Determination of Need for Commercial Services within the South Prince of Wales Wilderness Area. Craig Ranger District Tongass National Forest

Transcription

1 PAGE 1 EXECUTIVE SUMMARY Determinatin f Need fr Cmmercial Services within the Suth Prince f Wales Wilderness Area Craig Ranger District Tngass Natinal Frest The Craig Ranger District (CRD), Tngass Natinal Frest, develped this needs assessment (NA) t determine the type f utfitter/guide use that culd take place in the Suth Prince f Wales Wilderness (SPOWW) area. An NA is a methdlgy fr determining if, in fact, there is a need fr private enterprise t assist the agency in prviding access, services and/r ther assistance fr the recreating public t safely and prperly enjy Natinal Frest wilderness areas. This dcument is tiered t the Tngass Frest Plan as amended in February 2008 and the Determinatin f Need and Extent f Cmmercial Uses within Wilderness Areas n the Tngass Natinal Frest (USDA Frest Service 2007). A determinatin f need fr cmmercial use fr backpacking/camping, hunting, freshwater fishing and remte setting nature turs (PASSIVE TOURING) is as fllws: Determinatin f need fr cmmercial use fr guided camping: It is recmmended that cmmercially guided camping be authrized in the SPOWW area thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided hunting: It is recmmended that cmmercially guided hunting be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided freshwater fishing: It is recmmended that guided sprt fishing be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided Passive Turing: It is recmmended that cmmercially guided Passive Turing be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided Active Turing: It is recmmended that cmmercially guided Active Turing be authrized thrugh this needs assessment. Francisc Sanchez Craig District Ranger Date

2 PAGE 1 Determinatin f Need fr Cmmercial Services within the Suth Prince f Wales Wilderness Area Thrne Bay Ranger District Tngass Natinal Frest Prepared by: Victria Huser Date: April 2009 I. Intrductin The Craig Ranger District (CRD), Tngass Natinal Frest, develped this needs assessment (NA) t determine the type f utfitter/guide use that culd take place in the Suth Prince f Wales Wilderness (SPOWW) area. An NA is a methdlgy fr determining if, in fact, there is a need fr private enterprise t assist the agency in prviding access, services and/r ther assistance fr the recreating public t safely and prperly enjy Natinal Frest Wilderness. This dcument is tiered t the Tngass Frest Plan as amended in February 2008 and the Determinatin f Need and Extent f Cmmercial Uses within Wilderness Areas n the Tngass Natinal Frest (USDA Frest Service 2007). This 91,018 acre Wilderness is ne f the mst remte wildernesses n the Tngass Natinal Frest. A dense rain frest carpets the rugged muntains. Turbulent seas gradually lull int quiet bays. It s lcatin n the suthern tip f Prince f Wales Island, expsed t the pen cean swell f Dixn Entrance, makes access difficult. The prtected bays and inlets f Suth Prince f Wales Wilderness are 30 miles suth frm Hydaburg and 65 miles frm Craig. Assumptins The fllwing are assumptins made t aid in the assessment f the need fr utfitter/guide peratins: We expect verall visitr use t remain at current levels r cntinue t increase (TLRMP Amendment Recrd f Decisin 2008). There may als be shifts in use patterns (timing and lcatin) and user types (hikers, backpackers, day users, etc.). Camping appears t be shifting frm sme traditinal lcatins t different lcatins. Fishing use at traditinal sckeye streams has declined, but may increase if pressure n ther systems increase. Sme peple wuld nt visit the wilderness withut an utfitter r guide because they lack the skills, knwledge, equipment, r ability t d s n their wn. There will be a cntinued and increased demand fr special use permits t cnduct utfitter/guide peratins in the SPOWW area. While the area is quite large, access

3 pints and use lcatins are limited and the demand and use levels at the ppular lcatins culd becme an item f cncern. Cnflicts between utfitter/guide peratins and the nn-utfitted/guided public have the ptential t increase if verall use increases. II. Wilderness Management Directin See Appendix 1. Wilderness Management Directin. Gals and Objectives fr Wilderness Manage designated Wilderness t maintain an enduring wilderness resurce while prviding fr the public purpses f recreatinal, scenic, scientific, educatinal, cnservatin, and histrical use, as prvided in the Wilderness Act f 1964 and ANILCA. Prvide fr public use f the Wilderness in accrdance with ANILCA prvisins fr mtrized and nn-mtrized access and travel, including reasnable traditinal subsistence use by rural residents. Prvide trails and primitive facilities that are in harmny with the natural envirnment and that prmte primitive recreatin pprtunities. Feature facilities designed primarily t prvide resurce prtectin and encurage smaller grup size. Facilities and trails tend t allw fr challenge and risk instead f cnvenience. Maintain the wilderness t prvide infrmatin n natural eclgical prcesses. Preserve and perpetuate bidiversity. Inventry and reduce r eliminate invasive species in Wilderness. Manage Wilderness as a place where self-reliance and primitive skills are needed and hned. III. Visitr Use and Cmmercial Use n the SPOWW Histrical use f the wilderness area by utfitters and guide Permitted peratrs are required t submit Actual Use Reprts within 30 days f the end f their perating seasn. These reprts identify the use lcatin (with latitude and lngitude crdinates), type f use, and number f clients, and the length f stay at each lcatin. Frm this infrmatin, the number f RVDs utilized at each lcatin is calculated. This tracking methd prvides an effective mechanism t track and mnitr cmmercial use in Wilderness. Currently we have n means t track the number f private users that recreate in the Wilderness and d nt rent a Frest Service public recreatin cabin. Table 1. Cmmercial use in Suth Prince f Wales Wilderness Area frm

4 Ttal Ttal ,816 FISHING HUNTING TOURING ,563 The table shws the grwth in ppularity f guided hunting and passive turing in SPOW Wilderness frm 2004 t This dcument determines whether there exists a need t ffer these cmmercial activities but it defers t the Prince f Wales Carrying Capacity dcument t determine the extent and amunt f use t allw in a given lcatin. Existing Cnditin One way existing cnditin can be lked at is by breaking dwn wilderness character int the fur cmpnents f untrammeled, natural, undevelped, and pprtunities fr slitude and primitive and uncnfined recreatin: Untrammeled, This quality describes the degree t which management actins hinder r cntrl the land and natural prcesses. Fr example, the wilderness area has remained free f management activities that have altered natural systems, such as dams r regulatins that gvern visitr activities. SPOW nce cntained an active cannery, bat wrks and native village, but evidence f these human develpments are tugh t pick ut unless ne lks fr them. Natural - This quality describes the eclgical effects f management actins that manipulate vegetatin, sils, air quality, r ther physical and bilgical cmpnents f wilderness. Wildlife fund within the area includes black bear, Sitka black-tailed deer, and wlf. Suth Prince f Wales Island has sme f the largest black bear in Nrth America, making it a ppular hunting destinatin. Lcal hunters and guides are cncerned abut black bear ppulatin number declines (Peacck, 2003). The list f smaller fur bearing animals cmmn t the area include beaver, mink, pine marten, land tter, and weasel. In the saltwater it is cmmn t see humpback whales and sea tters, as well as numerus sea birds. Annual surveys fr native and nn-native plants were begun in Due t the remteness frm human develpments these tw wilderness areas have relatively intact native plant cmmunities. Small ppulatins f nn-native plants are primarily lcated at previusly disturbed sites, such as near frmer cannery sites, bat wrks and traditinal native use sites. The nearest rads are lcated in Chlmndeley Bay and Hydaburg t the nrtheast and nrthwest, cnsecutively. Undevelped, This quality describes the effects f structures, habitatins, r ther evidence f human presence r ccupatin. There are n public recreatin cabins within the area. Until 2009, an abandned ADF&G cabin std at the muth f Klakas Lake. Tw imprtant private in-hldings are lcated within the SPOWW, the frmer Klinkwan Village lcated n the nrthwest end f Hunter Bay and the abandned Hunter Bay Cannery site, lcated in the center f Hunter Bay. Little structural evidence is left at either site, yet prtecting the histric value and integrity f these private sites frm disturbance fr Wilderness users is imprtant t the Wilderness Management f the SPOWW. Saltwater access by flatplanes, mtrbats, r kayaks, can be challenging and expensive due t the lng distance that must be traveled frm the nearest cmmunities. Dixn entrance, the water bdy suth f SPOWW als pses challenging water cnditins fr bats and planes. Flatplanes can land n 3

5 Klakas Lake, but ccasinally ice and lgjams prevent safe landings.. Except fr access affrded frm saltwater and lakes, the area is relatively inaccessible and undisturbed by the activities f peple. The remteness and challenge f accessing these areas has minimized human use. The majrity f the guided use in the wilderness is passive turing in Hunter Bay and Klakas Inlet. These visitrs, fr the mst part, are nt staying vernight in the SPOWW area. Hunting, fishing and camping als take place in the prtected bays f the SPOWW. Klakas Falls has been used as a traditinal fish camp by peple frm Hydaburg. In general, the expectatin is that there will be less evidence f human ccupatin as ne travels farther in frm the shreline. Opprtunities fr slitude and primitive/uncnfined recreatin - Visitrs t the upland areas f the wilderness areas can expect a mderate t high prbability f experiencing islatin frm mst sights and sunds f humans. The visitr may see r hear bats n the saltwater. Smetimes there are cmmercial fishery penings that bring several fishing bats t a bay, primarily trllers, seiners, r lng liners. The waters arund SPOWW are traditinal Haida fishing grunds. Many fishermen frm Hydaburg cntinue t fish the Klakas area cmmercially and fr subsistence purpses. There are als ccasinal verflights f lw flying aircraft. Shreline areas are accessed by bat r flatplane giving the chance fr wilderness visitrs t encunter ther users. Current Management Directin in the SPOWW area T cntrl resurce impacts frm increased use r t address cncerns due t cmpetitin between utfitter and guide grups and ther unguided frest users the Frest Service develped mitigatin measures. The Mitigatin Measures are included with all Outfitter and Guide Special Use Permits as Special Stipulatins and therefre becme part f the permit. Failure t adhere t the Special Stipulatins wuld be a vilatin f the terms in the Special Use Authrizatin and culd eventually lead t the terminatin f the permit. Frest-wide stipulatins are listed first, then Special Stipulatins that address areas f cncern in the SPOWW Area: 1. Outfitter/Guides will submit revisins f their Operating Plans in writing. 2. Land wnership is mixed and it is the respnsibility f the permit hlder t determine wnership and btain prper authrizatin fr use f private, native, and/r lcal gvernmentheld lands. 3. Outfitter-guides will incrprate "Leave N Trace" skills int all activities n Natinal Frest System lands ( 4. Outfitter-guide camps are prhibited within ne mile f any Frest Service recreatin cabin (except Yakutat Ranger District which has a 1/4 mile limit and Stikine River which as a 1/2 mile limit.) unless specifically authrized in this permit. 5. Outfitter-guided use f public use recreatin cabins r their amenities (e.g. skiffs, firewd, fire rings) is prhibited. Exceptins may ccur as specifically apprved fr a site by the District Ranger. These exceptins must be identified in the permit r addressed in District Stipulatins. 6. Within designated Wilderness, n mre than 12 peple (including guides) can ccupy a site at ne time. Site: an area n the Natinal Frest ccupied by persns nt within sight and sund f ther Frest users. 7. All campfires will be built belw high tide, as mund fires (a LNT technique) r in firepans. 8. Beach Meadws: Outfitter/guides will nt establish camps, r allw their clients t camp in these areas. When walking thrugh these areas, peple shuld stay n existing paths and game trails t avid trampling r damaging vegetatin in beach meadws. Lcated at the margin between marine beaches and the frest fringe, beach meadws, characterized by the presence f tall grasses, beach pea, Indian paintbrush, Pacific silverweed, yarrw, chclate 4

6 lily, pretty shting star, and Ntka lupine. These meadws ften have between different plant species, sme f which are n the sensitive species list. 9. Impacts n Bald Eagle Nest Sites: The Frest Service and the U.S. Fish and Wildlife Service have a Memrandum f Understanding which establishes a minimum 330-ft radius habitat management zne arund each bald eagle nest tree. Camping in this zne is prhibited t guided grups. 10. A cpy f the permit must be with the peratr at all times, when perating n Natinal Frest System lands. 11. Use Reprts will reflect specific lcatins f use n Natinal Frest System lands CFR Ch l0 The fllwing are prhibited:...(d) Discharging a fire arm r any ther implement capable f taking human life, causing injury, r damaging prperty: (1) In r within 150 yards f a residence, building, develped recreatin site r ccupied area, r (2) acrss r n a Frest develpment rad r a bdy f water adjacent theret, r in any manner r place whereby any persn r prperty is expsed t injury r damage as a result in such discharge. Mitigatin measures/special stipulatins will cntinue t evlve in respnse t current cnditins/trends and they will cntinue t be used as a management tl t respnd t impacts r cnflicts that becme apparent during the mnitring effrts. Desired Cnditin The Wilderness Act f 1964 directs each agency administering any area designated as wilderness shall be respnsible fr preserving the wilderness character f the area. Sectin 2(c) f the Act defines fur qualities f wilderness that managers try t preserve. As described in the 2008 Amended Frest Plan, All designated Wilderness n the Tngass Natinal Frest is characterized by extensive, unmdified natural envirnments. Eclgical prcesses and natural cnditins are nt measurably affected by past r current human uses r activities. Users have the pprtunity t experience independence, clseness t nature, slitude, and remteness, and may pursue activities requiring self-reliance, challenge, and risk. Mtrized and mechanized use is limited t the minimum needed fr the administratin f the Wilderness. Allw fr access t state and private lands, subsistence uses, and public access and ther uses t the extent prvided fr by ANILCA. Untrammeled The wilderness is essentially unhindered and free frm mdern human cntrl r manipulatin. The desired cnditin is the trend in actins that cntrl r manipulate the wilderness is stable r imprving. These actins include nes that manipulate plants, animals, pathgens, sil, water, r fire, whether authrized by the Frest Service r unauthrized actins by agencies, citizen grups, r individuals.. Natural - Wilderness eclgical and evlutinary systems are substantially free frm the effects f mdern civilizatin. The desired cnditin fr Natural is fr the trend f mdern civilizatin effects n plant, animal, pathgen, physical, and biphysical resurces t be stable r decreasing. Undevelped - Wilderness retains its primeval character and influence and has minimal evidence f mdern human ccupatin r mdificatin. 5

7 The trends in recreatinal and nn-recreatinal develpments, use f mtr equipment and transprt, and lss f statutrily prtected cultural resurces is stable r decreasing. Outstanding pprtunities fr slitude r a primitive and uncnfined type f recreatin -Wilderness prvides utstanding pprtunities fr peple t experience natural sights and sunds, slitude, freedm, risk, and the physical and emtinal challenges f self-discvery and self-reliance. The trend is stable r imprving fr: remteness frm sights and sunds f peple inside and utside wilderness; number f facilities that decrease self-reliant recreatin; number f trails and level f trail classes; and amunt f management restrictins n visitr behavir. Areas f Cncern Areas f cncern are areas that have exceeded the determined standards r are perceived t exceed visitr use expectatins. SPOWW areas f cncern are Klakas Falls, and areas near private inhldings in Hunter Bay. Sme f the areas f cncern listed abve may be addressed thrugh changes t utfitter and guide use, design parameters fr develped recreatin sites, and hardening sites t minimize recreatin related impacts. Recreatin Opprtunity Spectrum (ROS) and Visitr Capacity in the SPOWW area Recreatin Opprtunity Spectrum (ROS) is a system fr inventrying recreatin experience pprtunities int seven classes. Each class is defined in terms f the degree t which certain recreatin pprtunities are pssible based n the extent t which the natural envirnment has been mdified, types f facilities prvided, the number f interactins expected with ther grups f peple, and the relative density f recreatin use. There are seven classes identified within the Tngass Land Management Plan. The SPOWW area cnsists f Primitive (P) and Semi-primitive nn-mtrized (RM) ROS class (Appendix 2, descriptin f SPM ROS class). Capacity is als a cnsideratin. Visitr use capacity is the apprximate number f peple that can visit a prtin f the natinal frest and each persn wuld have the prescriptive (ROS) experience cnsistent with the desired cnditins. The reasn t determine capacity is t ensure bth that visitrs can enjy recreatinal experiences that meet their expectatins and that the landscape can sustain that level f use. T determine capacity, the FS analyzes knwledge f existing use, prjectins f future demand, capability f an area t withstand impact, and useable terrain. Fr example, an area accessed by ft with multiple valleys t hunt wuld have a greater ability t accmmdate a higher capacity f users than a small alpine lake, accessed seasnally by flat plane, with ne flat site fr camping. There are several aspects in determining capacity, including scial, biphysical, managerial, and facility capacity: Scial. This refers t the sights and sunds f ther peple, which may impact the grup s experience: Is this an area heavily used by lcal peple? Can peple spread ut ver the area with little chance f encunters? Hw lng is the useable seasn? Are there ther types f recreatin use that are nt cmpatible with the prpsed use? 6

8 Biphysical. This refers t the bilgical resurces fund in the area ptentially impacted by visitrs. Biphysical attributes influence whether a setting is capable f prviding a particular recreatin pprtunity withut degrading an area s eclgical prcesses, structure, cmpsitin, resilience, integrity, ptential, as well as the setting s ability t restre itself and prvide fr ther resurce uses and values: Are there issues with sensitive r rare plants r wildlife cncerns? Are campsites durable? Are user-created trails causing ersin? Facility. This refers t physical attributes f the area that make it useable by visitrs: Hw many campsites are available? Are there adequate lcatins fr camps? Are there adequate anchrages in the adjacent waters? Is access by ft, water, r plane easy r difficult? Managerial. This refers t plicies, management bjectives, r rules that can increase r decrease visitr capacity in an area. Fr example, Alaska Department f Fish and Game has instituted a drawing and registratin permit system fr GMU 1B, which includes the Wilderness, fr bull mse. Once the ttal is reached fr the seasn, n additinal animals may be taken. Once a need is determined, we estimate the capacity f the area t accmmdate the activity by evaluating scial, resurce and managerial factrs. See the 2010, Outfitter Guide Carrying Capacity Analysis fr Craig and Thrne Bay Ranger Districts IV. Special Knwledge and Skills Needed fr Activities in the SPOWW area Ptential categries f public need 1 fr cmmercial services: Peple with physical limitatins. Peple pursuing activities where knwledge and skill needed makes unguided use extremely difficult, if nt impssible; r where the pprtunity des nt exist utside f wilderness. Peple wanting t take trips that fcus extensively n wilderness Wilderness stewardship activities that culd be enhanced by utfitter/guides: Guides can serve as imprtant partners fr the Frest Service. In particular, guides can prvide wilderness awareness and ethics educatin. Resurce prtectin activities, such as reprting f invasive plants and illegal activities have been helpful in the past and culd help the wilderness areas achieve a higher level f wilderness stewardship. Fr thse grups f flks wh might nt therwise be expsed thrugh typical utreach, guides can help build cnstituency and supprt fr wilderness (e.g., big game hunters). 1 Peple shuld nt cnfuse need with a desire fr cmmercial services r the fact that the presence f a guide culd enhance a visitr s experience. 7

9 Prcess fr Determinatin f Public Need Public need is a need determined t be essential fr the well being f the entire public, guided and unguided, r t meet the intent f the Frest s missin t manage and prtect resurces, prvide fr public safety, and t prvide high quality recreatin services. Within Wilderness the intended use shuld be dependent n the wilderness resurce. A guide wanting a permit des nt always mean there is a public need. Evaluatin Criteria used fr determining the need fr utfitter assistance in the management f the SPOWW wilderness area: Skills and Equipment utfitter/guide skills and equipment are needed by a prtin f the public because f ne r mre f the fllwing: a. Specific skills required fr activities apprpriate fr the area require substantial time and/r talent t learn, such as a bat peratr. b. Learning necessary skills and participating in the activity requires acquisitin and cnsistent use f expensive, specialized equipment fr which the public culd nt, r nrmally wuld nt, expend the dllars r time, such as a shallw draft river bat. c. The skills required are s unique that the use f a guide is almst a prerequisite if the public is t have any pprtunity t participate in and enjy the activity, such as Stikine River navigatin. Knwledge guide knwledge f the wilderness resurce and the activity area is needed by the public, especially nnresident visitrs, in rder t safely enjy recreatinal pprtunities in a manner that reduces resurce damage and user cnflicts. This includes knwing where and by what methd t best access and travel thrugh an area, including knwledge f the river channels and slughs. Safety an utfitter/guide s special skills and equipment are needed fr a reasnable level f safety fr the participants. Withut guide assistance, members f the public culd seriusly endanger their health r lives, r wuld nt visit the wilderness due t safety cncerns. This criterin is nt meant t diminish the wilderness values f self-reliance r the pprtunity t challenge ne s self r experience a degree f risk frm rugh seas and cld water hazards. Special Management Objectives and/r Issues t insure special management bjectives are met and/r issues reslved, utfitter assistance is needed. Examples culd include recreatinal pprtunities fr disabled ppulatins, instilling a wilderness ethic in clients, cntributin t rural area develpment and ecnmy f frmerly cmmdity based areas, and assistance in reducing critical resurce impacts and/r cnflicts between users. Extent t Which Existing Outfitter/Guide Permits are Being Utilized are current utfitted r guided assignments bked r ver-bked, indicating a larger interest in the service? Level f Use and Cnflict cnflicts between all types f users, private and cmmercial in the wilderness. The extent t which already authrized use days r capacity exists fr existing permittees t fill the need. What is the cmpatibility f cmmercial, institutinal, and general public use, and the amunt f use and scial capacity within a given area f the wilderness? Are trail systems and use patterns (cngestin and number f encunters) a ptential prblem? Is there a tempral cngestin pattern weekend use vs. weekday use, day vs. vernight use? Over time, what is the general trend? Is the prjected future cnditin cmpatible with desired future cnditin? 8

10 Land Capability & Resurce Cncerns can the guide cntribute t the prtectin f the land thrugh his/her educatinal emphasis? What is the amunt f interference an utfitter/guide peratin will have with the natural bilgical and physical prcesses f the wilderness? Wilderness Dependency the extent t which the prpsed service can be ffered n private r nn-wilderness natinal frest lands. Sme examples f these services culd be: a. Outfitted supprted camps mre than a days easy hike frm a rad. b. Trips in which slitude and uncnfined, primitive recreatin are the central cmpnents f the experience. c. Visits t ecsystems, gelgical, r physical resurces fund in wilderness fr recreatinal, scientific, r educatinal purpses Wilderness Character- wuld utfitter/guide activities degrade wilderness character t an unacceptable level? Alternatively, culd utfitter/guide activities imprve wilderness character? Hw des this activity fit in with the wilderness niche? Frest Cnsideratin: des this activity ccur elsewhere in ther wildernesses n the Tngass? Fr example, if an activity ccurs in abundance in ther areas, there may nt be a need t accmmdate it in these wilderness areas. Public purpse: The Wilderness Act sectin 4(b) specifies wilderness areas shall be devted t the public purpses f recreatinal, scenic, scientific, educatinal, cnservatin, and histrical use. Guide services must help fulfill these purpses f Wilderness. Des this activity cntribute t the public purpses established fr this wilderness? When cnsidering the extent necessary, can peple reasnably participate in this activity withut a guide r is having a guide a prerequisite? Des this activity serve a brad segment f the ppulatin r limited t a select few? SPOWW Niche and Descriptin The SPOWW area is lcated n the CRD f the Tngass Natinal Frest. The niche statement fr SPOWW describes the area as: Suth Prince f Wales Wilderness is flexible and uncnfined. Its dynamic landscape is nt cntrlled by a single pattern; its character changes frm tall peaks in the nrth t expansive lwlands and scattered islands in the suth. The Haida, wh nce had villages and summer camps thrughut this large area, mved seasnally with the availability f fd. Since the beginning f the 20 th century, Suth Prince f Wales has als seen canneries, villages and hmesteads, which have all faded away, leaving behind nly traces and the subtle evidence f change. 9

11 V. Need fr and Extent f Cmmercial Use in the SPOWW area. This sectin uses the criteria described abve t determine if there is a need fr cmmercial use f any kind n WIW. The table belw rates the criteria fr each type f cmmercial use: Big Game Hunting, Freshwater Fishing, Camping, Active Turing and Passive Turing. Type f Activity Table 2. Determinatin f Need Factrs Rating Table fr Big Game Hunting, Freshwater Fishing, Camping, Passive Turing, Active Turing. Rating Summary Big Game Hunting Skills and Equipment High Equipment can be expensive. Hunting requires a certain level f skill and knwledge. SPOW is a large area. Guides help hunters find prime hunting area fr greatest success. Knwledge Mderate t High guides can help clients find animals Safety Risk Mderate t high SPOW is large and there is a real danger f getting lst. Special Objectives High-clients seek high quality hunts. Demand/utilizatin High increased frm 0 in 2004 t 83 in Average f 44 hunts/yr in the past 5 years. Althugh SPOW is a large area, the hunters are likely cncentrating in the same prime hunting areas and ptentially affecting slitude and naturalness (wildlife species). Level f use and cnflict Mderate n cmplaints have been received, but there is a grwing perceptin that t many bears are being taken frm SPOW. The ADF&G are wrking n managing the bear ppulatin, while the FS is cncerned with maintaining wilderness character and prviding a certain wilderness experience. Land Capability Mderate large land area but prime hunting areas are lcated in specific places which may receive cncentrated use. Wilderness Dependency Mderate hunting culd happen in ther places, but hunting in a remte AK wilderness has its wn special cmmercial draw. Wilderness Character Lw t Mderate large area but gd hunting culd be cncentrated and the slitude cmpnent f character may be affected, yet hunting takes place in small grups and is a quiet activity s it is less likely t affect ther grups. Gunsht nise travels far ver water and there are a lt f large bays in SPOW. Frest-wide Availability Mderate: Prductive hunting areas are available in nn-wilderness areas but extensive nnraded wilderness is harder t cme by. Public Purpse Mderate: Guides supprt recreatin purpses f hunting but generally nly a select grup will participate (recreatin and scenic purpses) Freshwater Fishing Skills and Equipment Knwledge Safety Risk Special Objectives Demand/utilizatin Level f use and cnflict Land Capability Wilderness Dependency High Equipment can be expensive. Fishing requires sme skill t be successful. Mderate t High guides can help clients find quality fish Mderate SPOW may have several bears n the streams. High-clients seek high quality fishing experience Lw n requests fr permits have been received fr the past cuple f years. Observatins f streams have shwed evidence f past use, but nt a lt f evidence f recent use (e.g. Klakas Falls campsite nt used fr several years). Mderate althugh use des nt seem t be high right nw, as pressure fr fishing increases in ther lcatins, such as Hatchery Creek r Sarkar, fishermen may mve t mre remte lcatins like SPOW. The ptential fr cnflict between subsistence fishermen and cmmercial fisherman exists. Mderate SPOW is relatively large and has several streams but nly a few f them prduce sught after salmn species, ppular fr cmmercial utfitter and guides. Mderate freshwater fishing culd happen utside f wilderness. Sme visitrs may seek a 10

12 Wilderness Character Frest-wide Availability Public Purpse Skills and Equipment Knwledge Safety Risk Special Objectives Demand/utilizatin Level f use and cnflict Land Capability Wilderness Dependency Wilderness Character Frest-wide Availability Public Purpse Skills and Equipment Knwledge Safety Risk Special Objectives Demand/utilizatin Level f use and cnflict Land Capability Wilderness Dependency Wilderness Character Frest-wide Availability Public Purpse Skills and Equipment Knwledge wilderness experience where fishing in slitude and meeting wilderness challenges are main selling pint f the trip. Mderate fishing is a fairly slitary activity. Fishermen tend t spread ut n a stream. One guided grup f five wuld prbably cver a fair amunt f a stream s if anther grup were t cme at the same time, slitude wuld be affected. Mderate: Prductive fishing areas are available in nn-wilderness areas and much mre easily accessible areas Mderate: Guides supprt recreatin purpses f fishing but generally nly a select grup will participate (recreatin and scenic purpses) Camping Mderate t High equipment can be expensive. Takes skill t camp withut creating an impact. Mderate t High guides can help clients practice leave n trace and camp n durable surfaces. Mderate SPOW may have several bears and it is remte. Campers must prepare fr extended stays. Mderate camping tends t be an activity cnnected with anther activity like hunting r fishing. Sme visitrs may have the bjective f camping in wilderness and hning Leave N Trace skills. Lw n requests fr permits have been received. Evidence f camping exists in Hunter Bay, Klakas and Barrier Islands (see SPOW mnitring reprts). Lw Nt a lt f current use bserved and n cmplaints received. Mderate large land area but mst peple want t camp in particular areas. If peple d nt practice Leave N Trace, then they may cause substantial impacts at campsite. Mderate camping can ccur all ver the Tngass, but wilderness camping, embracing its challenge and slitude is dependent n wilderness. Mderate may affect naturalness by leaving impacts if nt camping n a durable surface. Fire rings and fire stains stay n the landscape fr a lng time. Mderate: camping can ccur in many places utside f wilderness. The same kind f remte, wilderness experience is less easily fund utside f wilderness. Mderate: Guides supprt recreatin purpses and culd help visitrs camp successfully. Only a select grup will participate (recreatin and scenic purpses) Passive Turing Lw little equipment needed (binculars). Few skills needed if guided. High guides navigate t sites, identify wildlife and plants Lw t mderate generally passive turing is nt dangerus, but there are inherent weather dangers applied t the activity especially since it wuld ccur in a remte lcatin. N quick rescue. High-clients seek specific viewing pprtunities. High Average f 336 passive tur days in SPOW between Many peple want t visit an AK wilderness just t see it fr a brief time. Mderate Use is high accrding t the O/g reprts, but wilderness mnitring trips have nt bserved a great deal f use n the shre. Bats with clients are present in the bays, but few bservatins f peple n shre and impacts t the shre have nt been made. High visitrs viewing frm bats has n physical impact n the land. FS has nt bserved many physical impacts frm visitrs briefly landing n the shre. There is a large area fr peple t bserve passively. Mderate passive turing is nt necessarily wilderness dependent. There are several successful passive turs utside wilderness, but there can be turs built arund prviding Wilderness infrmatin and Leave n trace skills Mderate passive turing tends t allw larger grup sizes which may have an increased affect n slitude. Cnversely, passive turing may nt set ft n land and thus may nt cause physical impacts Mderate: successful passive viewing must ffer smething interesting t view. There are sites utside f wilderness, but SPOW is a large area with several wildlife viewing pprtunities in a remte and natural envirnment. Mderate: Guides supprt recreatin purpses and bring peple wh wuld therwise nt be able t visit a wilderness t SPOW t bserve it passively. Active Turing High skill required high cst/equipment (kayaks, bats, airplane) High visitrs and guides need t knw the waters and cnditins in rder t remain safe while participating in Active turing activities 11

13 Safety Risk Special Objectives Demand/utilizatin Level f use and cnflict Land Capability Wilderness Dependency Wilderness Character Frest-wide Availability Public Purpse High-ptential dangerus weather, slw rescue. High seeking wilderness challenge and slitude, ften seeking marine mammals/birds t bserve Lw n requests fr this activity at this time Lw n cmmercial active turing use and the FS has nt bserved any active turing during wilderness mnitring trips. High large area with many cves and inlets t explre. N cncentratin f use is expected r bserved. Mderate active turing is ffered in nn-wilderness. But SPOW ffers exceptinal remteness, slitude and challenge with interesting pprtunities fr kayaking and hiking. Mderate active turing in small grups is likely t have little impact n Wilderness character because it is dispersed, may nt ccur n land. Hiking may impact a small crridr. Lw there are few lcatins where ne may find the challenge, remteness and slitude f SPOW. Mderate nly select grup can affrd r have the skill t participate SPOW Wilderness is a relatively large and remte area. One must travel 65 miles frm Craig and arund the Cape Shaken frm the east. Access is difficult and has limited the numbers f visitrs t the wilderness. Mst visitrs t SPOW Wilderness cme with an utfitter r guide r they are cmmercial r subsistence fishermen. Due t the diversity f bays, inlets, cves and barrier islands, visitrs are able t disperse and nt cncentrate use in a cuple f lcatins. Because f its remteness and limited access, and because there are several lcatins fr visitrs t enjy and find a quality recreatin and wilderness experience, the Frest Service finds a need fr all cmmercial activities in SPOW Wilderness. Outfitters and guides prvide needed services t visitrs aiding them t experience this unique Alaskan wilderness area. VI. Summary Statement defining the Wilderness Character f the SPOWW area Suth Prince f Wales Wilderness is flexible and uncnfined. Its dynamic landscape is nt cntrlled by a single pattern; its character changes frm tall peaks in the nrth t expansive lwlands and scattered islands in the suth. The Haida, wh nce had villages and summer camps thrughut this large area, mved seasnally with the availability f fd. Since the beginning f the 20 th century, Suth Prince f Wales has als seen canneries, villages and hmesteads, which have all faded away, leaving behind nly traces and the subtle evidence f change. Descriptin - This 91,018 acre wilderness is ne f the mst remte wildernesses n the Tngass. A dense rain frest carpets the rugged muntains. Turbulent seas gradually lull int quiet bays. Its lcatin n the suthern tip f Prince f Wales Island, expsed t the pen cean swell f Dixn Entrance, makes access difficult. The prtected bays and inlets f Suth Prince f Wales Wilderness are 30 miles suth frm Hydaburg and 65 miles frm Craig. Specific infrmatin regarding the wilderness values which require mnitring r prtectin Untrammeled: assure a wild, free flwing, natural river. Natural: n leaving litter r human waste in Wilderness. 12

14 Undevelped: n mre structures (uthuses, shelters, cabins). Slitude: assure small grup size Finding r determinatin f need fr cmmercial use Determinatin f need fr cmmercial use fr guided camping: It is recmmended that cmmercially guided camping be authrized in the SPOWW area thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided hunting: It is recmmended that cmmercially guided hunting be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided freshwater fishing: It is recmmended that guided sprt fishing be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided Passive Turing: It is recmmended that cmmercially guided Passive Turing be authrized thrugh this needs assessment. Determinatin f need fr cmmercial use fr guided Active Turing: It is recmmended that cmmercially guided Active Turing be authrized thrugh this needs assessment. Greg Killinger District Ranger Date 13

15 PAGE 1 Appendix 1. Wilderness Management Directin Wilderness Management Directin fr a Needs Assessment Fllwing is a discussin fr when a needs assessment may be emplyed t address cmmercial use requests within wilderness based n a reginal r lcal wilderness management cncern. Directin Prvided by the 1964 Wilderness Act The Wilderness Act f 1964 states the purpse f Wilderness is t secure fr the American peple f present and future generatins the benefits f an enduring resurce f Wilderness. Wilderness being an area affected primarily by the frces f nature, with the imprint f man s wrk substantially unnticeable;... has utstanding pprtunities fr slitude r a primitive uncnfined type f recreatin;... and may als cntain eclgical, gelgical, r ther feature f scientific, educatinal, scenic, r histrical value. The Wilderness Act als describes hw Wilderness areas are t be used and managed. Management is t fcus n preserving the wilderness character f the area; and use f the area shall be devted t the public purpses f recreatinal, scenic, scientific, educatin, cnservatin, and histrical uses. In realizing these uses Wilderness prvides an pprtunity fr slitude r primitive uncnfined types f recreatin nt attainable in settings mre man-made, r influenced by humans. In accmplishing the purpse f, and uses f Wilderness, the Wilderness Act gives sme additinal directin. Specifically, with ne ntable exceptin cmmercial enterprises are prhibited by Sectin 4(c) f the Act. The exceptin cvered in Sectin 4(d) (6) says; cmmercial services may be perfrmed within the Wilderness area... t the extent necessary fr activities which are prper fr realizing the recreatin r ther Wilderness purpses f the areas. Alaska Natinal Interest Lands Cnservatin Act f 1980 (ANILCA) Sectin 707 f ANILCA states; Except as therwise expressly prvided fr in this Act, wilderness designated by this Act shall be administered in accrdance with applicable prvisins f the Wilderness Act... Items expressly prvided fr in ANILCA wilderness are many. Sme include; 1. Sectin 811 Reasnable access fr subsistence resurce uses 2. Sectin 1010 Mineral assessments with access by air. 3. Sectin 1110(a) Special Access allwing fr the use f airplanes, mtrbats, and snwmachines (during perids f adequate snw) within cnservatin system units as defined by Sectin 102 (4). These rights may be subject t reasnable regulatin t prtect the natural and ther values f the cnservatin system units. 4. Sectin f 1303(b)(1) Allwance fr the cnstructin f new cabins and administrative cabins if necessary fr the administratin f the area as wilderness 5. Sectin 1303(b)(2) Allwance fr the cntinuatin f existing cabins. 6. Sectin 1310 Allwing fr the maintenance f existing and future navigatin aids and ther facilities.

16 7. Sectin 1315(c) Permitting the cntinued use and maintenance f public use cabins. 1315(d) allws fr the cnstructin f new cabins if they re necessary fr the prtectin f public health and safety. 8. Sectin 1316(a) Allws fr existing and future establishment f temprary structures necessary fr the taking f fish and game subject t reasnable regulatin t insure cmpatibility, the cntinuance f existing uses, and the future establishment, and use, f temprary campsites, tent platfrms, shelters, and ther temprary facilities and equipment directly and necessarily related t such activities. Sectin 1316(b) allws fr the denial f the temprary facilities if the use f equipment r facilities is determined t be detrimental t the wilderness character. ANILCA exceptins may influence the character f sme wildernesses mre than thers. During the evaluatin f cmmercial recreatin use fr any ne wilderness, an effrt shuld be made t cnsider the lngterm effects f accmmdating increasing uses r prpsals fr new use. The ecnmic benefits t a business are nt a substantive basis f a decisin t allw use presented in either the Wilderness Act r ANILCA. Directin Prvided by Regulatin Federal Regulatins 36 CFR Objectives, states in part: Except as therwise prvided in the regulatins..., Natinal Frest Wilderness shall be s administered as t meet the public purpses f recreatinal, scenic, scientific, educatinal, cnservatin, and histrical uses; and it shall als be administered fr such ther purpses fr which it may have been established in such a manner as t preserve and prtect its wilderness character...t that end: (a) Natural eclgical successin will be allwed t perate freely t the extent feasible. (b) Wilderness will be made available fr human use t the ptimum extent cnsistent with the maintenance f the primitive cnditins. (c) In reslving cnflicts in resurce use, wilderness values will be dminant t the extent nt limited by the Wilderness Act, subsequent establishing legislatin, r the regulatins in this part. Federal Regulatins 36 CFR Permanent structures and cmmercial services, states in part that: The Chief, Frest Service, may permit... cmmercial services within Natinal Frest Wilderness t the extent necessary fr realizing the recreatinal r ther Wilderness purpses, which include, but are nt limited t, the public services generally ffered by packers, utfitters, and guides. Agency Directin USDA Frest Service Strategic Plan fr The missin f the USDA Frest Service is based n the relatinship between the American peple and their natural resurce heritage. The relatinship is funded n the principles f sustaining U.S. natural resurces fr future generatins, prducing persnal and cmmunity well-being, and prviding ecnmic wealth fr the Natin. The Strategic Plan embdies the Frest Service s many areas f respnsibility, as captured in the agency s missin statement: The missin f the USDA Frest Service is t sustain the health, diversity, and prductivity f the Natin s frest and grasslands t meet the needs f present and future generatins. 2

17 One f the many gals f the Strategic Plan is t prvide high-quality utdr recreatinal pprtunities n frests and grasslands, while sustaining natural resurces, t meet the Natin s recreatinal demands. Frest Service Chief s 10-Year Wilderness Stewardship Challenge In 2005, the Chief f the Frest Service adpted the 10-year Wilderness Stewardship Challenge (WSC) as recmmended by the Chief s Wilderness Advisry Grup. This effrt is a renewal f the cmmitment t wilderness by pledging t bring all 406 wildernesses administered by the Frest Service t a minimum level f stewardship within 10 years. Element 7 f the WCS identities that, Needs assessments are cmpleted fr new peratins r fr majr changes t existing utfitter prgrams. As clarified in the definitins fr this element; needs assessments ; a methdlgy fr determining if, in fact, there is a need fr private enterprise t assist the Agency in prviding access, services and/r ther assistance fr the recreating public t safely and prperly enjy Natinal Frest wilderness. Anther part f the WSC related t frest plan management directin is Element 5 Prtecting Opprtunities fr Slitude r Primitive and Uncnfined Recreatin. Managing t prtect utstanding pprtunities fr slitude r a primitive and uncnfined type f recreatin has been perhaps the mst cntrversial aspect f wilderness management t date. Cntrversy typically emerges if managers prpse any type f restrictin n visitr access r behavir, such as use limits, t imprve pprtunities fr slitude. Factrs cntributing t this cntrversy include: 1. Lack f clarity ver the meaning f slitude thus leading t lack f agreement ver what the prblem really is (e.g. visitrs may view the cncept hlistically while managers may fcus n the number f encunters in particular lcatins). 2. Perceptin that slitude is t subjective and individualistic t manage fr. 3. Lack f standards r agreement n standards that define when there is a prblem requiring crrective actin. 4. Managing fr slitude withut equal cnsideratin f managing fr primitive and uncnfined recreatin pprtunities. 5. The imprtance f access t visitrs even when they supprt wilderness preservatin. 6. Tensin between prviding utstanding pprtunities fr slitude vs. primitive and uncnfined recreatin. Frest Service Manual Directin Frest Service Manual Chapter 2320 Wilderness Management, has been reserved by the Washingtn Office. Management directin regarding the implementatin f specific exemptins fr wilderness management in the Reginal Supplements t the Frest Service Manual, still remain in effect. The Frest Service Manual frm the Washingtn Office is expected t be reissued smetime in Other FSM directin includes Under FSM 2340 Privately Prvided Recreatin Opprtunities), Objectives T prvide, under special use authrizatin, sufficient, suitable facilities and services that supplement r cmplement thse prvided by the private sectr, State, and lcal gvernment n private land and the Frest Service n Natinal Frest System land t meet public needs, as determined thrugh land and resurce management planning. 3

18 T facilitate the use, enjyment, understanding, and appreciatin f natural resurce settings n the Natinal Frest. Frest Plan Directin fr Wilderness Gals T manage all designated Wilderness t maintain an enduring wilderness resurce while prviding fr public access and uses cnsistent with the Wilderness Act f 1964 and the Alaska Natinal Interest Lands Cnservatin Act f 1980 (ANILCA). Prtect and perpetuate natural biphysical and eclgical cnditins and prcesses. Ensure wilderness eclgical systems are substantially free frm the effects f mdern civilizatin. T prvide a high degree f remteness frm the sights and sunds f humans, and pprtunities fr slitude and primitive recreatin activities cnsistent with wilderness preservatin. Keep wilderness untrammeled and free frm mdern human cntrl r manipulatin, including actins taken t manage wilderness. Prtect the undevelped character f wilderness by fllwing legislative guidelines regarding permanent imprvements r mdern human ccupatin, including mechanized transprt and mtrized equipment. Objectives Apply a multi-disciplinary fcus t wilderness management. The stewardship f the wilderness is cnsidered in the annual prgram f wrk by all resurces. Manage recreatin activities s the levels f scial encunters, n-site develpments, methds f access, and visitr impacts indicated fr the Primitive Recreatin Opprtunity Class are emphasized. Areas managed as semi-primitive within a wilderness are an exceptin and are nt encuraged.. Prvide fr public use f the Wilderness in accrdance with ANILCA prvisins fr mtrized and nnmtrized access and travel, including reasnable traditinal subsistence use by rural residents. Maintain trails and primitive facilities that are in harmny with the natural envirnment and that prmte primitive recreatin pprtunities. Feature facilities designed primarily t prvide resurce prtectin and encurage smaller grup size. Facilities tend t allw fr challenge and risk instead cnvenience. Maintain the wilderness capacity t prvide infrmatin n natural eclgical prcesses Preserve and perpetuate bidiversity Inventry, reduce, and when pssible, eliminate nn-native species in wilderness Manage wilderness as a place where self reliance and primitive skills are needed and can be hned. Desired Cnditin All designated Wilderness n the Tngass Natinal Frest is characterized by extensive, unmdified natural envirnments. Eclgical prcesses and natural cnditins are nt measurably affected by past r current human uses r activities. Users have the pprtunity t experience independence, clseness t nature, slitude and remteness, and may pursue activities requiring self-reliance, challenge and risk. Mtrized and 4