Chapter 6 

Alaska Peninsula and Becharof NWR Draft Conservation Plan 6-1 

6. Implementation and Monitoring 

Implementation of the Alaska Peninsula and Becharof National 

Wildlife Refuges Comprehensive Conservation Plan is effected 

by means of various step-down plans (Section 6.1). Each of these 

plans has its own focus and revision schedule. 

Part of the implementation process is the Refuges’ involvement 

with partnership opportunities, as discussed in Section 6.2. 

Monitoring the outcome of implementation is effected by means 

of surveys, inventories, creel censuses, etc. (Section 6.3) and 

may lead to amendment or revision of the Plan (Section 6.4). 

6.1 Step-Down Plans 

Step-down management plans are plans that deal with specific 

management subjects. They describe management strategies 

and implementation schedules and provide details necessary to 

fulfill management goals and objectives identified in the 

Conservation Plan. (DSM 602 FW 1.5) Step-down plans for the 

Refuges include the following: 

Cultural Resource Guide 

This step-down plan provides guidance to refuge staff in 

meeting legal requirements to protect and manage the cultural 

resources of the Refuges. The Cultural Resources Guide 

provides a ready reference to the cultural resource guidance 

provided by law and regulation, by the Service Manual, and by 

the Cultural Resource Management Handbook. As a guide, it 

outlines roles and responsibilities, summarizes legislation 

governing management of cultural resources, and contains 

information of potential use to the refuge manager. It describes 

the current state of our knowledge of the prehistory and history 

of the region. It includes a list of projects that would fill in gaps 

in knowledge or would complete existing work. The guide was 

completed in 1996, and the next review is in 2008. 

Environmental Education Plan 

An environmental education plan gives direction to the 

educational and outreach programs conducted by refuge staff. 

Programs are primarily directed at children, but include all 

segments of the populations in the communities surrounding the 

Refuges. All refuge staff are involved with formal and informal 

programs that focus on teaching about fish and wildlife and the 

ecosystems around them. Emphasis is on national directives of 

the Service, refuge purposes, and special programs such as 

International Migratory Bird Day, National Wildlife Refuge 

Week, National Fishing Week, and the Alaska Goose Calendar 

Contest. Educational programs are promoted through contacts 
Chapter 6: Implementation and Monitoring 

6-2 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

with school faculty, classroom visits, providing environmental 

education materials, and lending educational materials. The 

plan was initially developed in 1991 and is updated yearly. 

Facilities Management Plan 

A facilities management plan describes the history and 

condition of all Service buildings associated with the Refuges. It 

includes an inventory describing the adequacy of each of the 

structures for its present use and provides a schedule for future 

repairs and construction to meet refuge needs. The current plan 

was approved in January 1997; it will be updated in 2005. 

Fire Management Plan 

Fire management plans describe how a refuge would respond in 

a wildland fire situation and are normally required by the 

planning process. A fire management plan is not required for 

the Alaska Peninsula and Becharof Refuges because the 

complex is among the five refuges in Region 7 that are excluded 

from this requirement because of low fire incidence. (RW–25 

Section 5.1). 

Fisheries Management Plan 

The Fisheries Management Plan describes the fishery resource, 

the ways in which humans have used the resource, the history of 

fisheries management on the Refuges, and major issues and 

concerns. The plan provides for continued use of fishery 

resources by subsistence, commercial, and recreational users. It 

provides direction to ensure the conservation of fishery 

resources and habitat. It describes objectives and tasks to 

address the issues and concerns and assigns priorities and costs 

for Federal tasks. It was last updated in 1994 and is scheduled 

for review in 2008. 

Habitat Inventory Plan 

The Habitat Inventory Plan will be developed to guide the 

Refuges in evaluating habitats by developing goals, objectives, 

priorities, and methods for conducting habitat inventories. The 

plan will guide development of maps of major vegetation types 

and maps and habitat models for caribou, moose, and additional 

species. It will incorporate a plan for a reconnaissance of 

invasive plant and animal species. It is expected to be completed 

by December 2007. 

Land-Conservation Plan 

A land-conservation plan (LCP) focuses on private lands within 

the refuge boundaries with the goal of identifying and 

conserving high-quality habitat on those lands. The plan will 

guide the Refuges’ land conservation activities and provide a 
Chapter 6: Implementation and Monitoring 

Alaska Peninsula and Becharof NWR Draft Conservation Plan 6-3 

framework for refuge and private landowner cooperation. Any 

course of action would require mutual consent. The plan does 

not obligate either the Refuges or the landowners to undertake 

any of the land-conservation measures identified. The Refuges 

must consider management goals, priorities, and the availability 

of funds when approached by private landowners with landconservation proposals. The Refuges’ LCP was completed in 

2002. 

Public-Use Management Plan 

A public-use management plan (PUMP) guides the 

management of recreational and subsistence uses, including 

hunting, trapping, fishing, guiding, camping, photography, 

sightseeing, hiking, and wildlife viewing. It summarizes how the 

public was involved in developing issues and alternatives and 

describes the alternatives that were developed to manage public 

use. Previously completed in 1994, the Refuges’ PUMP will be 

updated by incorporation into this Conservation Plan. 

Safety Plan 

A refuge safety plan focuses on the goal of providing a safe and 

healthful environment for employees and the visiting public. It 

aims to minimize accidents resulting in injury to employees and 

the visiting public and to prevent property damage. It describes 

programs needed to train personnel in how to deal with the 

environment, materials, and machines that may pose hazards, 

with the goal of making safety and environmental health an 

integral part of every task. The safety plan is revised annually. 

Water Resources Plan 

A water resources plan guides collection of hydrologic data on 

waters within and draining onto the Refuges. Objectives of this 

plan are to document the occurrence, quantity, distribution, and 

movement of surface waters and to quantify instream water 

rights needed to maintain and protect fish and wildlife habitats. 

The plan describes the water bodies of interest and the goals, 

objectives, priorities, and methods of study needed. A water 

resources plan for the Refuges is scheduled to be developed by 

2010. 

Wildlife Inventory Plan 

A wildlife inventory plan provides guidance in planning a 

program to inventory and monitor the animal populations of the 

Refuges. This plan supports Service policy to collect baseline 

information, monitor critical parameters and trends, and base 

management on biologically and statistically sound data. This 

plan will guide collection of data on species of management 

concern. It will describe the types of surveys that will be used, 
Chapter 6: Implementation and Monitoring 

6-4 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

emphasis of the studies, sampling design and data standards, 

reporting requirements, how the data will be stored, and when 

data will be updated. A wildlife inventory plan for the Refuges 

expected to be completed by October 2007. 

Wilderness Stewardship Plan 

This plan is a step-down management plan that provides 

detailed strategies and implementation schedules for meeting 

the broader wilderness goals and objectives identified in the 

Conservation Plan. Where the majority of a refuge is 

designated Wilderness, the Service may prepare a detailed CCP 

that incorporates the required elements of a Wilderness 

stewardship plan rather than preparing a separate plan. 

A wilderness stewardship plan guides the preservation, 

stewardship, and use of a particular Wilderness area. In it are 

described the goals, objectives, and stewardship strategies for 

the wilderness area, based on the refuge purpose(s) (including 

Wilderness Act purposes), System mission, and wilderness 

stewardship principles. It contains specific, measurable 

stewardship objectives that address the preservation of cultural 

and natural resource values and conditions. This plan must 

clearly show the strategies and actions to be used and 

implemented to preserve the wilderness resource and the 

linkage between those strategies and actions and the wilderness 

objectives. It also contains indicators, standards, conditions, or 

thresholds that define adverse impacts on wilderness character 

and values and that will trigger stewardship actions to reduce or 

prevent them. 

A wilderness stewardship plan for the Refuges will be 

completed, in coordination with state wildlife agencies and with 

public involvement, by 2010. 

6.2 Partnership Opportunities 

Partnerships with other organizations are among the ways in 

which the Service fulfills its mission, “Working with others to 

conserve, protect, and enhance fish, wildlife, and plants and 

their habitats for the continuing benefit of the American 

people.” Partnership opportunities would be consistent 

throughout all alternatives. 

The Refuges exist within a dynamic ecosystem. Fish, wildlife, 

and other resources do not respect artificial boundaries, and 

many of the resources within the Refuges are of national and 

international importance. The Service recognizes that the 

public, organizations, and other government agencies have 

interests in the Refuges. Implementation of many refuge 

programs requires community involvement and assistance. 
Chapter 6: Implementation and Monitoring 

Alaska Peninsula and Becharof NWR Draft Conservation Plan 6-5 

The Refuges look for opportunities to coordinate activities with 

the following, among others: 

 Koniag, Inc., the Aleut Corporation, and the Bristol Bay 

Native Corporation 

 Local village corporations 

 Local village councils 

 Local communities and boroughs 

 State of Alaska 

 National Park Service 

 Universities 

 Nongovernmental organizations 

 Alaska Natural History Association (ANHA) 

Existing, past, and potential partnerships include the 

following: 

 King Salmon Visitor Center, providing information and 

educational services highlighting the natural and cultural 

resources and recreational opportunities on the Alaska 

Peninsula; operated in conjunction with the National Park 

Service, Bristol Bay Borough, Lake and Peninsula Borough, 

and the Alaska Natural History Association 

 “Spirit of Becharof Lake” Ecosystem Science Camp, a 

week-long residential camp for rural high school students 

operated in partnership with U.S. Geological Survey 

(USGS) Alaska Science Center, Bristol Bay School District, 

Lake and Peninsula School District, Alaska Audubon 

Society, Alaska Natural History Association, and the Native 

American Fish and Wildlife Society 

 Environmental education and outreach programs in 

coordination with Bristol Bay School District, Lake and 

Peninsula School District, scouting organizations, traditional 

village councils, village elders, Alaska Audubon Society, 

Ducks Unlimited, and Alaska Department of Fish and Game 

(ADF&G) 

 Planning for management of fish and wildlife resources on 

Service lands conducted in cooperation with ADF&G, based 

on a formal memorandum of understanding 

 Inventory, monitoring, and study of the Northern Alaska 

Peninsula caribou herd—including herd counts, composition 

counts, and calf mortality studies—conducted in formal 

cooperation with ADF&G 

 Moose trend surveys to determine population trends and 

composition conducted in conjunction with ADF&G and the 

National Park Service 
Chapter 6: Implementation and Monitoring 

6-6 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

 Design, development, and production of refuge-related 

interpretive educational materials in cooperation with 

ANHA 

 A creel survey of the sport fishery conducted at the Ugashik 

Narrows in conjunction with ADF&G 

 Annual spring breeding birds surveys conducted in 

conjunction with the National Park Service 

 Monitoring Avian Productivity and Survivorship (MAPS), 

continuing studies of bird populations conducted in 

conjunction with the Institute for Bird Populations 

 Bird counts conducted several times per year with the 

cooperation of partners, including the National Audubon 

Society, Partners in Flight, and USGS’s Biological 

Resources Division 

 Annual bird banding performed in conjunction with USGS’s 

Biological Resources Division 

 Participation in Gateway Community participation in 

planning efforts with the Bristol Bay Borough, the Lake and 

Peninsula Borough, and local villages (in recognition that 

the Refuges are important in the economic and social life of 

neighboring communities) 

 Ecoregional plans to identify key habitats and vegetation 

communities developed for all lands on the Alaska 

Peninsula, in the cooperation with the Nature Conservancy 

 Bristol Bay Native Corporation has suggested that the 

Ugashik Narrows is an area in which it could cooperate with 

the Service on studies and planning. The Service would be 

willing to participate in this. The State of Alaska would be 

included in any planning in this area because of the fishery 

resource and potential navigability issues. 

 Studies of archaeological sites at Ugashik Narrows 

conducted by the University of Oregon 

6.3 Monitoring and Evaluation 

Monitoring helps the Refuges staff track the progress of plan 

implementation. Results of monitoring show how objectives are 

being achieved and help staff to measure progress towards 

accomplishing goals. Table 6-1 displays inventory and 

monitoring projects that would concern fish, wildlife, and bird 

populations and their habitats. Table 6-2 displays monitoring 

indicators for public use. 
Chapter 6: Impleme

Alaska Peninsula and Becharof NWR Draft Conservation Plan 

Table 6-1. Increased inventory and monitoring projects associated with the action alternatives 

Mandates Resources Monitor Potenti

Ecosystem Integrity Water 

Soils Birds (including neotropical migrants, shorebirds, waterfowl, and raptors) Mammals (game and nongame, furbearers) Reptiles Fish (anadromous and resident) Invertebrates Habitat 

Subsistence Uses Game mammals 

Anadromous fish Resident fish Waterfowl Furbearers Seabirds Habitat 

Other Public Uses Game mammals 

Anadromous fish Resident fish Waterfowl Habitat 

Water quality and quantity Erosion Vegetation Species abundance Population dynamics Habitat requirements Habitat quality and quantity Distribution and movements Invasive species User impacts 

Water quality (inclususpended sedimentGulley formation Flow rate Presence/absence of Population range Population trends Population compositPopulation estimatePopulation productiTraditional ecologicHarvest trends Migration patterns Range condition Plant species compoHabitat condition (sHabitat degradation 
Chapter 6: Implementation and Monitoring 

6-8 Alaska Peninsula and Becharof NW

Table 6-2. Monitoring indicators for public use, standards, and possible actions 

Monitoring Question Measured Action and 

Effect Key Indicator(s) 

Management Standard(s) to 

Be Used 

Possible Management Actions 

Triggered if Standard(s) Not Met 

What is the nature and extent of conflicts between recreational and subsistence uses at the Becharof Outlet? 

Observations of behavior of subsistence and recreational users at the outlet; interviews with a randomly selected subsample of site users. Indicators: reported levels of displacement, competition, crowding, and other sources of conflict. Compare new information with that obtained in 1999 and 2000. 

Likelihood of significant impact, if actions not taken, to subsistence users because of displacement, depletion of resources, or other effects of recreational use 

To be determined, based on nature of findings. Visitor education; if not successful, possible zoning of recreational use by location or timing. Work cooperatively with State of Alaska. 

Tmon Ocowsi

Is off-road vehicle (ORV) use causing adverse effects on refuge resources? 

Vegetation and soil damage

 Designating areas or trails for 

use and limiting use in undesignated areas Designating times of year or seasons that travel will be permitted in areas open to ORV use Closing certain areas of impact for parts of seasons or whole years until recovery can produce desired results Developing cooperative management and enforcement strategies with other state, private, and Federal entities that are operating in the area(s) of concern 

UphvicoStusefco
Chapter 6: Impleme

Alaska Peninsula and Becharof NWR Draft Conservation Plan 

Monitoring Question Measured Action and 

Effect Key Indicator(s) 

Management Standard(s) to 

Be Used 

Possible Management Actions 

Triggered if Standard(s) Not Met 

 Visible wear to trails Visible increase for more 

than one season 

 Surface rutting Visible increase  Laying over or 

breaking of vegetation 

Visible or documented point-source erosion from ORV use 

 Point erosion to water 

bodies 

Documented increase (amount to be determined) in conflicts between ORV users and other users for more than one season 

Is recreational use of sensitive wildlife areas affecting brown bears? 

Bear incidents Increased visitor education 

efforts; close specific areas to camping and/or visitation during critical bear-use periods; additional regulation of visitors viewing bears; work cooperatively with ADF&G 

Rco

 Defense of life or 

property (DLP) kills 

Increase in number of incidents at specific locations Increase in one season or over several seasons. 

 R

co

 Change in distribution 

or numbers in specific stream reaches, sedge meadows, etc. 

Decrease in local distribution or numbers of bears correlated to increase in public use 

 D

numin
Chapter 6: Implementation and Monitoring 

6-10 Alaska Peninsula and Becharof NW

Monitoring Question Measured Action and 

Effect Key Indicator(s) 

Management Standard(s) to 

Be Used 

Possible Management Actions 

Triggered if Standard(s) Not Met 

Is recreational use of the Becharof Lake area displacing subsistence users? 

Reported displacement Upward trends in reports of 

displacement 

Increase visitor education; work with guides, transporters, and subsistence users to resolve; recommend changes to state and Federal hunting regulations 

Ninanco

Is recreational use of the Refuges displacing subsistence users? 

Reported displacement Upward trends in reports of 

displacement 

Increase visitor education; work with guides, transporters, and subsistence users to resolve; recommend changes to state and Federal hunting regulations 

Ninanco

Are dispersed campsites affecting soils and vegetation? 

Soil and vegetation condition 

Visible or measurable damage to tundra over more than 10% of site: >1 square meter of bare ground or compacted (puddled) soils; other(s) to be developed 

Increased user education efforts; revegetate site; designate or harden campsite; close site to camping 

Cangrdito 

What is the current level of visitor use in key areas of the Refuges, and what are the trends? 

Number of visitors, number of parties, length of stay, sites visited, activities occurring on the Refuges

Not applicable; baseline data 

Monitoring to collect baseline information; would trigger visitor-use studies at specific sites as needed 

Gopoban

What are the current amounts and distributions of recreational fishing activities on the Refuges, and what are the effects of this use? 

Recreational fishing locations, fishing pressure, fish population conditions and trends, and conflicts 

To be developed (see below for one component) 

Recommend changes in fishing regulations to Alaska Board of Fisheries; limit recreational fishing access to key sites where there are problems; allocate recreational fishing access between guided and nonguided visitors; develop plan for management of recreational fishing, as necessary 

Gopvisusustan
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Alaska Peninsula and Becharof NWR Draft Conservation Plan 

Monitoring Question Measured Action and 

Effect Key Indicator(s) 

Management Standard(s) to 

Be Used 

Possible Management Actions 

Triggered if Standard(s) Not Met 

Is quality of recreation being maintained at key recreational fishing sites? 

Visitor perceptions of quality and resource and social conditions, with pilot survey beginning at the Ugashik Narrows and other sites as needed (determined from baseline data collection above) 

Statistically determined, based on survey results 

Develop site objectives; work with air taxis and recreational fishing guides to voluntarily meet objectives; work with State of Alaska to regulate activity levels (only if objectives cannot be met through other methods) 

Rof gunoanye

Are opportunities for primitive and unconfined recreation still present in the Becharof Wilderness and other areas recommended for Wilderness designation? 

Visitor perceptions of opportunities for solitude and other characteristics of primitive recreation 

80% or more of recreational visitors have what they define as a primitive experience 

Visitor education and voluntary redistribution of trips; regulation of use levels a possibility over the long term but only if use and/or its social impacts increase substantially over present levels 

RsuWreW(nye

Are guides following procedures outlined in special-use permits? 

Compliance with permit stipulations 

100% compliance Modifications to procedures; 

standard disciplinary actions that can be taken under existing regulations 

Fpemfie
Chapter 6: Implementation and Monitoring 

6-12 Alaska Peninsula and Becharof NWR Draft Conservation Plan 

6.4 Plan Amendment and Revision 

Periodic review and revision of this Plan will be necessary. As 

knowledge of the Refuges resources and users improves, 

changes in management directions may be identified. Fish and 

wildlife populations, user groups, adjacent land users, and other 

management considerations change with time, often in 

unforeseen ways. Problems also may be encountered in 

implementing the Plan. 

Revisions are a necessary part of the adaptive management 

approach used by the Refuges. This means that objectives and 

strategies to reach goals can be adjusted. Most of the resulting 

changes will fine-tune the plan. These changes will not require 

modification of this document because minor changes will be 

addressed in the more-detailed refuge management plan, stepdown plans, and annual work plans. Only if a significant change 

is required in the management of the Refuges will it become 

necessary to develop a plan with a new environmental impact 

statement. 

To enable refuge users; adjacent landowners; local, state and 

Federal agencies, and other interested parties to express their 

views on how the Refuges are being managed, the Refuges will 

periodically hold meetings—or use other techniques such as 

comment cards and surveys—to solicit comments for evaluation 

purposes. By encouraging continuing public input, the Refuges 

will be better able to serve the public, to determine potential 

problems before they occur, and to take immediate action to 

resolve existing problems. 

Every three to five years, Refuges staff will review public 

comments, local and state government recommendations, staff 

recommendations, research studies, and other sources to 

determine if revisions to the Plan are necessary. If major 

changes are proposed, public meetings may be held or new 

environmental assessment and environmental impact 

statements may be necessary. Full review and updating of the 

Plan will occur every 15 years.