restrict use of helicopters and 

off-road vehicles. 

Off-Road Vehicles

The regulations in 43 CRF 36.11(g) restrict the use of off-road 

vehicles within refuges. The definition of off-road vehicles in 50 

CFR 36.2 excludes snowmachines but includes air boats and aircushion vehicles along with motorized wheeled vehicles. Under 

50 CFR 36.39 (c), off-road vehicles are allowed only on 

designated routes or areas within the Yantarni Bay Moderate 

Management area or by special use permit. (Provisions have 

been made for the use of off-road vehicles for subsistence 

purposes, see section 2.15.1.) 

Helicopters

Special use permits or other authorizations are required for all 

helicopter landings in any place other than at designated 

landing areas. Exceptions include emergencies, search and 

rescue operations, or operations conducted by the Service (43 

CFR 36.11(f)(4). 

Helicopter landings for volcano monitoring, geologic hazards 

evaluations, and fisheries and wildlife management activities 

may be authorized under special use permit or other 

authorization, subject to site-specific stipulations. Helicopter 

landings for initial-attack fire suppression must comply with 

operational guidance in the Alaska Interagency Wildland Fire 
Chapter 2: Refuge Management Direction and Alternatives 

2-36 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Management Plan. Helicopter landings by commercial 

operators and for general public access are not allowed in 

designated Wilderness unless the use was established prior to 

designation. 

2.16.3 Access to Inholdings 

Section 1110(b) of ANILCA ensures adequate and feasible 

access, for economic or other purposes, across a refuge for any 

person or entity who has a valid inholding. An inholding is 

defined as state-owned or privately owned land, including 

subsurface rights underlying public lands, valid mining claims, 

or other valid occupancy that is within or effectively surrounded 

by one or more conservation system units. When a right-of-way 

permit is necessary under this provision (e.g., construction of 

permanent or long-term facilities), the Service will review and 

process the application in accordance with regulations in 

43 CFR 36.5, 36.6 and 50 CFR 29.21. Such permits are subject 

to terms and conditions as specified in the regulations at 43 

CFR 36.9 and 50 CFR 29.21-4. 

2.16.4 Temporary Access 

43 CFR 36.12(a)(2) defines temporary access as limited, shortterm (i.e., up to one year from issuance of the permit) access 

that does not require permanent facilities and for access to state 

or private lands. Temporary access is limited to survey, 

geophysical, exploratory, or similar temporary uses of 

nonfederal lands. 

The Refuges will evaluate applications for temporary access 

across the Refuges and shall issue a permit with the necessary 

stipulations and conditions to ensure that the access granted is 

compatible with the purposes for which the refuges were 

established, that it complies with the provisions of Section 810 of 

ANILCA, and that it ensures that no permanent harm will 

result to the resources of the Refuges. 

2.16.5 Subsistence Access 

See Access for Subsistence Purposes under Subsistence Use 

Management (section 2.15.1). 

2.16.6 Transportation and Utility Systems 

Transportation and utility systems include roads, highways, 

railroads, airports, pipelines, electrical transmission lines, 

communication systems, and related structures and facilities 

reasonably and minimally necessary for the construction, 

operation, and maintenance of such systems (Section 1102 of 

ANILCA). Anyone seeking to acquire a right-of-way across 

refuge lands for a transportation or utility system must, 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-37 

consistent with 43 CFR Part 36, file an application with the 

Service’s Regional Office. Regulations in 43 CFR Part 36 and 50 

CFR Part 29 establish specific procedures and time constraints 

for application review, compliance with the National 

Environmental Policy Act, decision-making, and appeals. 

The Service will decide whether to approve or disapprove that 

portion of a transportation or utility system that would cross 

refuge lands, except for those on designated Wilderness. When 

the proposed transportation or utility system would cross a 

designated Wilderness area, the Service tentatively approves or 

disapproves the application subject to the President’s 

subsequent decision. If the President approves, a 

recommendation is submitted to Congress for final approval. 

A right-of-way for a transportation or utility system across 

refuge lands can be granted only if the system meets the 

compatibility standard, the criteria outlined in Section 

1104(g)(2) of ANILCA, and the regulations at 43 CFR 36.7(a)(2) 

and if there is no economically feasible and prudent alternative 

route for the system. If approved, permits issued for a 

transportation or utility system will contain terms and 

conditions as required under regulations in 43 CFR 36.9(b) and 

50 CFR 29.21-4. Additional special requirements apply to 

rights-of-way for pipelines issued under the Mineral Leasing 

Act of 1920, 30 U.S.C. 185 (Section 1107[c] of ANILCA and the 

regulations at 43 CFR 36.9[d]). 

For cases in which a transportation or utility system is proposed 

to cross areas in management categories that do not allow those 

systems, the authorization process would include consideration 

of a corresponding plan amendment. 

2.16.7 State Transportation Planning 

Federal transportation planning regulations require each state 

to develop a long-range statewide transportation plan in 

consultation and coordination with other government agencies 

and the public. In Alaska, transportation projects nominated for 

funding are evaluated and ranked by the Alaska Department of 

Transportation and Public Facilities. When appropriate, the 

refuge will participate in the state transportation-planning 

process and provide input regarding environmental 

considerations of proposed projects affecting refuge lands and 

resources. See Appendix G for a discussion of state-identified 

potential transportation and utility systems that cross Refuges 

lands. 
Chapter 2: Refuge Management Direction and Alternatives 

2-38 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

2.16.8 RS 2477 Rights-of-Way 

The State of Alaska asserts numerous claims to roads, trails, 

and paths across federal lands under Revised Statute 2477 

(RS 2477), a section in the Mining Act of 1866 that states, “The 

right-of-way for the construction of highways over public lands, 

not reserved for public uses, is hereby granted.” RS 2477 was 

repealed by the Federal Land Policy and Management Act of 

1976, subject to valid existing claims. 

Assertion and identification of potential rights-of-way does not 

establish the existence of these claims nor the public’s right to 

use them. The existence of all RS 2477 rights-of-way will be 

determined on a case-by-case basis, either through the courts or 

by other legally binding document. 

2.16.9 Section 17(b) Easements 

Section 17(b) of the Alaska Native Claims Settlement Act of 

December 18, 1971, authorizes the Secretary of the Interior to 

reserve easements on lands conveyed to Native corporations to 

guarantee access to public lands and waters. Easements across 

Native lands include linear easements (e.g., roads and trails) 

and site easements. Site easements are reserved for use as 

temporary campsites and to change modes of transportation. 

The Service is responsible for administering those public 

easements, inside and outside of refuge boundaries, which 

provide access to refuge lands. Service authority for 

administering 17(b) easements is restricted to the lands within 

the easement. The size, route, and general location of 17(b) 

easements are identified on maps filed with conveyance 

documents. Conveyance documents also specify the terms and 

conditions of use, including the acceptable periods and methods 

of public access. 

2.16.10 Navigation Aids and Other Facilities 

Section 1310 of ANILCA authorizes reasonable access to and 

operation and maintenance of existing air and water navigation 

aids, communications sites, and related facilities. It authorizes 

existing facilities for weather, climate, and fisheries research 

and monitoring subject to applicable laws and regulations. 

Reasonable access to and operation and maintenance of 

facilities for national defense and related air and water 

navigation are also provided for, including within designated 

Wilderness Areas. 

New facilities may be authorized after consultation with the 

head of the federal department or agency undertaking the 

establishment, operation, or maintenance and in accordance 

with mutually agreed to terms and conditions. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-39 

2.17 Recreation and Other Public 

Use 

Public recreation activities compatible with refuge purposes are 

authorized unless specifically prohibited (50 CFR 36.31). 

Compatible recreation uses of the refuge will continue. The 

Refuge Administration Act priority public uses are hunting, 

fishing, wildlife observation, photography, and environmental 

education and interpretation. These uses are encouraged and 

will receive emphasis in management of public use of the 

Refuges. 

Both consumptive (e.g., hunting, fishing, and trapping) and 

nonconsumptive (e.g., photography and wildlife viewing,) 

recreation uses are appropriate. Some recreation uses are 

incidental to others. Camping and hiking may be related to 

hunting, fishing, wildlife photography, or other recreation uses. 

There is often a fine line between subsistence and recreation 

use (e.g., berry picking). Subsistence uses are addressed under 

Subsistence Use Management (section 2.15). When it is 

necessary to restrict the taking of fish and wildlife on a refuge 

in order to protect the continued viability of such populations, 

the taking of fish and wildlife for nonwasteful subsistence uses 

on refuges shall be accorded priority over the taking of fish and 

wildlife for other purposes, in accordance with Title VIII of 

ANILCA. 

The Refuges will be managed to provide recreation experiences 

in generally natural wildland settings. Recreation use would be 

managed consistent with the designated management area 

category. Moderate Management areas will be managed for 

greater concentrations of visitors than will be Minimal 

Management and Wilderness areas. The Refuges will manage 

all recreation use to avoid crowded conditions and to minimize 

adverse effects to cultural resources, fish and wildlife, 

wilderness, and other special values of the refuge. Leave No 

Trace techniques will be the standard. 

The least intrusive means of managing use will be employed. 

Education will be the primary management tool for recreation 

management, using brochures, maps, signs, and personal 

contacts. However, if voluntary methods fail, other actions may 

be taken. Actions that may be taken to manage recreation 

include limiting commercial guiding and outfitting; regulating 

use and access subject to the provisions of Section 1110(a) of 

ANILCA; and recommending changes in state and/or federal 

fishing, hunting, and/or trapping regulations. When necessary, 

recreation opportunities may be seasonally or otherwise 
Chapter 2: Refuge Management Direction and Alternatives 

2-40 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

restricted to minimize user conflicts and to protect the natural 

or other values of the refuge. 

Any restrictions on public use will follow the public participation 

and closure procedures at 50 CFR Part 36, 43 CFR Part 36, or 

other applicable regulations. State management actions 

available through the Master Memorandum of Understanding 

(see Appendix B) and other state management tools will also be 

utilized where mutually desirable. 

Management plans may be prepared for areas of relatively 

concentrated use. 

2.18 Outreach 

Outreach is two-way communication between the Refuges and 

the public to establish mutual understanding, promote public 

involvement, and influence public attitudes and actions. The 

Refuges will continue to take advantage of partnership 

opportunities in providing these services, including working 

with the Alaska Natural History Association; Alaska Public 

Lands Information Centers; local, state, and other federal 

agencies; local schools; tribal governments; Alaska Native 

organizations; and individuals. 

Use of outreach as a management tool is key to the success of 

many of the management activities outlined in this plan. Two 

outreach activities—environmental education and 

interpretation—are included in the six priority public uses 

identified in the Refuge System Improvement Act. Many other 

activities are also available for use by the refuge staff in its 

outreach program, which may be developed in more detail as a 

step-down management plan. All outreach activities must be 

continually evaluated to determine whether they fulfill refuge 

management goals and objectives. The Refuges will ensure that 

these services are available to all segments of the public, 

including those with disabilities and those who speak languages 

other than English. 

2.18.1 Other Outreach Activities 

The Refuges will work with the news media, attend public 

meetings and workshops, develop Internet home pages, invite 

the public to the Refuges (open houses), and foster one-on-one 

communication. 

2.19 Recreation Facilities 

Facilities may be provided to support certain recreation uses. 

Recreation facilities may be located on refuge lands and at 

administrative sites. Visitor centers and highly developed 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-41 

environmental education and interpretive sites may be located 

off refuge lands at administrative sites or other appropriate 

locations. Recreation facilities may include trails, airstrips, 

environmental education sites, and signs. 

All new buildings (e.g., visitor centers, restrooms, public-use 

cabins, and visitor-contact buildings) and additions and 

alterations to existing buildings will comply with current 

accessibility standards. Other recreation facilities are not 

currently covered under these standards, although access for 

the disabled will be considered in the design of new or upgraded 

facilities. As funds are available, existing buildings will be 

updated to meet these standards. 

The level of development and appearance of facilities will be 

appropriate for the management category of the area in which 

they are located. More intensive and sophisticated facilities will 

be constructed in the Moderate Management category; more 

rustic and rudimentary facilities will occur in the other 

management categories. 

2.19.1 Cabins 

Special use permits are required for subsistence and 

commercial cabins. Management of existing cabins and review 

of proposals for construction of new cabins for traditional uses 

will be in accordance with the Service’s cabin regulations 

(50 CFR 36.33). Private recreation use cabins will not be 

authorized. 

Public-use cabins are intended to provide the public with unique 

opportunities to enjoy and use the Refuges. They also help 

ensure public health and safety in bad weather and 

emergencies. 

2.19.2 Temporary Facilities 

Per Section 1316 of ANILCA, the Refuges will allow the use of 

temporary campsites, tent platforms, shelters, and other 

temporary facilities and equipment directly and necessarily 

related to the taking of fish and wildlife, provided these facilities 

are not detrimental to the purposes of the refuge. Special-use 

permits may be issued for tent frames, caches, smokehouses, 

and other facilities. Appropriate stipulations will be included in 

the special use permits to ensure protection of refuge resources. 

The following criteria will be considered in evaluating 

applications for temporary facilities: 

 Where feasible, they will be located in a manner to not 

displace or compete with existing public uses. 
Chapter 2: Refuge Management Direction and Alternatives 

2-42 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

 They will be located away from the vicinity of existing 

cabins. 

 They will be located on sites that are not currently popular 

campsites. 

 They will be located to minimize displacement of wildlife. 

The following conditions may be imposed on temporary-facility 

special use permits: 

 The time of occupancy will coincide with the state and/or 

federal hunting, fishing, and/or trapping season for the 

species for which the temporary facility is being used. 

 At the end of the specified occupancy, tents and other 

readily portable materials will be removed. 

 To the extent feasible, temporary structures will be built 

with materials that blend into and are compatible with the 

surrounding landscape. 

 To the extent feasible, temporary facilities will be screened 

from water and located so that they are as unobtrusive as 

possible when viewed from trails and areas of significant 

public use. 

2.20 Commercial-Use Management 

Commercial uses are activities involving use of a refuge or its 

resources for a profit. Subsistence uses are not included in 

commercial uses. Refer to section 2.15 for policies related to 

subsistence. 

Except for activities where specific property rights are held by 

entities other than the federal government (e.g., mining on valid 

claims under the 1872 Mining Law), or where specifically 

exempted by law, all commercial uses must comply with both 

the National Environmental Policy Act (NEPA) and the 

compatibility requirements of the National Wildlife Refuge 

System Administration Act. A written authorization (such as a 

special use permit) is required to conduct commercial activities 

on a refuge. Compliance with NEPA and a compatibility 

determination will be required prior to deciding whether to 

authorize a commercial use. Prior to authorizing any economic 

use of a natural resource, the refuge manager must determine 

that each economic use, except for proposed activities 

authorized by ANILCA, contributes to the achievement of 

refuge purposes or the National Wildlife Refuge System 

mission (50 CFR 29.1). See section 2.22 for restrictions on 

commercial activities within designated Wilderness Areas. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-43 

2.20.1 Mineral Exploration and Development 

Oil and Gas Assessment

Geological and geophysical studies, including subsurface core 

sampling and seismic activities, require special use permits with 

site-specific stipulations that ensure compatibility with refuge 

purposes and consistency with the management objectives of 

this Plan. Other than the rights reserved to the United States 

under Section 1010(a) of ANILCA, these activities will not be 

allowed in designated Wilderness. 

Oil and Gas Leasing

Oil and gas leasing may be allowed only in Intensive 

Management areas. These Refuges have no Intensive 

Management areas; a Plan revision would be necessary to 

reclassify lands into this category before leasing could occur. 

Oil and gas leasing will not be authorized until completion of the 

following: 

 An assessment of potential 

 A national interest determination 

 A compatibility determination, where applicable 

 A comprehensive conservation plan amendment 

During this process, the Service will seek the views of state and 

local governments and other interested parties, in accordance 

with Section 1008(b)(2) of ANILCA. 

If leasing is authorized, lease holders will be subject to federal 

leasing regulations (43 CFR 3100) and appropriate state 

regulations. Leases will be subject to stipulations on access, 

seasonal use, and site revegetation; operators would be required 

to use technology that minimizes impacts on fish, wildlife, and 

habitat. The Refuge will work closely with leaseholders to 

minimize adverse effects of mineral exploration and extraction 

on Refuges resources and recreation opportunities. 

Sand, Gravel, and Other Common Variety (Saleable) Minerals

Common variety minerals—such as sand, gravel, stone, 

limestone, pumice, pumicite, cinders, and clay—may be sold 

pursuant to the Materials Act of July 31, 1947 (30 U.S.C. 601, 

602), as amended. Regulations are found at 43 CFR 3600. 

Disposal is also authorized under the Refuge Revenue Sharing 

Act (16 U.S.C. 715s). See Part 612 FW 1 of the Service Manual 

(USFWS). Extraction may be authorized, where compatible, in 

Moderate Management areas to support construction and 

maintenance projects on or near refuge lands if no reasonable 

material sites exist off refuge lands. 
Chapter 2: Refuge Management Direction and Alternatives 

2-44 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Other Mineral Leasing

In general, mineral leasing is not allowed on refuge land. 

Geothermal leasing is not allowed on the Refuges under Section 

1014(c) of the Geothermal Steam Act (30 U.S.C. 1014). Coal 

mining is also prohibited, subject to valid existing rights, under 

Section 16 of the Federal Coal Leasing Amendment Act of 1975 

(30 U.S.C. 201 Notes) and the Surface Mining Control and 

Reclamation Act of 1977 (30 U.S.C. 1272; 43 CFR 3400.2). In 

specific cases of national need, however, mineral exploration, 

development, or extraction may be permitted under Section 

1502 of ANILCA. The President must determine that the 

national need for the mineral activity outweighs the other public 

values of the land. Any recommendation by the President would 

take effect only after enactment of a joint resolution by 

Congress. 

Alaska Mineral Resource Assessment Program

Section 1010 of ANILCA requires that all federal lands be 

assessed for their oil, gas, and other mineral potential, although 

Section 304(c) prohibits new hardrock mining on refuges. 

Mineral assessment techniques that do not have lasting 

impacts—such as side-scanning radar, trenching, and core 

drilling—may be allowed throughout the refuge. Special use 

permits issued to other government agencies or their 

contractors for assessment work would include stipulations to 

ensure that the assessment program is compatible with refuge 

purposes. For example, stipulations may limit access during 

nesting, calving, spawning, or other times when fish and wildlife 

may be especially vulnerable to disturbance. 

2.20.2 Commercial Recreation Services 

Air-taxi and water-taxi operators, wildlife-viewing guides, tour 

operators, wilderness guides, recreational fishing guides, biggame hunting guides, and others providing recreation services 

are required, under 50 CFR 27.97, to obtain special use permits 

to operate on refuge lands. Where the number of special use 

permits is limited, refuge managers will award permits 

competitively (see 50 CFR 36.41). Special use permits require 

compliance with all applicable laws and regulations (e.g., Coast 

Guard licensing regulations). Permit stipulations ensure that 

camps; travel methods; storage of food, fish, and game meat; 

and activities are compatible with refuge purposes and reduce 

the potential for impacts to resources and to other refuge users. 

If problems arise relating to commercial recreation activities—

such as disturbance of active nests, conflicts with subsistence 

use, chronic incidence of bears getting into food, or violations of 

state or federal regulations—the refuges may modify or 

terminate use under the special use permit stipulations. The 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-45 

Refuges will monitor the number and type of guides and 

outfitters operating in the refuge and the number of their 

clients and will, if necessary, further regulate use. 

Under Section 1307 of ANILCA, local preference is provided 

for all new commercial visitor services except guiding for 

recreational hunting and fishing. Regulations defining local 

preference are in 50 CFR 36.37. 

2.20.3 Commercial Fishing and Related Facilities 

Under Section 304(d) of ANILCA, the Service will continue to 

allow individuals with valid commercial fishing rights or 

privileges to operate on the Refuges. The use of campsites, 

cabins, motor vehicles, and aircraft on the Refuges in support of 

commercial fishing is subject to reasonable regulation. Section 

304(d) provides for restricting commercial fishing rights if the 

use is determined to be inconsistent with refuge purposes and

to be a “significant expansion of commercial fishing activities . . . 

beyond the level of such activities during 1979.” The Service 

recognizes that fishery levels are cyclic and will take that into 

consideration when applying the 1979-level criteria. Any new 

fishery and related facilities and equipment will have to meet 

the compatibility standard. 

Aquaculture, mariculture support facilities, and seafood 

processing plants will not be allowed. 

2.20.4 Commercial Harvest of Timber and Firewood 

Commercial harvest of timber and firewood will only be 

authorized under a special use permit and when necessary to 

fulfill overall refuge management objectives. Within Moderate 

and Minimal Management categories, commercial harvest of 

timber and firewood to accomplish management objectives will 

only occur when an approved refuge fire management plan 

identifies the need to reduce fuel loads in an area. Applicable 

federal and State of Alaska guidelines for timber management 

will be followed. 

2.20.5 Commercial Gathering of Other Resources 

Gathering of other resources (e.g., antlers and mushrooms) 

requires a special use permit under 50 CFR 27.51. 

2.20.6 Commercial Filming and Recording Activities 

It is Service policy to provide refuge access and/or assistance to 

firms and individuals in the pursuit of commercial visual and 

audio recordings. Such access or assistance will not be provided 

if visual and audio recordings are incompatible with refuge 

purposes or the mission of the National Wildlife Refuge System. 
Chapter 2: Refuge Management Direction and Alternatives 

2-46 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Commercial films, television production, or sound tracks made 

within refuges for other than news purposes require a special 

use permit or authorization (see 43 CFR 5.1). 

Commercial filming or recording activities such as videotaping, 

audio taping, and photography for the purpose of advertising 

products and services are subject to an A/V Production Permit 

(see USFWS Refuge Manual 8 RM Section 16). 

Permits are not required for still photography on refuge lands 

open to the general public (P.L. 106-206). 

2.20.7 Other Commercial Uses 

Generally, other commercial uses such as grazing, agriculture, 

and hydroelectric power development will not be allowed. An 

exception may be made for low-head or small run-of-the-river 

hydropower facilities. These may be authorized on a case-bycase basis. See section 2.16.6 for transmission lines, pipelines, 

and other rights-of-way addressed in Title XI of ANILCA. 

2.21 Environmental Contaminants 

Identification and Cleanup 

One goal of the National Wildlife Refuge System 

Administration Act is to maintain the biological integrity, 

diversity, and environmental health of the system. In support of 

this goal, the Service has studied environmental contaminants 

that may threaten trust species (i.e., those species for which the 

Service has primary jurisdiction) and other refuge resources. 

This work will continue as new concerns are identified and as 

funding allows. 

An assessment of known or suspected contaminants threats 

within the Refuges was completed in 2004 as part of the national 

Contaminants Assessment Process. A contaminant assessment 

report was prepared for the Refuges. 

When contaminants are identified on refuge lands, the Service 

will initiate discussions with the responsible party or parties to 

remedy the situation. If the Service caused the contamination, 

funds will be sought to define the extent and type of the 

contamination and to remedy it. Appropriate environmental 

regulations—including the Resource Conservation Recovery 

Act, Comprehensive Environmental Response and 

Compensation Liability Act, Oil Pollution Act of 1990, and State 

of Alaska regulations (e.g., 18 AAC 75)—would be followed 

during remediation work. 

All spills of petroleum products and hazardous materials must 

be reported to the Alaska Department of Environmental 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-47 

Conservation and to the National Response Center. Incidents 

also need to be reported to the U.S. Fish & Wildlife Service 

regional spill response coordinator. The refuge will refer to the 

U.S. Fish & Wildlife Service Region 7 Spill Response 

Contingency Plan when responding to spills. 

2.22 Management of Areas with 

Special Designation 

2.22.1 Management of Designated Wilderness 

The Becharof Wilderness Area will be managed in accordance 

with the Wilderness Act of 1964, as modified by provisions of 

ANILCA; Service guidelines as found in 6 RM 8 of the Refuge 

System Manual (Part 610 of the Service Manual, when 

approved); and regional policy. Maintaining wilderness values 

and resources, preserving the wilderness character of the 

biological and physical resources, and providing opportunities 

for research and recreation are the management focuses for 

designated Wilderness. 

A minimum-requirements analysis will be conducted for 

management activities proposed within the Wilderness Area. 

This two-step process involves determining if an essential task 

should be conducted in the Wilderness Area and then 

determining the combination of methods, equipment, or 

administrative practices necessary to successfully and safely 

administer the refuge and accomplish Wilderness management 

objectives. 

Certain activities are legislatively prohibited in designated 

Wilderness, including oil, gas, and other mineral leasing and 

most surface-disturbing activities. Other activities—including 

subsistence use, access for traditional activities, and traditional 

commercial recreation activities (e.g., guiding and outfitting)—

will continue to be allowed where compatible with Wilderness 

management and refuge and system purposes. Other 

commercial enterprises—such as fishery-enhancement activities 

with a primary purpose of enhancing commercial fishing 

operations—are not allowed. 

Generally, motorized and mechanized equipment and transport 

are prohibited by the Wilderness Act. Several exceptions, 

however, were identified in ANILCA: 

 For access for subsistence purposes (Section 811) 

 For access for traditional activities and to and from villages 

and homesites (Section 1110[a]) 
Chapter 2: Refuge Management Direction and Alternatives 

2-48 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

 For access to state- or privately owned lands (including 

subsurface rights), valid mining claims, or other valid 

occupancy (Section 1110 [b]) 

 For mineral assessment purposes, as part of the Alaska 

Mineral Resource Assessment Program (Section 1010) 

Details of these provisions can be found under the appropriate 

headings in this section of this conservation plan. 

Under 50 CFR 35.5(b), regional policy (RW-16) allows local 

residents engaged in subsistence activities to use chainsaws. 

50 CFR 36.39(c) specifies that off-road vehicles (ORVs) with a 

maximum weight of 650 pounds may be used for subsistence 

purposes. Other motorized and mechanized equipment not 

related to transportation (such as generators and water pumps) 

are not allowed. 

Granting rights-of-way for transportation or utility systems 

through designated Wilderness requires a Presidential 

recommendation for Congressional approval (Section 1106[b] of 

ANILCA) (see section 2.16.6). 

A step-down Wilderness Stewardship plan will be prepared for 

the Becharof Wilderness to address in greater detail the 

resources, uses, and management of the Wilderness Area. 

Specific details will be included on how the broad management 

directions provided in the Conservation Plan will be applied to 

protect the specific wilderness characteristics identified in the 

Plan. The step-down plan would be prepared in cooperation with 

the State of Alaska and would include appropriate public 

involvement. 

2.22.2 Mount Veniaminof National Natural Landmark 

Mount Veniaminof was determined to be eligible for Natural 

Landmark status in 1967. It was so designated by the Secretary 

of the Interior in August 1970. This unique active volcano is 

located in the Chignik Unit of the Alaska Peninsula Refuge. Its 

peak lies about 50 miles east-northeast of Port Moller on Bristol 

Bay and 40 miles west-southwest of Chignik Bay on the Pacific. 

It is approximately 450 miles southwest of Anchorage. 

Although the National Natural Landmarks Program is 

administered by the National Park Service, the Mount 

Veniaminof National Natural Landmark is administered by the 

Fish & Wildlife Service. Designation recognizes the national 

significance of the property and encourages its preservation 

without requiring acquisition. Designation does not dictate use 

of the property. The Minimal Management category currently 

applied to the landmark preserves its values. The objective of 

the program is long-term preservation through voluntary 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-49 

commitment of public and private owners to protect the 

outstanding values of the area. 

2.23 Administration of Alaska 

Peninsula and Becharof 

National Wildlife Refuges 

2.23.1 Administrative Sites and Visitor Facilities 

Administrative sites include temporary and permanent field 

camps, residences, offices, and associated storage, 

communication, and transportation facilities. The type of 

administrative site and level of development will be consistent 

with the management intent of the management category in 

which they are constructed. Administrative field camps or other 

administrative facilities within Minimal and Wilderness 

management categories will only be allowed when required to 

meet management objectives, when no reasonable alternative 

sites exist and when the facilities are essential to protect the 

health and safety of employees. New facilities would only be the 

minimum required to meet long-term needs. 

Fuel storage or other hazardous material storage in conjunction 

with administrative sites will meet all federal and state 

requirements for spill containment and storage. Hazardous 

materials stored within the Wilderness Management category 

lands will be in small (55-gallon or less) containers. 

Under Section 1306 of ANILCA, the Secretary of the Interior 

may establish administrative sites and visitor facilities, either 

within or outside the boundaries of a conservation system unit, 

in accordance with the unit’s management plan and for the 

purposes of ensuring the preservation, protection, and proper 

management of said unit. This section further states that to the 

“extent practicable and desirable, the Secretary shall attempt to 

locate such sites and facilities on Native lands in the vicinity of 

the unit.” 

Department of Interior guidelines, developed in 1995, 

implementing Section 1306 of ANILCA require that prior to 

initiating a search for an administrative site or visitor facility, 

site-selection criteria be developed, with public input, and all 

proposals be evaluated according to the site-selection criteria. If 

it is determined that Native lands satisfy the site-selection 

criteria and are desirable and practicable for the intended use, 

the highest-ranking Native lands shall be selected as the 

preferred site, subject to a specific site evaluation. If no Native 

lands satisfy the site-selection criteria, the highest-ranking 

parcel will become the preferred site. Public comments will be 

considered prior to making a final decision. 
Chapter 2: Refuge Management Direction and Alternatives 

2-50 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Applicability of Refuge Regulations to Off-Refuge Administrative and 

Visitor Facility Sites

Part 50 of CFR 36.1(c) authorizes the Service to enforce 

regulations concerning public safety and protection of 

government property, as well as State of Alaska fish and wildlife 

regulations, on administrative and visitor facility sites that may 

be held in fee or less-than-fee title and are either inside or 

outside the approved boundaries of any Alaska national wildlife 

refuge. 

2.23.2 Refuge Management Plans 

Some management programs are addressed in sufficient detail 

in the conservation plan to be integrated directly into the 

budgetary process. For other programs, it may be necessary to 

prepare step-down management plans to implement general 

strategies identified in the conservation plan. Additional 

information on the step-down planning process can be found in 

Part 602, FW 3, of the Service Manual (USFWS). 

The following step-down management plans are required for 

these Refuges: 

Station Safety Plan........................ Reviewed annually 

Cultural Resources Guide ............ Completed in 1996, to be revised in 2008 

Environmental Education Plan .... Completed in 1991, reviewed annually 

Facilities Management ................. Completed in 1997, to be revised in 2007 

Fisheries Management................. Updated in 1994, to be revised in 2008 

Habitat Inventory ........................... To be completed by 2007 

Land Protection.............................. Completed in 2002 

Public Use Management.............. Completed in 1994, revised in this 

Conservation Plan 

Water Resources........................... To be completed by 2010 

Wildlife Inventory .......................... To be completed by 2007 

Wilderness Stewardship.............. To be completed by 2010 

2.24 Management Categories 

Three management categories—Moderate Management, 

Minimal Management, and Wilderness—are used to describe 

management levels on these refuges. A management category is 

used to define the level of human activity appropriate to a 

specific area of the refuge. It is a set of refuge management 

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

existing and potential uses, to facilitate management and the 

accomplishment of refuge purposes and goals. Figure 2-1 

depicts the management categories as they apply to the 

Refuges. The management activities table (Table 2-1)shows 

those management activities, public uses, commercial uses, and 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-51 

facilities that may be allowed in each management category and 

under what conditions. 

2.24.1 Moderate Management 

Moderate Management is meant to allow compatible 

management actions, public uses, commercial uses, and facilities 

that may result in changes to the natural environment that are 

temporary, or permanent, but small in scale and that do not 

disrupt natural processes. The natural landscape is the 

dominant feature of Moderate Management areas, although 

signs of human actions may be visible. 

Management actions in the category of Moderate Management 

will focus on maintaining, restoring, or enhancing habitats to 

maintain healthy populations of plants and animals where 

natural processes take over. In general, management facilities, 

both temporary and permanent, will be allowed for the purposes 

of gathering data needed to understand and manage resources 

and natural systems of the Refuges. Structures will be designed 

to minimize overall visual impact. 

Public facilities provided in Moderate Management will, while 

protecting habitats and resources, allow the public to enjoy and 

use refuge resources in low numbers over a large area or they 

will encourage the short-term enjoyment of the Refuges in 

focused areas. The emphasis is on small facilities that encourage 

outdoor experiences. Facilities such as public use cabins, rustic 

campgrounds, kiosks, viewing platforms, trails, and toilets may 

be provided. Facilities will be designed to blend with the 

surrounding environment. The Refuges have one Moderate 

Management area in which ORV use in allowed for recreation 

purposes (i.e., Yantarni Bay). 

Compatible economic activities may be allowed where impacts 

to natural processes and habitats are temporary (e.g., facilities 

in support of guiding and outfitting services such as tent 

platforms or cabins that encourage enhanced public use). All 

economic activities and facilities require authorizations such as 

special use permits. 

2.24.2 Minimal Management 

Minimal Management is designed to maintain the natural 

environment with very little evidence of human-caused change. 

Habitats should be allowed to change and function through 

natural processes. Administration will ensure that the resource 

values and environmental characteristics identified in the 

conservation plan are conserved. Management actions that 

change existing habitats should be designed and implemented 

so that a natural appearance is maintained. Public uses, 
Chapter 2: Refuge Management Direction and Alternatives 

2-52 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

economic activities, and facilities should minimize disturbance to 

habitats and resources. Ground-disturbing activities are to be 

avoided whenever possible. 

Management actions in this category focus on understanding 

natural systems and monitoring the health of refuge resources. 

Generally, no permanent structures are allowed (except cabins). 

Temporary structures may be allowed in situations in which 

removal is planned after the period of authorized use and the 

site can be rehabilitated using plants native to the immediate 

area. Existing cabins may be allowed for administrative, publicuse, subsistence, or commercial or economic (e.g., guiding) 

purposes. New subsistence or commercial cabins may be 

authorized if no reasonable alternative sites exist. Public-use or 

administrative cabins may be constructed if necessary for 

health and safety. 

Public use of the Refuge for wildlife-dependent recreation and 

subsistence activities is encouraged. Public-use facilities are not 

generally provided. Mechanized and motorized equipment may 

be allowed when the overall impacts are temporary or where its 

use furthers management goals. 

Compatible economic activities may be allowed where the 

evidence of those activities does not last past the season of use, 

except as noted in the preceding discussion of cabins. The 

primary economic activities are likely to be guiding and 

outfitting of recreation activities such as hunting, fishing, 

hiking, river floating, and sightseeing. All economic activities 

and facilities require authorizations such as special use permits. 

2.24.3 Wilderness 

This management category applies only to the Becharof 

Wilderness Area, designated by Congress as a unit of the 

National Wilderness Preservation System. Areas proposed for 

Wilderness designation will be managed under minimal 

management, consistent with ANILCA Section 1317(c) and with 

Service policy. Designated Wilderness will be managed under 

the Wilderness Act of 1964 and the exceptions provided by 

ANILCA. Because Wilderness units are part of a nationwide, 

multi-agency system, the Service recognizes that 

responsibilities for managing refuge Wilderness go beyond the 

mission of the Service and that the purposes of the Wilderness 

Act are within and supplemental to the other purposes for which 

individual refuges were established. 

 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-55 

The history and intent behind the Wilderness Act make 

Wilderness more than just another category of land 

management. Wilderness encourages having a broadened 

perspective of the refuge landscape, one that extends beyond 

managing it solely as wildlife habitat. Wilderness is managed as 

an area “retaining its primeval character and influence.” In 

addition, Wilderness provides human visitors with opportunities 

for solitude and primitive recreation, which may be 

characterized in terms of experiential dimensions such as 

discovery, self-reliance, and challenge. 

Wilderness Areas are managed to preserve their experiential 

values as well as aesthetic, scientific, and other related values. 

Research has shown that some values of Wilderness extend 

beyond their boundaries to people who may never visit but who 

benefit from the protection of natural ecological processes—

benefits such as clean air and water and the simple knowledge 

that such places exist. In managing Wilderness, managers are 

encouraged to consider in decision-making these off-site and 

symbolic values as well as tangible resource values. 

Permanent structures are generally prohibited; excepted are 

historic and cultural resources and, in certain circumstances, 

administrative structures or cabins that predate ANILCA, 

cabins that are necessary for trapping, and public-use cabins 

necessary for the protection of human health and safety. 

Facilities and structures are rustic and unobtrusive in 

appearance. 

Compatible commercial uses of Wilderness Areas are generally 

limited to those activities that facilitate enjoyment of the areas 

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

commercial activities and facilities require authorizations (e.g., 

special use permits). 

A variety of management actions may be taken to maintain the 

wilderness values of the area. Actions such as prescribed fires 

or invasive-species control may be conducted when it is 

necessary to protect life or property or when it is necessary to 

restore, maintain, or protect wilderness values. 

2.24.4 Special Management 

Although there are none on the Refuges, Special Management 

lands are managed within one of the categories described 

previously but have additional requirements because of their 

status. An example of Special Management areas would be 

Research Natural Areas. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-56 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Management of Selected Lands

The Service retains management responsibility for lands 

selected but not yet conveyed to Native village and regional 

corporations or to the State of Alaska. The appropriate Native 

corporation or agency of the State of Alaska will be contacted 

and its views considered prior to implementing a management 

program or issuing a permit involving these lands. Fees 

collected for special use or right-of-way permits will be held in 

escrow until the selected lands are conveyed or relinquished. 

Management directions for these lands will be the same as for 

adjacent refuge lands. 

Alaska Native Claims Settlement Act Section 22(g)

Section 22(g) of the Alaska Native Claims Settlement Act 

(ANCSA Alaska Native Claims Settlement Act) provides that 

those refuge lands established prior to December 18, 1971, that 

are conveyed under that act remain subject to the laws and 

regulations governing the use and development of the refuge. 

Activities occurring on these lands are subject to the 

compatibility standard, as described in 50 CFR 25.21(b)(1). In 

addition, the Service retains the right of first refusal on village 

corporation lands if these lands are ever offered for sale. 

The Refuges will work with the landowner to balance the 

commercial development and use of 22(g) lands with the 

protection of resources important to the purposes of the 

Refuges. 

2.24.5 Management Categories Table 

Explanatory Notes

The descriptions of the management categories reflect a clear 

distinction in the level of action, type of action, and constraints 

that may be placed on activities or development within the 

management categories. They should be used to reflect the 

desired future condition of the area when site-specific proposals 

are being evaluated. Activities allowed or authorized will be 

managed differently depending on the management category in 

which they occur. 

Key for Management Categories Table

The following terms are used: 

NEPA analysis—All activities, uses, and facilities proposed for 

a refuge that have the potential to result in significant effects on 

the environment require an analysis of potential environmental 

impacts under the National Environmental Policy Act. This 

analysis may be documented as a categorical exclusion (CE), an 

environmental assessment (EA), or an environmental impact 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-57 

statement (EIS), depending on the nature of the proposed 

project. 

Compatibility—All activities, uses, and facilities allowed on a 

refuge, except management actions undertaken by or for the 

Service, must be compatible with the purposes of the refuge and 

the mission of the National Wildlife Refuge System. The 

analysis that occurs results in a compatibility determination. 

Management activities undertaken by the Service or by 

volunteers, cooperators, or contractors working for the Service, 

with limited exception, are exempt from compatibility review 

(Part 603, Compatibility, of the Service Manual). 

Regulations—All activities, uses, and facilities allowed on a 

refuge must comply with any applicable regulations, as 

published in the Code of Federal Regulations (CFR). 

Regulations are developed by the Service through a public 

process to implement the legal authorities under which the 

Service manages the National Wildlife Refuge System. For 

more information on these regulations, see the appropriate topic 

in the Management Directions section (2.3)of this chapter. For 

some activities, other federal agency and/or state regulations 

may also apply. 

Temporary—A continuous period of time not to exceed 12 

months, except as specifically provided otherwise. Special use 

permits or other authorizations may prescribe a longer period 

of time, but the structures or other human-made improvements 

need to be readily and completely dismantled and removed from 

the site when the period of authorized use terminates. 

The following are definitions for terms used in the table. 

Allowed—Activity, use, or facility is allowed under existing 

NEPA analysis, compatibility determinations, and applicable 

laws and regulations of the Service, other federal agencies and 

the State of Alaska. 

May be allowed—Activity, use or facility may be allowed 

subject to site-specific NEPA analysis (including CEs, EAs, and 

EISs), a specific compatibility determination, and compliance 

with all applicable laws and regulations of the Service, other 

federal agencies, and the State of Alaska. 

May be authorized—Activity, use, or facility may be allowed; 

a special use permit or other authorization is required. 

Not allowed—Activity, use, or facility is not allowed. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-58 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

The following guidelines apply to all activities, uses, and 

facilities allowed on a refuge: 

Area or time restrictions—All activities and uses allowed on a 

refuge may be restricted in certain areas or at certain times, at 

the discretion of the refuge manager and with the appropriate 

level of public involvement, by emergency (short-term) or 

permanent regulation, if necessary to protect refuge resources 

or human health and safety. 

Management emergencies—Activities, uses, and facilities not 

allowed on a refuge or in specific management categories may 

be allowed if naturally occurring or human-caused actions 

adversely affect refuge resources or threaten human health and 

safety. 

Table 2-1 Activities, public uses, commercial uses, and facilities by management category 

(The shaded rows describe activities that currently do not occur on the refuges covered by this plan.) 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

ECOSYSTEM, HABITAT, AND FISH AND WILDLIFE MANAGEMENT 

Ecosystem and Landscape Management 

Collecting Information on and Monitoring 

Ecosystem Components 

Data gathering, monitoring, and maintaining 

a comprehensive database of selected 

ecosystem components (plants, animals, fish, 

water, air). 

Allowed; see 

sections 2.14.1 

and 2.14.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Service—

Allowed 

ADF&G—

Coordinate with 

refuge manager; 

see sections 

2.11.1 and 2.14 

Research and Management 

Access and collection of data necessary for 

management decisions or to further science. 

Other 

researchers—

May be allowed 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Research and Management Facilities 

May be permanent or temporary structures 

or camps, including weirs, counting towers, 

and sonar counters.

May be allowed; 

see sections 

2.13.1 and 2.23.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

must be 

consistent with 

sections 2.24.3 

and 2.22 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-59 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Fish and Wildlife Habitat Management 

Describing, Locating, and Mapping 

Habitats 

Development of quantitative, written, and 

graphic descriptions of fish and wildlife 

habitat, including water, food, and shelter 

components.

Allowed; see 

section 2.14.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Habitat Management 

Mechanical Treatment Activities such as 

cutting, crushing, or mowing of vegetation; 

water control structures; fencing; artificial 

nest structures. 

May be allowed; 

see section 2.13.1

Not allowed; 

with exceptions 

consistent with 

section 2.24.2 

Same as 

Minimal 

Management; 

see also section 

2.22 

Chemical Treatment Use of chemicals to 

remove or control nonnative species. 

May be allowed; 

see sections 

2.13.1 and 2.13.3 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Manual Treatment Use of hand tools to 

remove, reduce, or modify hazardous plant 

fuels, or exotic plant species or to modify 

habitats (e.g., remove beaver dams). 

Allowed; see 

section 2.13.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Aquatic Habitat Modifications 

Activities such as streambank restoration, 

passage structures, fish barriers, or removal 

of obstacles that result in physical 

modification of aquatic habitats to maintain 

or restore native fish species. 

May be allowed; 

see sections 

2.13.1 and 2.14.10

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

must be 

consistent with 

constraints in 

section 2.24.3; 

see also section 

2.22 

Fire Management—Prescribed Fires 

Fire ignited by management actions to meet 

specific management objectives. 

May be allowed; 

subject to 

section 2.13.2 

Same as 

Moderate 

Management 

consistent with 

constraints in 

section 2.24.2 

Same as 

Moderate 

Management; 

consistent with 

constraints in 

sections 2.24.3 

and 2.22 

Fire Management—Wildland Fire Use 

The planned use of naturally occurring fires 

to meet management objectives. 

May be allowed; 

subject to 

section 2.13.2 

Same as 

Moderate 

Management; 

limited to 

constraints in 

section 2.24.2 

Same as 

Moderate 

Management; 

limited to 

constraints in 

sections 2.24.3 

and 2.22 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-60 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Fire Management—Fire Suppression 

Management actions intended to protect 

identified resources from a fire, extinguish a 

fire, or alter a fire’s direction of spread 

Allowed; subject 

to section 2.13.2 

Same as 

Moderate 

Management; 

see also section 

2.24.2 

Same as 

Moderate 

Management; 

see also sections 

2.24.3 and 2.22 

Weed Control 

Monitoring, extirpation, control, removal 

and/or relocation and other management 

practices for pest and nonnative plant 

species. 

May be allowed; 

see section 2.13.3 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Water Quality and Quantity Management 

Monitoring of water quality and quantity to 

identify baseline data and for management 

purposes; includes installation of gauging 

stations. 

Allowed; see 

section 2.12.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Fish and Wildlife Population Management 

Reintroduction of Species 

The reintroduction of native species to 

restore natural diversity of fish, wildlife, and 

habitats. 

May be allowed; 

see section 2.14.6 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Fish and Wildlife Control 

The control, relocation, sterilization, removal, 

or other management of native species, 

including predators, to maintain natural 

diversity of fish, wildlife, and habitats; favor 

other fish or wildlife populations; protect 

reintroduced, threatened, or endangered 

species; or to restore depleted native 

populations. 

May be allowed; 

see section 2.14.6

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Nonnative Species Management 

The removal or control of nonnative species 

(including predators). 

May be allowed; 

see section 2.14.8

Same as 

Moderate 

Management; 

use leastintrusive 

methods 

Same as 

Minimal 

Management; 

see also section 

2.22 

Pest Management and Disease Prevention 

and Control 

Relocation or removal of organisms that 

threaten human health or survival of native 

fish, wildlife, or plant species. Management 

practices directed at controlling pathogens 

that threaten fish, wildlife, and people such as 

rabies and parasite control.

May be allowed; 

see section 2.14.9

Same as 

Moderate 

Management

Same as 

Moderate 

Management; 

see also section 

2.22 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-61 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Fishery Restoration 

Actions taken to restore fish access to 

spawning and rearing habitat or actions 

taken to restore populations to historic levels. 

Includes harvest management, escapement 

goals, habitat restoration, stocking, egg 

incubation boxes, and lake fertilization. 

May be allowed; 

see section 

2.14.10 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Fishery Restoration Facilities 

Fisheries facilities may be permanent or 

temporary and may include hatcheries, fish 

ladders, fish passages, fish barriers, and 

associated structures. 

May be 

authorized; see 

sections 2.14.10 

and 2.23.1 

Same as 

Moderate 

Management; 

see also section 

2.24.2 

Same as 

Moderate 

Management; 

see also sections 

2.24.3 and 2.22 

Fishery Enhancement 

Activities applied to a fish stock to 

supplement numbers of harvestable fish to a 

level beyond what could be naturally 

produced based upon a determination or 

reasonable estimate of historic levels. 

May be allowed; 

see section 

2.14.11 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Fishery Enhancement Facilities 

May be permanent or temporary and may 

include hatcheries, egg incubation boxes, fish 

ladders, fish passages, fish barriers, and 

associated structures. 

May be 

authorized, see 

sections 2.14.11 

and 2.23.1 

Same as 

Moderate 

Management; 

see also section 

2.24.2 

Same as 

Moderate 

Management; 

see also sections 

2.24.3 and 2.22 

Native Fish Introductions 

Movement of native fish species within a 

drainage on the refuge to areas where they 

have not historically existed. 

May be allowed; 

see section 2.14.6

Not allowed Same as 

Minimal 

Management 

Nonnative Species Introductions 

Introduction of species not naturally 

occurring within a watershed.

Not allowed; see 

section 2.14.6 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

SUBSISTENCE 

Fishing, Hunting, Trapping, and Berry 

Picking 

The taking of fish and wildlife and other 

natural resources for personal consumption, 

as provided by law. 

Allowed; see 

section 2.15 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Collection of House Logs and Firewood 

Harvesting live standing timber greater than 

6 inches diameter at breast height for 

personal or extended family use.

May be 

authorized; see 

section 2.15 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Collection of House Logs and Firewood 

Live trees less than 3 inched diameter at 

breast height and dead standing or down 

timber for personal or extended family use.

Allowed; see 

section 2.15 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-62 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Collection of House Logs and Firewood 

Live trees between 3 and 6 inches diameter 

at breast height for personal or extended 

family use.

May be 

authorized; see 

section 2.15 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Collection of Other Plant Materials 

Harvesting trees less than 6 inches diameter 

at breast height for trapping and other 

purposes; harvesting grass, bark, other plant 

materials used as food, in making 

handicrafts, or for other subsistence 

purposes. 

Allowed; see 

section 2.15 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Access 

Use of snowmachines, motorboats, and other 

means of surface transportation traditionally 

employed for subsistence purposes.

Allowed; see 

section 2.15.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Temporary Facilities 

Establishment and use of tent platforms, 

shelters, and other temporary facilities and 

equipment directly related to the taking of 

fish and wildlife.

Allowed; see 

section 2.19.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Subsistence Cabins See CABINS and section 2.19.1

ACCESS (restrictions subject to provisions of Section 1110 of ANILCA; access for subsistence purposes 

discussed in SUBSISTENCE section) 

Nonmotorized 

Foot Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Dogs and Dog Teams Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Other Domestic Animals 

Includes horses, mules, llamas, and other 

domestic animals. 

Allowed, see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Bicycles 

Includes all types of bicycles (e.g., road, 

BMX, mountain)

Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Nonmotorized Boats 

Includes canoes, kayaks, rafts, etc.

Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Motorized 

Motorboats 

Includes inboard and outboard motor power 

boats, including jet boats; does not include 

jet-driven personal watercraft, air boats, and 

air-cushion vehicles.

Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-63 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Highway Vehicles May be allowed 

on designated 

roads. 

Not allowed Same as 

Minimal 

Management 

Off-Road Vehicles (All-Terrain Vehicles) 

Excludes air boats and air-cushion vehicles

Allowed see 

section 2.16.2 

Not allowed; see 

also section 

2.15.1 

Same as 

Minimal 

Management 

Airplanes 

Fixed-wing aircraft such as float planes and 

wheeled planes

Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Helicopters 

Includes all rotary-wing aircraft 

May be 

authorized; see 

section 2.16.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

must be 

consistent with 

sections 2.24.3 

and 2.22 

Snowmachines (Snowmobiles) 

A self-propelled vehicle intended for off-road 

travel primarily on snow having a curb 

weight of not more than 1,000 pounds (450 

kg), driven by track or tracks in contact with 

the snow.

Allowed; see 

sections 2.16.1 

and 2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

PUBLIC USE, RECREATION, and OUTREACH ACTIVITIES—Note: Also see ACCESS section 

Hunting*, Fishing*, Trapping, Walking, 

Hiking, Camping at Undeveloped Sites, 

Wildlife Observation*, and Dog Sledding 

Note: * = priority public use

Allowed; see 

sections 2.4 and 

2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Wildlife Photography* and General 

Photography—Also see COMMERCIAL 

USES 

Note: * = priority public use

Allowed; see 

sections 2.4 and 

2.17 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Boating and Snowmachining 

Motorized and nonmotorized boating 

(excluding air boats and air-cushion vehicles) 

and snowmachining. Also see ACCESS.

Allowed; see 

sections 2.4, 2.17, 

and 2.16.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Interpretation*, Environmental 

Education*, and other Outreach Activities 

Note: * = priority public use

Allowed; see 

sections 2.24.1 

and 2.18 

Same as 

Moderate 

Management; 

see sections 

2.24.2 and 2.18 

Same as 

Moderate 

Management; 

see sections 

2.24.3 and 2.18 

PUBLIC USE and RECREATION FACILITIES 

Recreation Facilities 

Facilities provided by the Service

May be allowed; 

see sections 

2.24.1 and 2.19 

Same as 

Moderate 

Management see 

sections 2.24.2 

and 2.19 

Same as 

Moderate 

Management; 

see sections 

2.24.3, 2.19, and 

2.22 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-64 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

All-Weather Roads 

and associated developments, including 

bridges.

May be allowed; 

see section 2.24.1

Not allowed Same as 

Minimal 

Management 

Unimproved Roads Allowed; see 

section 2.24.1 

Not allowed Same as 

Minimal 

Management 

Off-Road Vehicle (All-Terrain Vehicle) 

Trails and Routes 

May be allowed; 

see section 2.24.1

Not allowed Same as 

Minimal 

Management 

Roadside Exhibits and Waysides May be allowed; 

see section 2.24.1

Not applicable Not applicable 

Constructed and Maintained Airstrips May be allowed; 

see section 2.24.1

Not allowed Same as 

Minimal 

Management 

Cleared Landing Strips and Areas May be allowed; 

see section 2.24.1

Same as 

Moderate 

Management 

Not allowed; see 

also section 2.22 

Constructed Hiking Trails 

Includes bridges, boardwalks, trailheads, and 

related facilities

May be allowed; 

see sections 

2.24.1 and 2.19 

Same as 

Moderate 

Management; 

see sections 

2.24.2 and 2.19 

Same as 

Moderate 

Management; 

see sections 

2.24.3, 2.19, and 

2.22 

Designated Hiking Routes 

Unimproved and unmaintained trails; may be 

designated by signs, cairns, and/or on maps.

Allowed; see 

sections 2.24.1 

and 2.19 

Same as 

Moderate 

Management; 

consistent with 

sections 2.24.2 

and 2.19 

Same as 

Moderate 

Management; 

consistent with 

sections 2.24.3, 

2.19, and 2.22 

Boat Launches and Docks 

Designated sites for launching and storing 

watercraft.

May be allowed; 

see sections 

2.24.1 and 2.19 

Same as 

Moderate 

Management see 

section 2.24.2 

Same as 

Moderate 

Management; 

see sections 

2.24.3 and 2.22 

Visitor Contact Facilities 

A variety of staffed and unstaffed facilities 

providing information on the refuge and its 

resources to the public; facilities range from 

visitor centers to kiosks and signs.

May be allowed; 

see section 2.19 

consistent with 

direction in 

section 2.24.1 

Same as 

Moderate 

Management 

consistent with 

direction in 

section 2.24.2 

Generally not 

allowed except 

as provided in 

section 2.22; see 

also section 0 

Hardened Campsites 

Areas where people can camp that are 

accessible by vehicle or on foot but where the 

only facilities provided are for public health 

and safety and/or resource protection; may 

include gravel pads for tents, hardened trails, 

and/or primitive toilets.

Allowed; see also 

section 2.24.1 

Same as 

Moderate 

Management; 

see also section 

2.24.2 

Same as 

Moderate 

Management 

when consistent 

with sections 

2.24.3 and 2.22 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-65 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Temporary Facilities 

Includes tent frames, caches, and other 

similar or related facilities; does not include 

cabins. See also SUBSISTENCE, 

ADMINISTRATIVE FACILITIES, and 

COMMERCIAL USES.

Allowed; see 

section 2.19.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

CABINS (and other related structures such as outdoor toilets, and fish-drying racks) 

Public Use Cabin 

A cabin administered by the Service and 

available for use by the public; intended only 

for short-term public recreation use and 

occupancy.

Existing cabins 

allowed to 

remain; new 

cabins may be 

allowed; see 

section 2.24.1 

Same as 

Moderate 

Management 

consistent with 

section 2.24.2 

Same as 

Moderate 

Management, 

consistent with 

sections 2.24.3 

and 2.22 

Administrative Cabin 

Any cabin primarily used by refuge staff or 

other authorized personnel for the 

administration of the refuge.

May be allowed; 

see section 2.24.1

Same as 

Moderate 

Management, 

consistent with 

section 2.24.2 

Same as 

Moderate 

Management, 

consistent with 

sections 2.24.3 

and 2.22 

Subsistence Cabin 

Any cabin necessary for health and safety 

and to provide for the continuation of ongoing 

subsistence activities; not for recreation use.

Existing cabins 

allowed; new 

cabins may be 

authorized; see 

section 2.24.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Commercial Cabin 

Any cabin that is used in association with a 

commercial operation, including commercial 

fishing activities and recreational guiding 

services.

Existing cabins 

allowed to 

remain, new 

cabins may be 

authorized; see 

section 2.24.1 

Same as 

Moderate 

Management 

Existing cabins 

(predesignation)—

same as 

Moderate 

Management; 

new cabins not 

allowed. 

Other Cabins 

Cabins associated with authorized uses by 

other government agencies.

May be allowed May be allowed, 

consistent with 

section 2.24.2 

Same as 

Moderate 

Management, 

consistent with 

sections 2.24.3 

and 2.22 

ADMINISTRATIVE FACILITIES 

Administrative Field Camps 

Temporary facilities used by refuge staff and 

other authorized personnel to support 

individual (generally) field projects; may 

include tent frames and temporary/portable 

outhouses, shower facilities, 

storage/maintenance facilities, and caches.

May be allowed; 

see section 2.23.1

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

consistent with 

sections 2.24.3 

and 2.22 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-66 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Administrative Field Sites 

Permanent facilities used by refuge staff or 

other authorized personnel for the 

administration of the refuge. Includes 

administrative cabins and related structures 

(see CABINS above) and larger multi-facility 

administrative sites necessary to support 

ongoing field projects, research, and other 

management activities. Temporary facilities, 

to meet short-term needs, may supplement 

the permanent facilities at these sites.

Use of existing 

sites allowed, 

including 

replacement of 

existing facilities 

as necessary; 

new sites may be 

allowed; see 

section 2.23.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

2.22 

Refuge Administrative Office Complex 

Facilities necessary to house refuge 

operations, outreach, and maintenance 

activities and associated infrastructure; 

includes staff offices, storage, maintenance, 

and other facilities, parking lots, and so forth.

Not allowed Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Hazardous Materials Storage 

Sites including appropriate structures and 

equipment necessary for the storage and 

transfer of fuels and other hazardous 

materials used for administrative purposes; 

must be in compliance with all federal and 

state requirements.

May be allowed; 

see section 2.23.1

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also sections 

2.24.3 and 2.22 

Residences 

Residential housing for refuge staff and their 

families; includes single- and multi-family 

dwellings. 

Not allowed Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Bunkhouses 

Quarters to house temporary and similar 

employees, volunteers, visitors, and other 

agency personnel.

May be allowed; 

see section 2.23.1

Not allowed Same as 

Minimal 

Management 

Boat Launching Sites and Docks See PUBLIC-USE FACILITIES 

Float-Plane Bases 

Improved sites for docking and storage of 

float-equipped aircraft

May be allowed; 

see section 2.23.1

Not allowed Same as 

Minimal 

Management 

Aircraft Hangars 

Facilities for storage of aircraft

Not allowed Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Radio Repeater Sites 

Sites used to maintain radio communications 

equipment; may include helispots for access.

May be allowed; 

see section 2.23.1

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

consistent with 

sections 2.24.3 

and 2.22 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-67 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

COMMERCIAL USES (Does not include subsistence use; see SUBSISTENCE section of this table. Except as 

specifically noted, a written authorization in the form of a special use permit or other document is required for 

economic use of a refuge.) 

MINERAL EXPLORATION 

Surface Geological Studies 

Includes surface rock collecting and 

geological mapping activities (includes 

helicopter or fixed-wing access). 

May be 

authorized; see 

section 2.20.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Geophysical Exploration and Seismic 

Studies 

Examination of subsurface rock formations 

through devices that set off and record 

vibrations in the earth. Usually involves 

mechanized surface transportation, but may 

be helicopter supported; includes studies 

conducted for the Department of the 

Interior.

May be 

authorized; see 

section 2.20.1 

Same as 

Moderate 

Management 

Not allowed 

except as 

discussed in 

section 2.20.1 

Core Sampling 

Using helicopter-transported motorized drill 

rig to extract subsurface rock samples; does 

not include exploratory wells; includes 

sampling conducted for Department of the 

Interior.

May be 

authorized; see 

section 2.20.1 

Same as 

Moderate 

Management 

Not allowed 

except as 

discussed in 

section 2.20.1 

Other Geophysical Studies 

Helicopter-supported gravity and magnetic 

surveys and other minimal-impact activities 

that do not require mechanized surface 

transportation.

May be 

authorized; see 

section 2.20.1 

Same as 

Moderate 

Management 

Not allowed 

except as 

discussed in 

section 2.20.1 

Oil and Gas Leasing 

Leasing, drilling, and extraction of oil and 

gas for commercial purposes. Includes all 

associated above- and below-ground facilities.

Not allowed; see 

section 2.20.1 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Sale of Sand, Gravel, and Other Common 

Variety Minerals 

Extraction of sand, gravel, and other saleable 

minerals for commercial purposes; includes 

noncommercial use by federal, state, and 

local agencies.

May be 

authorized; see 

page 2-43 

Not allowed Same as 

Minimal 

Management 

Other Mineral Leasing 

Includes the extraction of coal, geothermal 

resources, potassium, sodium, phosphate, 

sulfur, or other leaseable minerals for 

commercial purposes.

Not allowed; see 

page 2-43 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-68 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Mining of Hardrock Minerals 

Development of valid (pre-ANILCA) mining 

claims (lode, placer, and mill sites) on refuge 

lands for the purpose of extracting hardrock 

minerals. 

Not allowed Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

COMMERCIAL RECREATION—Includes all forms of guiding, including those operated by nonprofit, 

educational, and other noncommercial groups 

Guiding and Outfitting May be 

authorized; see 

section 2.20.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Transporting May be 

authorized; see 

section 2.20.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Fixed-Wing Air Taxis May be 

authorized; see 

section 2.20.2 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Helicopter Air Taxis May be 

authorized; see 

section 2.20.2 

Same as 

Moderate 

Management 

Not allowed 

except as 

discussed in 

section 2.16.2 

Bus and Auto Tours May be 

authorized; see 

section 2.20.2 

Not applicable Not applicable 

Commercial Filming, Videotaping, and 

Audiotaping 

May be 

authorized; see 

section 2.20.6 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Grazing Not allowed; see 

sections 2.20 and 

2.20.7 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Agriculture (Commercial) Not allowed; see 

sections 2.20 and 

2.20.7 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Commercial Fishery Support Facilities 

At or below 1979 levels 

Allowed; see 

section 2.20.3 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Commercial Fishery Support Facilities 

Above 1979 levels

May be 

authorized; see 

section 2.20.3 

Same as 

Moderate 

Management 

Not allowed 

Seafood Processing Not allowed; see 

section 2.20.3 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Aquaculture and Mariculture Support 

Facilities 

Not allowed Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Commercial Timber and Firewood Harvest May be 

authorized; see 

section 2.20.4 

Same as 

Moderate 

Management 

Not allowed 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-69 

ACTIVITY MODERATE 

MANAGEMENT 

MINIMAL 

MANAGEMENT 

MANAGEMENT 

of WILDERNESS 

Commercial Gathering of Other Refuge 

Resources 

May be 

authorized; see 

section 2.20.5 

Not allowed Same as 

Minimal 

Management 

Transportation and Utility Systems 

Includes transmission lines, pipelines, 

telephone and electrical power lines, oil and 

gas pipelines, communication systems, roads, 

airstrips, and other necessary related 

facilities. Does not include facilities 

associated with on-refuge oil and gas 

development. 

May be 

authorized; see 

section 2.16.6 

Not allowed Same as 

Minimal 

Management 

Navigation Aids and Other Facilities 

Includes air and water navigation aids and 

related facilities, communication sites and 

related facilities, facilities for national 

defense purposes and related air/water 

navigation aids, and facilities for weather, 

climate, and fisheries research and 

monitoring; includes both private and 

government facilities. 

Existing and 

new facilities 

allowed; see 

section 2.16.10 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management; 

see also section 

0 

Major Hydroelectric Power Development 

Hydroelectric dams creating a change in 

streamflow with an elevation change and 

reservoir behind the dam. 

Not allowed; see 

section 2.20.7 

Same as 

Moderate 

Management 

Same as 

Moderate 

Management 

Small Hydroelectric Power Development 

Hydroelectric generation by low-head or 

instream structures that do not change the 

flow of the river. 

May be 

authorized; see 

section 2.20.7 

Not Allowed Same as 

Minimal 

Management 

2.25 Process Employed to Develop 

Alternatives 

Four alternatives were developed—in compliance with NEPA, 

ANILCA, and other pertinent laws—to respond to the 

significant issues and to meet Refuges purposes. Alternatives 

take an interdisciplinary approach to problem-solving by 

considering the physical, biological, economic, and social effects 

of the proposed actions on the environment. 

Regulations require that a plan “rigorously explore and 

objectively evaluate all reasonable alternatives” (40 CFR, 

Section 1502.14a). A reasonable alternative achieves, in large 

part, the agency’s defined purpose and needs and addresses 

significant issues. 

As discussed in Chapter 1, section 1.7.3, issues were identified 

from responses to three planning updates and during three sets 

of public meetings. Alternatives were developed to meet refuge 

goals and to respond to those issues. Each major issue, activity, 

and management concern was evaluated and addressed for each 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-70 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

alternative. The comments received span a wide range of 

approaches to the different issues. 

Each alternative was designed to respond to the issues 

identified during scoping and presents an option for addressing 

each issue. In addition to responding to public comments and 

interest, each of the alternatives must be responsive to 

numerous laws and regulations and to the mission and goals of 

the Service and of the National Wildlife Refuge System. The 

purposes of the Refuges and the Refuge System mission 

provide a focus for actions that could be considered. Each 

alternative embraces regional management direction presented 

in sections 2.3, 2.4, and 2.24. Section 2.26 discusses those 

elements considered necessary for each alternative. 

2.26 Elements Common to All 

Alternatives 

 Each of the alternatives would abide by the purposes for 

which the Refuges were established, (as set forth in sections 

302 and 303 of ANILCA and in the National Wildlife Refuge 

System Administration Act of 1966, as amended). 

 Local residents would have access and priority to Refuges 

resources for the purposes of subsistence, as determined by 

law. 

 The Refuges would conform with all other Federal laws and 

regulations. 

 Fish and wildlife would be protected and maintained in their 

natural diversity. 

 Traditional uses of the Refuges would continue to be 

allowed. 

 Opportunities to pursue traditional subsistence activities, 

scientific research, hunting, fishing, and other wildlifeoriented recreation activities would be maintained. 

 Most of the Refuges would be maintained in a relatively 

undeveloped state. 

 Disturbances to fish and wildlife habitats and populations 

would be minimal. 

 Public use of the Refuges would be allowed using existing 

access methods. 

Three action alternatives were developed based on the issues 

identified during scoping and on Refuges purposes, Refuges 

goals, and administrative direction. 

Actions that would be incompatible with the purposes of the 

Refuges or the Refuge System were not considered in detail. 

Section 2.27 discusses the alternatives eliminated from detailed 

study. 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-71 

Goals and objectives are an integral part of each alternative. 

Whereas goals describe broad, general direction for the 

Refuges, objectives provide specific measurable ways to direct 

projects and to determine how well those projects have attained 

the intent of the alternative. Refuge goals do not vary; they are 

common to all alternatives. Objectives are presented in section 

2.2 with the pertinent goals. 

2.27 Alternatives Considered, But 

Eliminated from Detailed Study 

Three alternatives for providing management direction to the 

Refuges were considered but eliminated from detailed 

consideration. These alternatives and the reasons for not 

considering them in detail are discussed here. 

2.27.1 Access Restrictions 

In response to Issue 1 (How should we address recreational 

access to remote and sensitive areas?) and Issue 2 (How can 

conflicts between refuge user groups be minimized?), some 

members of the public suggested taking action to limit, restrict, 

or prohibit recreation access to the Refuges. In particular, a 

number of people suggested limits to or prohibition of motorized 

methods of access. 

An alternative focusing on such limits was dropped from 

detailed consideration for several reasons. ANILCA allows for 

motorized access to refuges in Alaska, subject to reasonable 

regulation to protect the natural and other values of the refuge. 

Data on recreation-use trends demonstrate that use levels are 

not increasing uniformly; in fact, use in many locations has 

either been steady or declining. There is no evidence that the 

impacts of current or expected future recreation uses will have 

significant negative impacts on refuge goals or objectives. Some 

alternatives propose increased monitoring of recreation use at 

key locations. Access to the Refuges via helicopters is being 

addressed as an issue. Finally, recreation use of the Refuges is 

limited, where needed, through other methods. For example, 

state and federal managers have closed the Refuges to the 

recreational hunting of caribou until caribou populations 

recover sufficiently. 

2.27.2 Activity Restrictions 

In response to Issue 2 (How can conflicts between refuge user 

groups be minimized?), an alternative that would prohibit or 

limit hunting and fishing on the Refuges was suggested by 

several members of the public. This alternative would have 

banned all hunting and fishing, limited hunting and fishing to 

subsistence only, and/or placed limitations on catch-and-release 

fishing. This alternative was eliminated from detailed 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-72 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

consideration because it would require changes in the law and to 

the purposes of the Refuges. 

Subsistence use is one of the purposes of the Alaska Peninsula 

and Becharof Refuges. Hunting and fishing are traditional 

activities on the Refuges that have been found to be compatible 

with refuge purposes and are regulated by the State of Alaska. 

ANILCA provides for the continuation of traditional activities 

on the Refuges and stipulates that they may be restricted only 

to protect resource or other values of the Refuges. When limits 

on hunting or fishing are necessary to protect wildlife 

populations, regulations are determined by state and federal 

managers (as is currently the case for caribou hunting on the 

Refuges). 

2.27.3 Special Area Designations 

Alternatives that would have recommended to Congress 

additional areas for inclusion in the National Wilderness 

Preservation System or National Wild and Scenic River System 

were considered but eliminated from detailed consideration (see 

section 1.8 and Figures 3–16, 3–17 and 3–18). The Refuges have 

a recommendation for Wilderness designation from the original 

conservation plans. That recommendation for 890,100 acres will 

remain in effect unless withdrawn by the Service director or 

until such time as a recommendation is submitted to Congress. 

Wilderness and river-related values are discussed in Chapter 3, 

but recommendations for additional designations are not 

included for management in any of the alternatives. The current 

and proposed management direction provides adequate 

protection for any wilderness or river-related values until such 

time as the Plan is revised. 

2.28 Alternative 1— 

Continue Current Management 

This is the “No-Action” alternative, as required by NEPA. It 

describes what would happen with a continuation of current 

management activities and serves as a baseline against which to 

compare other alternatives. 

The following subsections describe how this alternative would 

affect the major management concerns. 

2.28.1 Management Direction 

Management of the Refuges would continue to follow the 

current course of action, as identified and described in the 

records of decision for the Alaska Peninsula and Becharof 

Comprehensive Conservation Plans (USFWS 1985a, 1985b), 

respectively) as amended by the Public Use Management Plan 

of 1994 (USFWS 1994a), and the Alaska Maritime 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-73 

Comprehensive Conservation Plan (USFWS 1988). The ranges 

and intensities of management activities would be maintained. 

Private and commercial uses of the Refuges would be 

unchanged. Refuge management would continue to reflect 

existing laws, executive orders, regulations, and policies 

governing Service administration and operation of the National 

Wildlife Refuge System. 

This alternative would continue to protect and maintain the 

existing wildlife values and natural diversity on the Refuges. 

Human disturbances to fish and wildlife habitats and 

populations would be minimal. Public use of the Refuges, 

employing existing methods of access, would continue to be 

allowed. Opportunities to pursue traditional subsistence 

activities, research, and hunting, fishing, and other wildlifedependent activities would be maintained. 

The management directions described subsequently, combined 

with those described earlier in this chapter and in section 2.26, 

form the elements of this alternative. The following boxed 

information describes how this alternative would address each 

issue. 

How Alternative 1 would address the issues: 

Issue 1: How should we address recreational access to remote and sensitive areas? All rivers and 

lakes would remain accessible to motorboats. Snowmachines would continue to be allowed. 

Off-road vehicle (ORV) use that facilitates subsistence activities would continue throughout 

the Refuges. Fixed-wing aircraft landings would not be limited. Primitive airstrips would 

remain open to airplanes, and all lakes currently accessible to airplanes would remain open. 

Helicopter landings for recreation purposes could be allowed on a case-by-case basis. 

Sensitive or remote areas of the Refuges have not been mapped. 

Issue 2: How can conflicts between refuge user groups be minimized? Studies of public use would be 

conducted as needed to respond to concerns. No objectives for specific sites have been 

established. 

If this alternative is implemented, the following would take 

place (see Figure 2-2): 

 Applications for permits to allow helicopter landings, 

outside of the Wilderness Area, for recreation purposes 

would be evaluated on a case-by-case basis. 

 3,364,600 acres would be managed in the Minimal 

Management category. 

 9,100 acres would be managed in the Moderate Management 

category. 

 502,900 acres would be managed in the designated 

Wilderness Management category. 

 387,400 acres would be managed in the Cooperative 

Management category (this includes 23,700 acres where 

cooperative management and designated Wilderness 

overlap). 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-74 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

The following discussion and Table 2-2 highlight the significant 

changes in management direction between the new regional 

management direction presented in Table 2-1 (section 2.24), 

which applies to Alternatives 2, 3, and 3a, and the management 

direction that applies to Alternative 1------continuation of current 

management. Management direction under Alternative 1 is 

from the 1985 Becharof, 1985 Alaska Peninsula, and 1988 Alaska 

Maritime Conservation Plans and the 1985 Becharof, 1987 

Alaska Peninsula, and 1988 Alaska Maritime Records of 

Decision, as modified by subsequent step-down management 

plans. 

The original conservation plans included management direction 

in six management categories: Intensive, Enhanced Public Use, 

Moderate, Minimal, Cooperative, and Wilderness. Lands 

recommended for Wilderness designation were assigned to the 

Minimal Management category. No lands were assigned to the 

Intensive Management category. The Enhanced Public Use 

category was applied to refuge lands outside the boundary 

covered by this revision. 

New management direction specifies that all activities in 

designated Wilderness require a minimum-requirements 

analysis. Alaska Maritime and Alaska Peninsula are grouped 

together because they frequently have the same management 

direction. 

Chapter 2: Refuge Management Direction and Alternatives 

2-77 Alaska Peninsula and Becharof NWR Compre

Table 2-2 Comparison of activities and uses of current management with management proposed in the revised Conserv

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Collecting Information on and Monitoring Ecosystem Components Data gathering, monitoring, and maintaining a database of selected ecosystem components 

Will be routinely practiced Will be routinely practiced Allowed New 

langrevisand activ

Habitat Management Modification of habitats to increase selected wildlife populations. 

Allowed only where people have altered or degraded the natural system or unacceptable natural changes have altered the desired habitat 

May be allowed on a caseby-case basis Allowed New 

flexitreatplanold Bnot h

Fire Management—Prescribed Fires Ignited to meet specific management objectives 

Not in management table AKP: Not in management 

table AKM: allowed for hazardous-fuel reduction or restoration of natural vegetation patterns 

May be allowed Wilderness—not allowed, except where needed to reduce fuel loads 

New flexi

Fire Management—Wildland Fire Use The planned use of naturally occurring fires to meet management objectives 

Not in management table Not in management table May be allowed New 
Chapter 2: Refuge Management Direction and Alternatives 

2-78 Alaska Peninsula and Becharof NWR Compre

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Fire Management—Fire Suppression Management intended to protect identified resources, extinguish a fire, or alter a fire=s direction of 

spread 

Not in management table Natural fires allowed to 

burn except where they threaten human life and property 

Allowed Old d

natuexceto buNew supp

Temporary Facilities Temporary facilities and equipment directly related to the taking of fish and wildlife 

Not in management table Not in management table No new tent platforms; 

other temporary facilities allowed 

New guidfaciliwher

Reintroduction of Species Native species to restore natural diversity of fish, wildlife, and habitats 

Allowed: Only initiated to re-establish native species within original breeding range 

AKM: May be allowed AKP: Only initiated to reestablish native species within original breeding range 

May be allowed for reintroduction of native species only 

New restrof nadirecdeplmain

Nonnative Species Management Removal or control of nonnative species (including predators) 

Not in management table Not in management table May be allowed New 

direcremononnintro

Pest Management and Disease Prevention and Control Relocation/removal of organisms threatening human health/ survival of native fish, wildlife, plant species 

Allowed AKM: Allowed 

AKP: Same as Becharof 

Allowed New 

orgaplanpest prev
Alternative 1 Chapter 2: Refuge Management D

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Fishery Restoration Actions to restore fish access to spawning and rearing habitat or to restore populations to historic levels 

Allowed in special situations (e.g., landslides, oil spills) 

AKM: May be allowed— case-by-case basis AKP: same as Becharof 

May be allowed Earl

mandirecregamay 

Native Fish Introduction Movement of native species within a drainage on the refuges to areas where they have not historically existed 

Not in management table AKM and AKP: 

Introduction of fish species native to North America outside of their original range may be allowed on a case-by-case basis 

Moderate—may be allowed Minimal and Wilderness—not allowed 

New restrspecRefu

Nonnative Species Introductions Introduction of a species not naturally occurring within a watershed 

Not in management table AKM and AKP: 

Introduction of species not native to North America not allowed 

Not allowed New 

definrestrspec

Bicycles Includes all types of bicycles 

Not in management table Not in management table Allowed New 

All-Weather Roads Not allowed Not allowed Moderate—may be 

allowed Other management categories—not allowed 

New all-wroadNew restrcateg
Chapter 2: Refuge Management Direction and Alternatives 

2-80 Alaska Peninsula and Becharof NWR Compre

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Unimproved Roads Not in management table Not in management table Moderate—may be 

allowed Other categories—not allowed 

New inclu

Interpretation, Environmental Education, and other Outreach Activities Includes kiosks, visitorcontact facilities, and signs 

Moderate—Interpretive materials may be provided; facilities not allowed Minimal and Wilderness—Interpretive materials not provided; facilities not allowed 

Interpretive materials may be provided; facilities not allowed 

Moderate—Interpretive materials may be provided; facilities may be allowed Minimal—Interpretive materials generally not provided; facilities generally not allowed Wilderness—Interpretive materials not provided; facilities not allowed 

New restrfacilimanthe sWild

ORV/ATV Trails and Routes 

Not in management table Not in management table Moderate—may be 

allowed. Minimal and Wilderness—not allowed. 

New direcfor pmark

Constructed and Maintained Airstrips 

Not allowed Primitive airstrips may be 

designated; no new construction allowed, subject to Title XI of ANILCA 

Moderate— may be allowed Other management categories—not allowed 

New consfrom New flexiMod
Alternative 1 Chapter 2: Refuge Management D

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Cleared Landing Strips/Areas 

Not in management table Not in management table All categories, except 

Wilderness—may be allowed Wilderness—not allowed unless established prior to Wilderness designation 

New is moMod

Boat Launches and Docks Designated access sites where boats can be put into lakes and rivers. 

Not allowed AKM: No permanent sites 

allowed AKP: Not allowed 

Designated sites for launching and storing watercraft; may be allowed 

New flexiall mand iwate

Visitor Contact Facilities Staffed and unstaffed facilities 

Moderate—Facilities not allowed Minimal and Wilderness—signs, trails, and facilities not allowed 

AKM & AKP: Facilities not allowed 

Moderate and Minimal—may be allowed Wilderness—not allowed Exception: signs are allowed for public health and safety and to protect private property. 

New facilimatesigns publ

Hardened Campsites Facilities provided for public health and safety and/or resource protection; may include gravel pads for tents, hardened trails, and/or primitive toilets 

Same as AKP AKM: May be provided if 

needed to confine resource degradation. AKP: Moderate—may be provided Other categories—not provided 

Allowed Wilderness—only where necessary to protect Wilderness resources or public health and safety 

New restrcateghealt
Chapter 2: Refuge Management Direction and Alternatives 

2-82 Alaska Peninsula and Becharof NWR Compre

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Cabins—Public Use Available for short-term recreation use by the public 

Not allowed AKM: Not in management 

table AKP: Not allowed 

Moderate—allowed Minimal and Wilderness— Existing cabins—allowed New cabins—may be allowed 

New restr

Cabins—Administrative For use by refuge staff or other authorized personnel 

Not in management table Moderate and Minimal—

allowed Wilderness—May be built if needed for the protection of public health and safety. 

Moderate—may be allowed Other management categories—may be allowed if essential for the health and safety of employees and no other reasonable alternative site exists. 

New restrin Mcategfor hemp

Hazardous Materials Storage Structures and equipment necessary for the storage and transfer of fuels and other hazardous materials 

Not in management table Not in management table May be allowed New 

New stipu

Radio Repeater Sites Not in management table Allowed May be allowed New 

New will ndesigunlealter
Alternative 1 Chapter 2: Refuge Management D

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Other Geophysical Studies Helicopter-supported gravity and magnetic surveys and other minimalimpact activities 

May be allowed May be allowed Moderate and Minimal—

may be authorized 

New restrpotedesig

Geophysical Exploration/Seismic Studies Examination of subsurface rock formations through devices that set off and record vibrations in the earth; usually involves mechanized surface transportation, but may be helicopter-supported; includes studies conducted for the Department of the Interior 

Minimal—Allowed in specified areas under three conditions: 1) necessary to assess the potential of offrefuge resources; 2) data obtained on refuge lands will be made available to the Service or other Department of the Interior agencies; 3) Service will prepare additional studies regarding the potential and the national need for development 

AKM: Minimal—May be allowed subject to special use permit Wilderness—Not allowed unless by or for a DOI agency under ANILCA 1010(g) AKP: Moderate and Minimal—May be allowed Wilderness—May be allowed, if 1) conducted by or for a DOI agency and 2) in accordance with ANILCA 1010 and the Wilderness Act 

Moderate and Minimal—May be authorized Wilderness—Not allowed unless conducted for the DOI under ANILCA 1010(g) 

The (RODAKP allow certaNew the rsimil

Sale of Sand, Gravel, and Other Common Variety Minerals 

Not allowed Not allowed Moderate—may be 

authorized Other categories—not allowed 

New restrauthEarlallow not iuse l
Chapter 2: Refuge Management Direction and Alternatives 

2-84 Alaska Peninsula and Becharof NWR Compre

Management Topic Alternative 1 

Current Management 

Becharof 

Alternative 1 

Current Management 

Alaska Peninsula (AKP) and

Alaska Maritime (AKM) 

Alternatives 2, 3, and 3a 

New Management Direction 

Grazing Grazing of domesticated or wild animals 

Not allowed AKM—No new or 

increased levels of grazing allowed; current grazing may continue AKP—Not allowed 

Not allowed AKM

is cuunit, direcsameOthe

Commercial Fishery Support Facilities At or below 1979 levels 

Not in management table Not in management table Allowed New 

Commercial Fishery Support Facilities Above 1979 levels 

Not in management table Not in management table Moderate and Minimal—

May be authorized; Wilderness—Not allowed 

New 

Transmission Lines/Pipelines Includes telephone and electrical power lines, oil and gas pipelines, and related facilities 

Moderate—May be allowed Minimal and Wilderness—Not allowed 

AKM—Not allowed AKP: Moderate—May be allowed Minimal and Wilderness—Not allowed 

Moderate—May be authorized Minimal and Wilderness—Not allowed 

New restrMaribe aucategModUnchAlas

Small Hydroelectric Power Development Using low-head or instream structures that do not change flows 

Not in management table AKM: Included in 

category for Major Hydroelectric Power Development Not allowed AKP: Not in management table 

Combined into Transportation and Utility Systems. Moderate—May be authorized Other categories—not allowed 

Plan in mrequtransyste
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-85 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

General Refuge Management

Four management categories would continue to be applied to 

lands within the Alaska Peninsula and Becharof Refuges: 

Moderate, Minimal, Wilderness, and Cooperative Management4

. 

The Yantarni Bay Moderate Management Area, a 9,100-acre 

area that includes the Yantarni Bay airstrip, would continue to 

be managed in the Moderate Management category, as 

designated by the 1994 Public Use Management Plan. The 

Becharof Wilderness Area, a 502,900-acre portion of the 

Becharof National Wildlife Refuge, would be managed as 

designated Wilderness. Cooperative Management would be 

applied to 387,400 acres within the Refuges4

. 

The remaining 3,364,600 acres of federal lands within the 

Refuges boundary would be managed in the Minimal 

Management category. Native corporations have selected 

399,600 surface acres of the Refuges; these would be managed 

in the same manner as the surrounding lands until their status 

is finalized. Table 2-3 displays the acreages of land in each 

category for this alternative. 

Table 2-3 Management category designations in Alternative 1 

Management Category Acreage Percentage of 

Refuges 

Moderate Management 9,100 0.2 

Minimal Management 3,364,600 79 

Wilderness Management 502,900 12 

Cooperative Management 387,400a 9 

Total Service 

administered 

4,240,300 100 

a Includes 23,700 acres of existing designated Wilderness 

Fish and Wildlife Management

The Refuges’ objectives for wildlife under Goals 1 and 2 (section 

2.2), are directed toward monitoring a diverse group of species, 

including moose, caribou, wolves, bears, waterfowl, bald eagles, 

seabirds, shorebirds, and songbirds. This monitoring will 

provide baseline information for the ongoing management of 

wildlife populations on the Refuges. Current funding levels 

allow for basic inventory and monitoring. As funding levels and 

resources permit, proactive inventory and monitoring will be 

conducted to expand knowledge of the fish and wildlife 

resources. 

 

4

 The original Plan called for the Cooperative Management category to be applied to 387,400 acres 

within the Refuges. In day-to-day management, this category was not used. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-86 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Subsistence Management

Management would continue as described previously in 

Management Direction (section 2.3). ANILCA stipulates that 

rural Alaska residents who are engaged in subsistence use are 

allowed to use refuge resources for traditional purposes. The 

noncommercial gathering, by local residents, of plant materials 

for subsistence uses is allowed without a special-use permit. 

Many aspects of subsistence management are beyond the 

control of this Plan. The Refuges would work with the state and 

with other federal agencies in harvest- and resource-monitoring 

programs. The Refuges would continue the Refuge Information 

Technician program, hiring local residents to serve as liaison for 

information to and from the villages. 

2.28.2 Public Use Management Plan 

Management would continue as described previously in 

Management Direction (section 2.3) and in the Refuges’ 1994 

Public Use Management Plan (PUMP). Most visits to the 

Refuges would be for subsistence uses or for hunting, fishing, or 

other wildlife-dependent recreation. Fixed-wing aircraft 

landings would not be limited. Airplanes would continue to be 

allowed to land on sand blows, gravel bars, waterbodies, and the 

few primitive airstrips that exist. All rivers and lakes would 

remain open to motorboats. Helicopter landings for recreation 

access or use would be prohibited within the Becharof 

Wilderness and could be allowed on a case-by-case basis 

elsewhere on the Refuges. 

Snowmachines and powerboats would be allowed throughout 

the Refuges. Off-road vehicles would be allowed throughout the 

Refuges, as provided for in established regulations, for 

subsistence purposes and could be limited only if necessary to 

protect resources. Off-road vehicles for recreation and 

commercial purposes would be limited to established trails in 

the Yantarni Bay Moderate Management area. No public use 

cabins or other facilities or hardened trails would be developed 

for recreation use. Public-use monitoring and management 

would continue to be mainly reactive, focused on investigating 

reports of conflicts and impacts. 

The opportunity for continued subsistence use is one of the 

Refuges’ purposes and would continue to be a management 

priority. As specified in the Refuge Improvement Act, wildlifedependent recreation would be the priority general public use; 

these recreation activities are defined as hunting, fishing, 

wildlife viewing, photography, and environmental education and 

interpretation. These uses would be allowed and facilitated as 

long as they remained compatible with refuge purposes and the 

Refuge System mission. Recreation would be managed to 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-87 

provide opportunities for quality experiences, as defined in this 

Plan and Service policy. State regulations for the harvest of fish 

and game would continue unless the Refuges were closed to 

such uses by the Federal Subsistence Board. 

The next sections summarize the Refuges’ Public-Use 

Management Plan as it is currently being implemented. This 

level of detail is required because the revised Conservation Plan 

will incorporate any new direction in managing public use no 

matter which alternative is adopted. No separate PUMP will be 

developed later. 

Wildlife

Bears—All areas would remain open for people to view bears. 

Detailed public information, including recommendations and 

precautions for visitors (such as how to behave around bears), 

would continue to be provided. Areas providing opportunities 

for viewing bears and other wildlife would be identified. Impacts 

of use on sensitive bear areas would be monitored. 

Seabirds—Under the Migratory Bird Treaty Act, Eskimos and 

Indians may take, at any season, auks, auklets, guillemots, 

scoters, murres, and puffins; their eggs for food; and their skins 

for clothing. The birds and eggs cannot be sold or offered for 

sale. 

Other migratory birds—The 1916 Convention for the 

Protection of Migratory Birds in Canada and the United States, 

as implemented by the Migratory Bird Treaty Act, prohibited 

spring and summer hunting for migratory birds. The treaty 

called for a closed season in both countries between March 10 

and September 1; hunting was allowed under federal and state 

regulations at other times of the year. In 1997, the treaty was 

amended to allow subsistence harvest of migratory birds for 

certain inhabitants of Alaska. In the Bristol Bay region, hunting 

is allowed for selected waterfowl, seabirds, shorebirds, loons, 

and owls. 

Eagles—Eagles are managed under the Bald Eagle Protection 

Act and related regulations. 

Caribou—Hunting is allowed, subject to state and federal 

regulations. As described in Chapter 3, caribou in game 

management units 9C and 9E are currently under state Tier II 

hunting restrictions, reflecting the decline of the caribou herd. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-88 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Access

Pack Animals

The private use of pack animals—such as horses, llamas, or 

dogs—would be allowed by the general public. As of May 2005, 

only dogs (both pack dogs and dog teams) are used on the 

Refuges, although this use is minimal. Commercial use of pack 

animals on the Refuges would be evaluated on a case-by-case 

basis; if approved, measures to protect resources and avoid 

conflict with other users would be included in the special-use 

permit. 

Motorboats

Motorboat access (including jet boats) would be allowed in the 

Refuges, as specified by ANILCA. Use would be monitored to 

determine if additional management action is needed. 

Aircraft

Aeronautical charts recommend avoiding flight below 2,000 feet 

above ground level, except during take-off and landing 

approach. There would be no limits on fixed-wing aircraft 

landings within the Refuges, except in the Becharof Wilderness 

Area. Helicopter access for recreation uses would be considered 

on a case-by-case basis and allowed by special-use permit 

outside of the Becharof Wilderness. 

Off-Road Vehicles

A winter route over the frozen surface of Big Creek was 

approved in the Becharof Conservation Plan (but regulations 

were not developed). Under current state and federal hunting 

regulations, the Naknek River drainage upstream from and 

including the King Salmon Creek drainage is closed, from 

August 1 through November 30, to the use of any motorized 

vehicle except an aircraft, boat, or snowmachine for hunting; 

this closure includes transportation of hunters, their hunting 

gear, and/or parts of game. However, this does not apply to 

motorized vehicles on the Naknek, King Salmon, Lake Camp, 

and Rapids Camp roads; on the Pike Ridge and King Salmon 

Creek trails; and on the frozen surfaces of the Naknek River 

and Big Creek. 

Off-road vehicle (ORV) use for subsistence (by three- and fourwheeled vehicles with a vehicle weight of 650 pounds or less) 

would continue to be allowed as specified in 50CFR36.39(c)(2) 

and would be monitored to ensure there are no adverse effects 

on Refuges resources. Should adverse effects be detected or 

appear to be likely in the near future, procedures outlined in 50 

CFR 36.12 (U.S. Government 1996-2003) would be followed to 

take appropriate action. 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-89 

In the Yantarni Bay Moderate Management area, the airstrip, a 

trail to the beach, and a trail to the oil well site would be 

designated (on the old gravel roadbeds) for year-round ORV use 

(Figure 2-5 on page 2-107). 

Snowmachine access would be allowed when there is adequate 

snow cover. 

Airboats are included in the Service definition of off-road 

vehicles. They would not be allowed on Refuges lands and 

waters, but would be allowed on state waters within the 

boundaries of the Refuges. 

Guided and Unguided Public Use 

Special-use permits would be required for all commercial uses 

of the Refuges, including all types of guiding and air-taxi 

services. Separate permits would be required for big-game 

guiding/outfitting and guiding for recreational angling. There 

would be no limits on the number of air-taxi permits or where 

air taxis may operate unless a need for such limits was 

documented through monitoring; additional public involvement 

would be conducted as part of that process. 

Recreation visitors would be encouraged to use areas of the 

Refuges where subsistence use does not regularly occur. Public 

use at Becharof Lake outlet, and other locations as appropriate, 

would be monitored seasonally. 

Practice of Leave-No-Trace outdoor ethics would be 

encouraged. Leave No Trace consists of seven key practices: 

plan ahead and prepare; travel and camp on durable surfaces; 

dispose of waste properly; leave what you find; minimize 

campfire impacts; respect wildlife; and be considerate of other 

visitors. 

Enforceable regulations that address littering, especially 

littering that attracts bears, would be prepared as needed with 

input from the state and others. Barrier-free access would be 

provided at facilities (for example, the visitor center). The 

Refuges would encourage the guiding industry to provide 

opportunities for physically challenged visitors. 

Other than reserved sites authorized by special-use permits 

during the fall hunting season (August 1 through November 15), 

camping would be limited to seven nights per site at the 

following locations, as specified in 50 CFR Part 36.39(c) (U.S. 

Government 1996-2003): 

 Within one-quarter mile of the shoreline of Becharof Lake 

in the Severson Peninsula area (Island Arm) 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-90 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

 Within one-quarter mile of the shoreline at Becharof Lake 

outlet 

 Within one-quarter mile of the shoreline at Ugashik 

Narrows 

 Within one-quarter mile of Big Creek 

 Within one-quarter mile of the shoreline of Gertrude Lake 

 Within one-quarter mile of Gertrude Creek between 

Gertrude Lake and the King Salmon River 

After seven nights, camps would be required to be moved a 

minimum of one mile. Impacts of camping elsewhere on the 

Refuges would be monitored to determine if additional 

management is necessary. Currently, there are no limits on 

party size. These camping limits would not apply to subsistence 

users except at one of the areas: Big Creek. These camping 

limits also would not apply to state-owned shorelands or 

tidelands. 

Voluntary registration or other special management would be 

considered for some areas of the Refuges, including the Ukinrek 

Maars area, archaeological sites, Gertrude Lake, Ruth Lake, 

old oil wells, and World War II aircraft crash sites. Additional 

sites could be identified in the future. The purpose of special 

management would be to ensure that, prior to visiting, people 

using these areas have appropriate information about the 

resources and safety precautions. 

Big-Game Guiding/Outfitting

In 1992, the Service adopted an Alaska-wide policy for big-game 

guides/outfitters. The policy established new guide areas and a 

process for competitively selecting guides to operate within 

these areas. Implementation began with the 1993 guiding 

season. As of January 1, 2005, there are 25 big-game guide 

permittees authorized to operate within the Refuges. The 

Refuges have the same permit requirements as other Alaska 

refuges (e.g., requiring guides to report the area and intensity 

of use). Permits are actively managed; the Refuges staff 

conducts compliance checks and other oversight actions. 

Hunting

As expressed in the Master Memorandum of Understanding 

(Appendix B), the Service recognizes that the state has primary 

responsibility to manage resident wildlife within the State of 

Alaska, and the Service will use the state regulatory process to 

the maximum extent allowed by federal law. If Service 

restrictions on hunting are needed, they will be done through a 

rule-making, through closures, or through restrictions under 

50CFR 36.41 (2003). 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-91 

Recreational Fishing and Guided Recreational Fishing 

Guided recreational fishing would be authorized within the 

Refuges. A five-year monitoring program would be developed as 

staffing and funding levels permit, and its findings would be 

used to determine any needed additional management actions. 

New recreational fishing base camps would not be authorized on 

Refuges lands until the monitoring program had been 

completed, which is scheduled for 2010. 

Limits on the amount of recreational fishing at critical areas 

(such as the Becharof Lake outlet) could be proposed on an 

interim basis during the monitoring program if serious 

problems were detected. Limits would be proposed through 

regulation of fishing by the Alaska Board of Fisheries. The 

Service recognizes that the state has primary responsibility to 

manage fish, and it will use the state regulatory process to the 

maximum extent allowed by federal law. If special refuge 

regulations are needed, the Service will implement them 

through a rule-making, through closures, or through 

restrictions under 50CFR 36.41 (2003). 

Currently, there are no limits on the number of recreational 

fishing guides authorized. A competitive process would be used 

to allocate permits in the future if there were a need to limit the 

number of guides and/or facilities within areas of the Refuges. 

Improved public information on appropriate fishing 

techniques—such as catch and release—would be provided. 

Facility Development and Use

Trails and Campsites

Trails would not be constructed. Hikers would be encouraged to 

use certain designated routes with differing levels of challenge, 

as described in brochures. Hiking in areas where there are no 

conflicts with wildlife and/or subsistence use would be 

encouraged. No campsites would be developed within sensitive 

wildlife areas. Campsites could be hardened and designated if 

the need is demonstrated. 

Easements

The Refuges would work with Service’s Division of Realty 

personnel and local Native corporations to field-check and 

update the database of ANCSA 17(b) easements, develop GIS 

maps of easements, and establish signs onsite as needed. 

Additional direction for easements was described previously in 

section 2.16. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-92 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Cabins

There would be no public-use cabins. If private cabin permits 

terminate and if the federal government assumes ownership, 

cabins would be removed or converted to subsistence use, safety 

cabins, or administrative cabins. Permits for construction of new 

cabins would be considered only for subsistence use and would 

be subject to case-by-case compatibility determinations and 

environmental analysis. 

Administrative cabins would be constructed at the Ugashik 

Narrows area and the Yantarni Bay airstrip as funding permits. 

The Refuge has obtained an annual cooperative agreement for 

administrative use of the Bible Camp facility to run the “Spirit 

of Becharof Lake” Ecosystem Science Camp. 

Temporary Facilities

Use of temporary facilities would be allowed only for the period 

of activity authorized. Permit holders would be required to 

report the beginning and end of seasonal occupancy and any 

period of non-use. Reclamation bonds would be required. 

Temporary facilities would be required to be screened, to the 

extent practicable, from general public view and access points. 

Facilities (including the tent frames) would be colored to blend 

into the surrounding landscape as much as possible, but white 

wall tents would be allowed. 

Appropriate food storage methods would be required when the 

facility is occupied; no food caches would be authorized while the 

facility is not occupied. Fuel caches could be allowed in 

compliance with Service policy and in compliance with 

stipulations in the compatibility determinations. New temporary 

facilities, other than for subsistence purposes, would be 

prohibited within one-quarter mile of the Becharof Lake 

shoreline. 

New temporary facilities would be prohibited in some areas 

because they would constitute a significant expansion of existing 

facilities, which would be detrimental to the purposes for which 

the Refuges were established, especially subsistence activities 

and hunting and fishing (50 CFR 36.39([c][4][ii]; U.S. 

Government 1996-2003). The following areas receive heavy 

public use and are located close to communities and/or contain a 

substantial number of existing facilities: 

 Within one-quarter mile of the shoreline of Big Creek 

 Within one-quarter mile of the shorelines of Gertrude Lake 

and Long Lake 

 Within one-quarter mile of the airstrip at the confluence of 

Gertrude Creek and the King Salmon River 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-93 

 Within one-quarter mile of the shorelines of Upper and 

Lower Ugashik lakes 

 Within one-quarter mile of the shoreline of Becharof Lake 

outlet 

Information and Education

Because of the lack of developed visitor facilities on the 

Refuges, interpretive and educational efforts would occur 

primarily in King Salmon or in surrounding villages. The 

Refuges’ public-use staff would manage and operate the King 

Salmon Visitor Center, located in a leased building at the 

airport in King Salmon, in cooperation with the National Park 

Service, Bristol Bay Borough, and Lake and Peninsula 

Borough. The visitor center would be expanded to provide 

outreach environmental education programs at nonrefuge 

facilities. Land-status information would be available at the 

visitor center. 

The Refuges would have an active education and outreach 

program. The Refuges would provide a visiting interpreter 

program for off-refuge facilities such as lodges. Environmental 

education programs would focus on the National Refuge 

System, the purposes for which Refuges were established, and 

significant resource management issues. The Refuges would 

also promote conservation of geese and waterfowl through the 

Western Alaska Goose Calendar Contest and the Alaska Junior 

Federal Duck Stamp Contest. The Refuges would conduct 

additional programs and activities for special events and 

occasions such as National Wildlife Refuge week, National 

Wildlife Week, International Migratory Bird Day, and National 

Fishing Week. 

The environmental education plan is updated yearly. 

Implementation will be subject to availability of funds. The 

Refuge Information Technician program would continue. 

Commercial Services

Commercial transporters and guides would continue to be 

administered through special use permits. Big-game hunting 

guides are limited in number. Twenty-five big-game guide 

permittees were authorized to operate within the Refuges as of 

January 1, 2005. There are 21 guide areas on the Refuges (six in 

Becharof Refuge, seven in Ugashik Unit, and eight in Chignik 

Unit). Guides may be permitted to hunt in more than one area. 

Several areas are “joint-use areas” and are used by more than 

one guide. Guides compete for permits through formal 

proposals that are evaluated by the Service. Permits for guiding 

recreational anglers and for commercial transporters are not 
Chapter 2: Refuge Management Direction and Alternatives Alternative 1 

2-94 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

limited. Proposals for helicopter operations have not been 

approved in the past, but would be considered on a case-by-case 

basis. 

2.28.3 Refuge Infrastructure and Administration 

Several of the buildings in use at the King Salmon office 

compound date to 1939, when the Bureau of Commercial 

Fisheries established the site. Although some newer buildings 

have been constructed and others have been updated 

throughout the years, the facility is dated and not adequate for 

today’s needs. Several buildings do not meet current state 

building codes. Facilities associated with the Refuges and plans 

for construction would not vary by alternative. An 

administrative building at the King Salmon office compound 

was constructed during 2002 to replace the existing space. 

Other off-refuge projects planned for, but not yet scheduled, 

include the following: 

 Construction of new bunkhouse 

 Construction of a duplex residence 

 Construction of a maintenance shop at the office compound 

 Construction or lease of administrative facilities and hangar 

space in the Chignik Unit 

 Coordination with partners to ensure that a permanent 

visitor center facility is provided in King Salmon 

Projects planned on the Refuges, but not yet scheduled, include 

construction or replacement of administrative cabins at Ugashik 

Narrows or Island Arm and at the Yantarni Bay airstrip. A 

complete facility inventory and description of needed facilities is 

presented in Chapter 3, section 3.6. 

In addition to refuge-owned administrative facilities, two 

permitted administrative cabins, owned by the State of Alaska 

(ADF&G) are within the Refuges: one at Orzinsky Bay and 

another on the Egegik River near the outlet of Becharof Lake. 

2.28.4 Funding and Personnel Requirements 

In fiscal year 2003, Alaska Peninsula and Becharof Refuges had 

a staff of 13 permanent, three permanent part-time seasonal, 

and two seasonal employees and four volunteers, with a base 

budget of $1,794,000. To maintain the current situation in the 

short term (less than three years) a continuation of this present 

level of funding adjusted for inflation would be required. Longterm budget and staffing goals (3–15 years) provide for 

implementation of projects identified in the Centennial Legacy 

Plan and in the Refuge Operational Needs System (RONS) to 

accomplish refuge objectives as well as to accommodate 
Alternative 1 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-95 

anticipated increases in subsistence and recreation demands. 

These needs will not vary by alternative. 

Currently identified essential staffing, mission-critical projects, 

and an increase in recurring base funds to implement this 

alternative over the life of this Plan include the following: 

 10 new permanent full-time positions 

 33 projects 

 An increase of $2,439,000 in recurring base funds 

In addition to continuing current management, short-term 

projects would develop plans and infrastructure to implement 

long-term goals. 

Seasonal employees and volunteers play an important role in 

the refuge personnel program. Numbers of seasonal employees 

and volunteers could vary considerably from year to year 

depending upon projects but would likely increase with 

increases in budgets. Budget and staffing requirements to 

implement this alternative are presented in Table 2-4. Budget 

and staffing levels required to implement all the alternatives are 

compared in Table 2-13. 

Table 2-4 Budget and staffing needs for Alternative 1 

Item Short-Term 

Implementation 

(<3 years) 

Long-Term 

Implementation 

(3–15 years) 

Annual Budgeta $1,794,000 $4,233,000 

Permanent Employees 13 23 

Permanent Part-Time 

Employees 

3 4 

Seasonal Employeesb 2 7 

Seasonal Volunteersb 4 8 

a Based on FY 2003 dollars 

b Numbers of seasonal employees and volunteers would probably increase 

but would vary from year to year. 

2.29 Elements Common to Action 

Alternatives 

Alternatives 2, 3, and 3a (the action alternatives) share some 

common elements. This section describes those common 

elements that would apply regardless of the action alternative 

selected. Regardless of the alternative selected by the regional 

director in the Record of Decision, the final Comprehensive 

Conservation Plan for the Alaska Peninsula and Becharof 

National Wildlife Refuges would include management direction 

described in this section as well as specific direction described in 

the selected alternative. 
Chapter 2: Refuge Management Direction and Alternatives 

2-96 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

With implementation of any action alternative the following 

would occur: 

 Levels of public-use monitoring would increase above 

current levels. 

 Levels of wildlife inventories and monitoring would increase 

above current levels. 

 Cooperative Management would no longer be defined as a 

distinct management category. It is regional policy to 

cooperate with the state and with private landowners within 

and adjacent to the Refuges regardless of the applicable 

management category. Essentially, this broadens the 

concept so that all management categories include elements 

of cooperative management. Any Refuge lands within this 

classification would be reclassified as Minimal Management. 

The area where Cooperative and Wilderness Management 

categories overlapped would remain in the Wilderness 

category. 

2.29.1 Wildlife 

The Refuges’ objectives for wildlife under Goals 1 and 2 (section 

2.2) are directed toward inventorying and monitoring a diverse 

group of species, including moose, caribou, wolves, bears, 

waterfowl, bald eagles, seabirds, shorebirds, and songbirds. 

This monitoring will provide valuable information for the 

ongoing management of wildlife populations on the Refuges as 

well as for responding to catastrophic events. Law-enforcement 

activities would be expanded to include dedicated patrols, 

investigations, and education and outreach. 

Wildlife Habitat

Understanding wildlife habitat characteristics such as 

distribution, quality, and availability is instrumental to 

understanding changes in wildlife populations. The objectives 

for wildlife habitat were established to develop the necessary 

information and tools for a basic understanding of wildlife 

habitat on the Refuges. 

Fish

The objectives for fish management described in section 2.2 

were designed to increase understanding of, and ability to 

manage, important fish populations on the Refuges. The 

objectives address species and drainages that are important not 

only for subsistence, commercial, and recreation uses, but also 

for their contribution to the ecological integrity of the Refuges. 
Alternative 2 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-97 

2.29.2 Public Use and Access 

New public-use objectives were designed to increase the level of 

monitoring of public use at identified locations on the Refuges 

and to increase the Refuges’ ability to enforce existing 

regulations. Initially, monitoring would focus on several 

locations where recreational angling is either increasing or has 

the potential to affect resources and opportunities (including the 

quality of the angling experience). The goal would be to allow 

managers to detect conflicts, crowding, or other declines in 

quality or impacts to resources while the problems are still 

fairly minor and can be corrected. This new information would 

allow site-specific recreation-use objectives to be developed so 

that managers could measure progress toward desirable social 

and resource conditions. 

As specified in the Refuge Improvement Act, wildlife-dependent 

recreation—hunting, fishing, wildlife viewing, photography, and 

environmental education and interpretation—would be priority 

general public uses. These uses would be allowed and facilitated 

as long as they remained compatible with refuge purposes and 

the Refuge System mission. The Refuges would be managed to 

provide opportunities for quality recreation experiences in 

generally natural wildland settings. 

More emphasis would be placed on ensuring that opportunities 

for quality recreation were being provided on the Refuges. The 

attributes of a quality experience for recreational fishing, 

hunting, and other wildlife-dependent activities include 

providing activities that are safe; contribute to refuge 

objectives; minimize adverse impacts to fish and wildlife 

populations or habitats; encourage high standards of ethical 

behavior; are available to a broad spectrum of the public, 

including those with disabilities; are uncrowded; minimize 

conflicts with other users; provide reasonable challenge; and 

increase understanding and appreciation for the resources. 

(Refer to the glossary for the definition of “quality” that we are 

using in this Plan.) 

2.30 Alternative 2 

The management directions described subsequently, combined 

with those described in sections 2.24 (Management Categories), 

2.26 (Elements Common to All Alternatives), and 2.1 (Elements 

Common to All Action Alternatives) form the elements of this 

alternative. Figure 2-3 depicts this alternative. 

2.30.1 Management Direction 

With Alternative 2, there would be changes in the way lands are 

managed, in the manner in which the public can access the 
Chapter 2: Refuge Management Direction and Alternatives Alternative 2 

2-98 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Refuges, and in the emphasis of public-use monitoring and 

wildlife inventories and studies. The following graphic (grayed 

box) describes how this alternative would address the issues. If 

this alternative is implemented, the following would take place: 

 Helicopter landings for recreation purposes would be 

prohibited in sensitive resource or remote areas or at 

sensitive times. Landings could be considered in other 

areas. 

 Mapping of sensitive and remote areas would be done within 

five years of enactment of this Plan. These areas would be 

identified through a public planning effort to identify 

rookeries, haulouts, cultural sites, and other sensitive areas 

(see section 1.9.1 for information about sensitive and remote 

areas). 

 3,728,300 acres would be managed in the Minimal 

Management category. 

 9,100 acres would be managed in the Moderate Management 

category. 

 502,900 acres would be managed in the Wilderness 

Management category. 

 Refuge lands in the Cooperative Management category 

would be reclassified (see section 2.1). 

How Alternative 2 would address the issues: 

Issue 1: How should we address recreational access to remote and sensitive areas? All rivers and 

lakes would remain accessible to motorboats. Snowmachines would continue to be allowed. 

ORVs would continue to be allowed for subsistence purposes throughout the Refuges. 

Fixed-wing aircraft landings would not be limited. Primitive airstrips would remain open to 

airplanes, and all lakes currently accessible to airplanes would remain open. Sensitive and 

remote areas of the Refuges would be mapped prior to allowing helicopter landings. 

Helicopter landings for recreation purposes could be allowed on a case-by-case basis in 

areas not identified as sensitive or remote. 

Issue 2: How can conflicts between refuge user groups be minimized? Public-use monitoring would 

be at higher levels than with current management. Studies of public use would be 

conducted to allow development of site-specific objectives. 

General Refuge Management

Management would continue as with Alternative 1. The 

Cooperative Management category would not be used; these 

lands would be reclassified as Minimal Management. Where 

Cooperative and Wilderness Management had overlapped, 

lands would remain in Wilderness Management category. Table 

2-5 displays the acreages in the various management categories. 

Alternative 2 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-101 

Table 2-5 Management category designations in Alternative 2 

Management Category Acreage Percentage of 

Refuges 

Moderate Management 9,100 0.2 

Minimal Management 3,728,300 87.9 

Wilderness Management 502,900 11.9 

Total Service Administered 4,240,300 100 

Fish and Wildlife Management 

Monitoring and research would be increased above current levels. 

Subsistence Management 

Unchanged from Alternative 1. 

Public Use Management Plan 

Management would continue, with few changes, as described in 

sections 2.3, 2.4, and 2.24 and the Public Use Management Plan 

portion of Alternative 1 (section 2.28.1). Public-use monitoring and 

law enforcement activities would be at higher levels than under 

current management to ensure that recreation use remains 

compatible and that quality of the experience does not decline. The 

results would be used to identify objectives for specific sites, 

something that is not currently done. 

Alternative 2 would continue to allow for the possibility of 

recreation access by helicopter on the Refuges. Refuge staff, in 

cooperation with the state, would develop criteria and identify 

sensitive habitats, time periods, and areas in which helicopter 

landings for recreation purposes would be prohibited to minimize 

impacts to resources. Those criteria would be designed to ensure 

that helicopter access for recreation purposes would not be allowed 

in sensitive resource areas or in areas where remoteness is a value 

to be managed for. These criteria would be applied, in addition to 

compatibility and other determinations, to all new forms of 

motorized access that may be developed during the life of this Plan. 

The objective that would be added to those in section 2.2 is as 

follows: 

In order to evaluate opportunities for the recreation access by the use 

of helicopters on the Refuges, develop criteria to identify and 

designate nonsensitive areas by 2007. 

Commercial Services

Levels of law-enforcement activities, education, and monitoring 

would be increased; otherwise commercial services would remain 

unchanged from Alternative 1. 
Chapter 2: Refuge Management Direction and Alternatives Alternative 2 

2-102 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

Refuge Infrastructure/Administration

No change from Alternative 1. 

2.30.2 Funding and Personnel Requirements 

To implement Alternative 2 in the short term (less than three 

years), an increase in funding and staffing above the FY 2003 level 

would be implemented by the first full year following adoption of 

the Final Plan to allow for increased levels of inventory and 

monitoring. Additional funding of $223,000 and staffing of two 

permanent full-time (one law-enforcement officer and public-use 

specialist and one biologist), one permanent part-time (biologist and 

public-use specialist), and two seasonal (biologist) employees would 

be needed. This would require a budget of $2,017,00 and total 

staffing of 15 permanent, four permanent part-time, and four 

seasonal employees and six volunteers. 

Long-term budget and staffing goals (3–15 years) provide for 

implementation of projects identified in the Centennial Legacy Plan 

and the RONS to accomplish refuge objectives as well as to 

accommodate anticipated increases in subsistence and recreation 

use demands. These needs will not vary by alternative. Currently 

identified essential staffing, mission-critical projects, and an 

increase in recurring base funds to implement this alternative over 

the life of this Plan, include the following: 

 10 new permanent full-time positions 

 33 projects 

 An increase of $2,439,000 in recurring base funds 

In addition to continuing current management, Alternative 2 would 

provide for short-term projects to develop plans and infrastructure 

to implement long-term goals. Seasonal employees and volunteers 

play an important role in the Refuges’ personnel program. 

Numbers of seasonal employees and volunteers could vary 

considerably from year to year depending on projects but would 

likely increase with increases in budgets. 

Budget and staffing requirements to implement this alternative are 

presented in Table 2-6. 
Alternatives 2 and 3 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Draft Conservation Plan 2-103 

Table 2-6 Budget and staffing needs for Alternative 2 

Item Short-Term 

Implementation 

(< 3 years) 

Long-Term 

Implementation 

(3–15 years) 

Annual Budgeta $2,017,000 $4,456,000 

Permanent Employees 15 25 

Permanent Part-Time 

Employees 

4 4 

Seasonal Employeesb 4 10 

Seasonal Volunteersb 6 12 

a Based on FY 2003 dollars 

b Numbers of seasonal employees and volunteers would probably increase but 

would vary from year to year. 

2.31 Alternative 3 

The goals and objectives described in section 2.2, management 

directions described subsequently, combined with those described 

in sections 2.3 (Management Direction) and 2.24 (Management 

Categories), 2.26 (Elements Common to All Alternatives), and 2.1 

(Elements Common to All Action Alternatives) are combined to 

form the elements of this alternative. Figure 2-4 depicts 

Alternative 3. 

2.31.1 Management Direction 

Alternative 3 would provide goals and objectives for management of 

the Refuges and reduce the size of the Yantarni Bay Moderate 

Management area (Figure 2-5). Helicopter landings for recreation 

purposes would not be allowed. 

If this alternative is implemented, the following would take place: 

 Helicopter landings for recreation purposes would not be 

allowed. 

 The Yantarni Bay Moderate Management area would be 

reduced from 9,100 acres to 4,000 acres. 

 3,733,400 acres would be managed in the Minimal Management 

category. 

 4,000 acres would be managed in the Moderate Management 

category. 

 502,900 acres would be managed as designated Wilderness. 

 Refuge lands in the Cooperative Management category would 

be reclassified. (see section 2.1). 
Chapter 2: Refuge Management Direction and Alternatives Alternative 3 

2-104 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

How Alternative 3 would address the issues: 

Issue 1: How should we address recreation access to remote and sensitive areas? All rivers and lakes would 

remain accessible to motorboats. Snowmachines would continue to be allowed. ORVs would 

continue to be allowed for subsistence purposes throughout the Refuges. Fixed-wing aircraft 

landings would not be limited. Primitive airstrips would remain open to airplanes, and all lakes 

currently accessible to airplanes would remain open. Helicopter landings for recreation purposes 

would not be allowed. 

Issue 2: How can conflicts between refuge user groups be minimized? Public-use monitoring would be at 

higher levels than with current management. Studies of public use would be conducted to allow 

development of site-specific objectives. 

General Refuge Management 

Management would continue in the same general direction as with 

Alternative 1, except that the goals and objectives in section 2.2 and 

general management direction in sections 2.3 and 2.24 would apply 

to the Refuges. Boundaries of the Yantarni Bay Moderate 

Management area would be revised to use geographic boundaries 

and to recognize that the unique character of some of the area 

would be better protected as Minimal Management (Figure 2-5). 

This would reduce the size of the Moderate Management area to 

4,000 from 9,100 acres. All trails where ORV use is currently 

authorized are within the 4,000-acre area and would be unaffected 

by this change. The Cooperative Management category would not 

be used; these lands would be reclassified as Minimal Management. 

Where Cooperative and Wilderness Management categories had 

overlapped, lands would remain in the Wilderness Management 

category. Table 2-7 presents the acreages for Alternative 3. 

Table 2-7 Management category designations in Alternative 3 

Management Category Acreage Percentage of 

Refuges 

Moderate Management 4,000 0.1 

Minimal Management 3,733,400 88.1 

Wilderness Management 502,900 11.9 

Total Service Administered 4,240,300 100 

Fish and Wildlife Management

Monitoring and research would be increased above current levels 

Subsistence Management

Unchanged from Alternative 1. 

Alternative 3 Chapter 2: Refuge Management D

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Figure 2-5 Yantarni Bay Moderate Management Area 
Chapter 2: Refuge Management Direction and Alternatives Alternative 3 

2-108 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Public Use and Access Management

Management would continue, with few changes, as described in 

sections 2.3, 2.3, and 2.24 and the Public Use Management Plan 

portion of Alternative 1 (section 2.28.1). Public-use monitoring 

and law-enforcement activities would be at higher levels than 

under current management to ensure that recreation use 

remains compatible with the purposes of the Refuges and that 

the quality of the experience does not decline. The results of 

monitoring would be used to identify objectives for specific 

sites, which is not currently done. Use of helicopters for 

recreation access would not be allowed on the Refuges. 

Commercial Services

Levels of law-enforcement activities, education, and monitoring 

would be increased; otherwise commercial services would 

remain unchanged from Alternative 1, except that use of 

helicopters for access for recreation activities would not be 

allowed. 

Refuge Infrastructure and Administration

No change from Alternative 1. 

2.31.2 Funding and Personnel Requirements 

To implement Alternative 3 in the short term (less than three 

years), an increase in funding and staffing above the FY 2003 

level would be implemented to allow for increased levels of 

inventory and monitoring. Additional funding of $177,000 and 

staffing of two permanent full-time (one law-enforcement officer 

and public-use specialist and one biologist) and two seasonal 

(biologist) employees would be needed. This would require a 

budget of $1,884,000 and total staffing of 15 permanent, three 

permanent part-time, and four seasonal employees and six 

volunteers. 

Long-term budget and staffing goals (3–15 years) provide for 

implementation of projects identified in the Centennial Legacy 

Plan and the RONS to accomplish refuge objectives as well as to 

accommodate anticipated increases in subsistence and 

recreation demands. These needs will not vary by alternative. 

Currently identified essential staffing, mission-critical projects, 

and an increase in recurring base funds to implement this 

alternative over the life of this Plan include the following: 

 10 new permanent full-time positions 

 33 projects 

 An increase of $2,439,000 in recurring base funds 
Alternatives 3 and 3a Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-109 

In addition to continuing current management, short-term 

projects would include developing plans and infrastructure to 

implement long-term goals. Seasonal employees and volunteers 

play an important role in the Refuges’ personnel program. 

Numbers of seasonal employees and volunteers could vary 

considerably year to year, depending on projects, but would 

likely increase with increases in budgets. Budget and staffing 

requirements to implement this alternative are presented in 

Table 2-8. Budget and staffing levels required to implement all 

the alternatives are compared in Table 2-13. 

Table 2-8 Budget and staffing needs for Alternative 3 

Item Short-Term 

Implementation 

(< 3 years) 

Long-Term 

Implementation 

(3–15 years) 

Annual Budget $1,971,000 $4,310,000 

Permanent Employees 15 25 

Permanent Part-Time 

Employees 

3 3 

Seasonal Employeesb 4 8 

Seasonal Volunteersb 6 12 

a Based on FY 2003 dollars 

b Numbers of seasonal employees and volunteers would probably increase 

but would vary from year to year. 

2.32 Alternative 3a 

Preferred Alternative

This alternative is a modification of Alternative 3 to allow for 

the potential for recreation access by helicopter. In all other 

aspects, it is identical to Alternative 3: it incorporates the goals 

and objectives described in section 2.2 and incorporates the 

management directions described subsequently, combined with 

those described in sections 2.3 (Management Direction), 2.24 

(Management Categories), 2.26 (Elements Common to All 

Alternatives), and 2.1 (Elements Common to All Action 

Alternatives) to form the elements of this alternative. The 

Yantarni Bay Moderate Management area (Figure 2-5) is 

reduced in size. Figure 2-6 depicts Alternative 3a. 

2.32.1 Management Direction 

Alternative 3a would direct management in the same manner as 

does Alternative 3 except that helicopter landings for recreation 

purposes would be considered on a case-by-case basis. 

If this alternative is implemented, the following would take 

place: 
Chapter 2: Refuge Management Direction and Alternatives Alternative 3a Preferred Alternative 

2-110 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

 Applications for permits for helicopter landings, outside of 

the Wilderness Area, for recreation purposes would be 

considered on a case-by-case basis. 

 The Yantarni Bay Moderate Management area would be 

reduced from 9,100 acres to 4,000 acres. 

 3,733,400 acres would be managed in the Minimal 

Management category. 

 4,000 acres would be managed in the Moderate 

Management category. 

 502,900 acres would be managed as designated Wilderness. 

 Refuge lands in the Cooperative Management category 

would be reclassified (see section 2.1). 

How Alternative 3a would address the issues: 

Issue 1: How should we address recreation access to remote and sensitive areas? All rivers and lakes 

would remain accessible to motorboats. Snowmachines would continue to be allowed. ORVs 

would continue to be allowed for subsistence purposes throughout the Refuges. Fixed-wing 

aircraft landings would not be limited. Primitive airstrips would remain open to airplanes, 

and all lakes currently accessible to airplanes would remain open. Helicopter landings for 

recreation purposes could be allowed on a case-by-case basis. 

Issue 2: How can conflicts between refuge user groups be minimized? Public-use monitoring would 

be at higher levels than with current management. Studies of public use would be conducted 

to allow development of site-specific objectives. 

General Refuge Management 

Management would generally continue in the same direction as 

with Alternative 3. Goals and objectives in section 2.2 and 

general management direction in sections 2.3 and 2.24 would 

apply to the Refuges. Boundaries of the Yantarni Bay Moderate 

Management area would be revised to use geographic 

boundaries and to recognize that the unique character of some 

of the area would be better protected as Minimal Management 

(Figure 2-5). This would reduce the size of the Moderate 

Management area to 4,000 from 9,100 acres. All trails where 

ORV use is currently authorized are within the 4,000-acre area 

and would be unaffected by this change. The Cooperative 

Management category would not be used; these lands would be 

reclassified as Minimal Management. Where Cooperative and 

Wilderness Management had overlapped, lands would remain in 

the Wilderness Management category. Table 2-9 presents the 

acreages for Alternative 3a. 

Alternative 3a Preferred Alternative Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula/Becharof NWR Comprehensive Conservation Plan 2-113 

Table 2-9 Management category designations in Alternative 3a 

Management Category Acreage Percentage of 

Refuges 

Moderate Management 4,000 0.1 

Minimal Management 3,733,400 88.1 

Wilderness Management 502,900 11.9 

Total Service Administered 4,240,300 100 

Fish and Wildlife Management

Monitoring and research would be increased above current 

levels 

Subsistence Management

Unchanged from Alternative 1. 

Public Use and Access Management

Management would continue, with few changes, as described in 

sections 2.3, 2.4, and 2.24 and the Public Use Management Plan 

portion of Alternative 1 (see section 2.1). Public-use monitoring 

and law-enforcement activities would be at higher levels than 

under current management to ensure that recreation use 

remains compatible with the purposes of the Refuges and that 

the quality of the experience does not decline. The results of 

monitoring would be used to identify objectives for specific 

sites, which is not currently done. Helicopter access for 

recreation uses, outside of the Becharof Wilderness Area, would 

be considered on a case-by-case basis and could be allowed by 

special-use permit. 

Commercial Services

Levels of law-enforcement activities, education, and monitoring 

would be increased; otherwise commercial services would 

remain unchanged from Alternative 1. Use of helicopters for 

access for recreation activities would be considered outside 

designated Wilderness on a case-by-case basis. 

Refuge Infrastructure and Administration

No change from Alternative 3. 

2.32.2 Funding and Personnel Requirements 

To implement Alternative 3a in the short term (less than three 

years), an increase in funding and staffing above the FY 2003 

level would be implemented to allow for increased levels of 

inventory and monitoring. Additional funding of $177,000 and 

staffing of two permanent full-time (one law-enforcement officer 

and public-use specialist and one biologist) and two seasonal 

(biologist) employees would be needed. This would require a 
Chapter 2: Refuge Management Direction and Alternatives Alternative 3a Preferred Alternative 

2-114 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

budget of $1,884,000 and total staffing of 15 permanent, three 

permanent part-time, and four seasonal employees and six 

volunteers. 

Long-term budget and staffing goals (3–15 years) provide for 

implementation of projects identified in the Centennial Legacy 

Plan and the RONS to accomplish refuge objectives as well as to 

accommodate anticipated increases in subsistence and 

recreation demand. These needs will not vary by alternative. 

Currently identified essential staffing, mission-critical projects, 

and an increase in recurring base funds to implement this 

alternative over the life of this Plan include the following: 

 10 new permanent full-time positions 

 33 projects 

 An increase of $2,439,000 in recurring base funds 

In addition to continuing current management, short-term 

projects would include developing plans and infrastructure to 

implement long-term goals. Seasonal employees and volunteers 

play an important role in the Refuges’ personnel program. 

Numbers of seasonal employees and volunteers could vary 

considerably year to year, depending on projects, but would 

likely increase with increases in budgets. Budget and staffing 

requirements to implement this alternative are presented in 

Table 2-10. Budget and staffing levels required to implement all 

the alternatives are compared in Table 2-13. 

Table 2-10 Budget and staffing needs for Alternative 3a 

Item Short-Term 

Implementation 

(<3 years) 

Long-Term 

Implementation 

(3–15 years) 

Annual Budget $1,971,000 $4,310,000 

Permanent Employees 15 25 

Permanent Part-Time 

Employees 

3 3 

Seasonal Employeesb 4 8 

Seasonal Volunteersb 6 12 

a Based on FY 2003 dollars 

b Numbers of seasonal employees and volunteers would probably increase 

but would vary from year to year. 

2.33 Summary Comparison of 

Alternatives 

Funding for Alternative 1 would require a continuation of the 

current level of funding (adjusted for inflation) to support the 

current staffing level. Funding for Alternatives 2, 3, and 3a 

would require increases above the current level to support an 

increase in staffing. Table 2-13 presents the budget and staffing 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-115 

levels (FY 2003 dollars) required to implement each of the 

alternatives. Additional personnel and funding needs are 

identified in the RONS. These needs are updated annually and 

are not detailed in this plan. 

The following tables compare the alternatives by major topic. 

Table 2-11 show a comparison of acreage, and Table 2-12 gives 

an over all comparison of the alternatives. 

Table 2-11 Comparison of acreages in the various management categories by alternative 

Category (acres) Alternative 1 

Current 

Alternative 2 Alternative 3 Alternative 3a 

Preferred 

Intensive Management 0 0 0 0 

Moderate Management 9,100 9,100 4,000 4,000 

Minimal Management 3,364,600b 3,728,300b 3,733,400b 3,733,400b

Wilderness Management 502,900 502,900 502,900 502,900 

Cooperative Managementd 387,400a,c 0 0 0 

Total lands administered by 

Service 

4,240,300 4,240,300 4,240,300 4,240,300 

 Acreages were developed by Arc/Info analysis of U.S. Fish & Wildlife Service land status maps. These areas 

have not been surveyed. Acreage figures may change over time as data sources improve. U.S. Fish & Wildlife 

Service land status maps were derived from Bureau of Land Management Master title plats. 

a Includes Becharof Lake and Upper and Lower Ugashik lakes. 

b Includes only federal lands. 

c Includes 23,700 acres of designated Wilderness. 

d Cooperative Management merges with Minimal Management for Alternatives 2, 3, and 3a. Although the original 

plan called for the Cooperative Management category to be applied to 387,400 acres within the Refuges, for 

practical purposes this category is no longer used. We consider that we cooperate with others in all our 

management activities. 

Table 2-12 Comparison of alternatives 

Comparison 

Item 

Alternative 1 

Current Condition 

Alternative 2 Alternative 3 Alternative 3a 

Preferred 

Fish and 

Wildlife 

Management 

Existing plan does 

not provide focused 

direction for fish 

and wildlife 

management. 

Provides goals and 

objectives for 

increasing our 

knowledge of 

wildlife and 

habitat needs and 

relationships 

through increases 

in monitoring and 

research 

Same as 

Alternative 2 

Same as 

Alternative 2 
Chapter 2: Refuge Management Direction and Alternatives 

2-116 Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 

Comparison 

Item 

Alternative 1 

Current Condition 

Alternative 2 Alternative 3 Alternative 3a 

Preferred 

Conflicts 

Between User 

Groups 

Administration of 

public use is 

reactive. 

Conflict areas 

would be actively 

monitored with 

results used to 

facilitate wildlifedependent 

recreation, 

subsistence, and 

other traditional 

uses in a manner 

that minimizes 

conflicts between 

user groups. 

Provides goals and 

objectives for 

facilitating wildlifedependent 

recreation, 

subsistence, and 

other traditional 

uses in a manner 

that minimizes 

conflicts between 

user groups. 

Same as 

Alternative 3 

Helicopter 

Landings for 

Recreation 

Access 

Helicopter landings 

for recreation 

access would be 

evaluated, outside 

of designated 

Wilderness, on a 

case-by-case basis. 

Helicopter 

landings for 

recreation access 

may be allowed in 

areas not 

identified in a 

step-down plan as 

sensitive or 

remote. 

Helicopter 

landings for 

recreation access 

not allowed. 

Same as 

Alternative 1 

Yantarni Bay 

Moderate 

Management 

Area 

9,100 acres in size; 

existing access and 

uses continued. 

Same as 

Alternative 1 

4,000 acres in size; 

Existing access and 

uses continued. 

Boundary 

adjustment reflects 

relocation to 

geographically 

identifiable 

features while 

including all offroad vehicle trails 

and areas of 

moderate use. 

Same as 

Alternative 3 
 Chapter 2: Refuge Management Direction and Alternatives 

Alaska Peninsula and Becharof NWR Comprehensive Conservation Plan 2-117 

Table 2-13 Summary of budget staffing needs 

Item Alternative 1 

Current 

Alternative 2 Alternative 3 Alternative 3a 

Preferred 

Implementation Period ShortTerm 

LongTerm ShortTerm LongTerm ShortTerm LongTerm ShortTerm LongTerm 

Annual Budget 

(millions)a

 

$1.794 $4.233 $2.017 $4.456 $1.971 $4.41 $1.971 $4.41 

Permanent Employees 12 22 14 23 14 25 14 25 

Permanent Part-Time 

Employees 

3 4 4 4 3 3 3 3 

Seasonal Employeesb 2 7 4 10 4 8 4 8 

Seasonal Volunteersb 4 8 6 12 6 10 6 10 

 Short-term = less than three years 

 Long-term = 3–15 years 

a Based on FY 2003 dollars 

b Numbers of seasonal employees and volunteers would probably increase, but would vary from year to year. 

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