ARTHUR CARHART NATIONAL WILDERNESS TRAINING CENTER MINIMUM REQUIREMENTS DECISION GUIDE WORKBOOK except as necessary to meet minimum requirements for the administration of the area for the purpose of this Act -- The Wilderness Act of 1964 Project Title: Middle Fork Zone Elk Decline MRDG Step 1: Determination Determine if Administrative Action is Necessary Description of the Situation What is the situation that may prompt administrative action? Elk populations in the Frank Church-River of No Return (FC-RONR) Wilderness appear to be declining, and the decline may indicate a serious problem with natural conditions (degradation of wilderness character). In 2002, the Middle Fork Zone population estimate was 7,485; in 2011 it was 4,229, a 43% decline, with additional decline likely since 2011 (IDFG 2014a) 1. Reasons for the decline are not known. Elk are subject to a variety of pressures: hunting; predation from bears, mountain lions, and wolves; habitat conditions related to historic and recent fire regimes; and the potential reduction in forage quality and quantity from invasive, non-native plant species. The Idaho Elk Management Plan (IDFG 2014b) identifies elk management zones and establishes population objectives for elk throughout Idaho. The 1,705,544-acre Middle Fork Zone is comprised of Game Management Units (GMUs) 20A, 26, and 27. The Middle Fork Zone includes nearly all the lands in the FC-RONR Wilderness south of the Main Salmon River, and includes some areas of nonwilderness lands (Figure 1). 1 Idaho Department of Fish and Game. 2014a. Predation management plan for the Middle Fork Elk Zone. Idaho Department of Fish and Game, Boise, ID. MRDG Step 1: Determination 1
In 2011 (the most recent survey year), Idaho Department of Fish and Game (IDFG) estimated 3,341 adult females, 276 adult males, 462 total antlered males in the Middle Fork Zone, and they determined that all components of the elk population had declined in comparison to 2002 and 2006 surveys. According to IDFG (2014b), poor juvenile survival contributes substantially to population declines. The mid-winter estimate of less than 13 calves per 100 cows is inadequate to maintain a population given observed cow elk survival rates. Female and juvenile elk survival rates appear inadequate to stabilize or provide growth of the elk population for the Middle Fork Zone (IDFG 2014a). In response to the population declines, the Idaho Fish and Game Commission (Commission) has eliminated cow tags and put a cap on the total number of hunters that can use the Middle Fork Zone. The Commission will need to further restrict harvest if elk population targets cannot be maintained or achieved. However, IDFG currently lacks information to provide appropriate recommendations for such restrictions (IDFG 2015). IDFG currently faces several challenges to its elk monitoring program across the State, the most significant of which is increased variability in adult and calf survival. Historically, most adult elk and a large percentage of calves observed during aerial surveys in February survived until June, thus providing a reliable estimate of adult numbers and calf recruitment. Previous monitoring programs, including estimating populations through aerial surveys once every 5 to 10 years, were adequate to monitor elk demographics when populations were stable or increasing (IDFG 2015) 2. IDFG has determined that previous monitoring programs are no longer adequate to support decision making where herds are declining or prone to increased variability in annual survival (IDFG 2015). The assumption that a large percentage of the individuals counted in a February survey ultimately survive until June is no longer valid. For example, annual survival rates observed between 2009 and 2013 in the North Fork study area in GMU 10 have varied between 75% and 96% for adults. Survival of 6 month old calves from capture in January varied from 4% to 60% (Horne et al. 2014) 3. IDFG s hunter participation and success data indicate that the quantity and quality of elk hunting in the Middle Fork Zone has declined (IDFG 2015). Elk hunter participation decreased from 2,075 hunters in 2002 to 917 hunters in 2014, a 56% decline in participation in this type of wilderness recreation opportunity. Decline in elk hunting participation in the Middle Fork Zone could be due to a number of factors, including management decisions made by the Commission restricting elk hunts in these GMUs. Declines in hunter participation might also be correlated with the decline in elk and therefore be an indicator of degrading natural conditions. IDFG has evidence from marking animals outside of the wilderness that some elk, including some 2 Idaho Department of Fish and Game. 2015. Wilderness Act minimum requirements analysis, Middle Fork Zone elk monitoring. August 7, 2015. 3 Horne, J. S., S. Bergen, P. Zager, M. Hurley, A., and A. Moeller. 2014. In Hurley, M., editor. Idaho Department of Fish and Game State Wildlife Research Final Report, Project F13AF00947, July 1, 2014 to June 30, 2014. Idaho Department of Fish and Game, Boise, ID. MRDG Step 1: Determination 2
neonatal calves, migrate into the wilderness during the summer and stay for a portion of the year. The proportion of animals that do this is not clear. Similarly, the proportion of elk wintering in the wilderness and migrating out for summer range and the proportion of the elk population that are year-round residents in the wilderness area are also unclear. Additional Elk Studies in Idaho In late 2014, IDFG began implementing a statewide elk survival and cause-specific mortality data collection effort through a statistically-based deployment of 500 satellite collars in six, nonwilderness, monitoring zones. Zones were strategically selected by IDFG to provide a representative sample of the various habitat and predator complexes found throughout Idaho (Figure 2). IDFG s data collection effort includes an annual estimate of population rate of change. IDFG will use the collected data to populate an integrated population model (IPM) for elk that combines population count data (population estimate as well as demographic information), harvest data, survival data, and other types of data into a comprehensive analysis (IDFG 2015). This modeling procedure allows for variable quality data to be combined such that all data can contribute to the relative quality (variability) of the dataset. This Bayesian statistical analysis can provide estimates of vital rates (survival and reproduction), as well as population estimates on an annual basis, not just every 5 years. The data needed to fully inform and calibrate the IPM includes: survival of calves and adult females, harvest, and periodic population estimates. Where elk populations are volatile, estimates of cow/calf ratios in January are important to fully inform the IPM (IDFG 2015). The Middle Fork Zone has been identified as a seventh zone for the statewide study, but IDFG has not taken any action in the Middle Fork Zone to date. Although IDFG has obtained some information about the Middle Fork Zone from elk moving across the wilderness boundary, the FC-RONR Wilderness is sufficiently large that there are likely groups of elk that remain wholly or mostly within the wilderness area. Based on available data, IDFG hypothesizes that elk survival rates and predation pressures are different inside the FC-RONR Wilderness than outside of it, primarily because of limited human influence. MRDG Step 1: Determination 3
Figure 1. Middle Fork Elk Management Zone, including Game Management Units (GMUs), National Forest boundaries, and designated wilderness areas. MRDG Step 1: Determination 4
Figure 2. Game Management Units (GMUs) in Idaho selected for elk survival estimation studies MRDG Step 1: Determination 5
Options Outside of Wilderness Can action be taken outside of wilderness that adequately addresses the situation? YES NO STOP DO NOT TAKE ACTION IN WILDERNESS EXPLAIN AND COMPLETE STEP 1 OF THE MRDG Action cannot be taken outside the wilderness area to adequately address the situation. The elk populations in which declines have been documented are within or primarily within the FC-RONR Wilderness. Criteria for Determining Necessity Is action necessary to meet any of the criteria below? A. Valid Existing Rights or Special Provisions of Wilderness Legislation Is action necessary to satisfy valid existing rights or a special provision in wilderness legislation (the Wilderness Act of 1964 or subsequent wilderness laws) that requires action? Cite law and section. YES NO There are no valid existing rights or special provisions of wilderness legislation that compel action. B. Requirements of Other Legislation Is action necessary to meet the requirements of other federal laws? Cite law and section. YES NO There are no other Federal laws that compel action. C. Wilderness Character Is action necessary to preserve one or more of the qualities of wilderness character, including: Untrammeled, Undeveloped, Natural, Outstanding Opportunities for Solitude or Primitive and Unconfined Recreation, or Other Features of Value? MRDG Step 1: Determination 6
UNTRAMMELED YES NO In wilderness, the "earth and its community of life" are essentially unhindered and free from modern human control or manipulation, "in contrast with those areas where man and his own works dominate the landscape." Untrammeled character helps insure that wilderness is managed with humility and restraint, respecting the autonomy of nature that allows a place to be wild and free. Action to monitor elk within the FC-RONR Wilderness is not necessary to preserve the area s untrammeled character. There is no ongoing manipulation or control that needs to be stopped. UNDEVELOPED YES NO Wilderness retains its "primeval character and influence," and is essentially "without permanent improvements" or modern human occupation. Preserving this quality keeps areas free from expanding settlement and growing mechanization and with the imprint of man s work substantially unnoticeable as required by the Wilderness Act. Action is not necessary to preserve the undeveloped character of the FC-RONR Wilderness. NATURAL YES NO A wilderness area is to be "protected and managed so as to preserve its natural conditions." Wilderness ecological systems are substantially free from the effects of modern civilization, and preserving natural character ensures that indigenous species, patterns and ecological processes are protected. Elk herds in the FC-RONR Wilderness have declined due to poor recruitment (i.e., calf survival to age one) and increased variability in annual survival. The most recent (2011) mid-winter estimate of 13 calves per 100 cows is inadequate to maintain a population given observed cow elk survival rates (IDFG 2014a). Natural quality may be degrading. MRDG Step 1: Determination 7
SOLITUDE OR PRIMITIVE & UNCONFINED RECREATION YES NO This quality is about the opportunity for people to experience wilderness. Opportunities provided by wilderness include the chance to experience primitive recreation, natural sights and sounds, solitude, freedom, risk, the physical and mental challenges of self-discovery and self-reliance, and to use traditional skills free from the constraints of modern culture. Action is not necessary to protect opportunities for solitude or the chance to experience natural sights and sounds, risk, self-discovery, self-reliance, or traditional skills. Nor is action necessary to protect opportunities for primitive and unconfined recreation. While backcountry hunting is an important and historic component of the primitive and unconfined recreation opportunities in the FC-RONR Wilderness, and the Commission s regulations and restrictions on hunting affect this form of recreation, wilderness is not managed for any one particular use. OTHER FEATURES OF VALUE YES NO The Wilderness Act says wilderness areas may also contain ecological, geological, or other features of scientific, educational, scenic, or historical use. Included are those features that are significant or integral to the wilderness. Action is not necessary to protect other features of value within the FC-RONR Wilderness. Step 1 Decision Is administrative action necessary in wilderness? Decision Criteria A. Existing Rights or Special Provisions YES NO B. Requirements of Other Legislation YES NO C. Wilderness Character Untrammeled YES NO Undeveloped YES NO Natural YES NO MRDG Step 1: Determination 8
Outstanding Opportunities YES NO Other Features of Value YES NO Is administrative action necessary in wilderness? YES NO EXPLAIN AND PROCEED TO STEP 2 OF THE MRDG STOP DO NOT TAKE ACTION IN WILDERNESS Elk populations are declining in the Middle Fork Zone, calf recruitment is low enough as to be inadequate to maintain elk populations, and hunter participation and success data indicate that the quantity and quality of hunting in the FC-RONR Wilderness is declining. Natural character may be degrading. Monitoring elk outside the wilderness area has not adequately addressed the situation and has not provided sufficient information to understand elk population dynamics within the FC-RONR Wilderness. The elk populations in which declines have been documented are within or primarily within the FC-RONR Wilderness, and action is necessary in wilderness. MRDG Step 1: Determination 9
MRDG Step 2 Determine the Minimum Activity Other Direction Is there special provisions language in legislation (or other Congressional direction) that explicitly allows consideration of a use otherwise prohibited by Section 4(c)? AND/OR Has the issue been addressed in agency policy, management plans, species recovery plans, or agreements with other agencies or partners? YES NO DESCRIBE OTHER DIRECTION BELOW SKIP AHEAD TO TIME CONSTRAINTS BELOW Describe Other Direction: Memorandum of Understanding IDFG and the Intermountain and Pacific Northwest regions of the USFS signed an MOU (FS Agreement No. 2010-MU-11062754-027) June 2010. While not specific to wilderness, the MOU recognizes that there is a mutual benefit for the agencies to work together for the common purpose of developing, maintaining, and managing the fish and wildlife resources, associated habitats, and other related resources on NFS lands. Excerpts of the MOU are included below: III. Forest Service Shall: F. Cooperate with the Department, when requested, and to the extent feasible, in fish and wildlife population surveys and harvest data collection. G. Cooperate with the Department to ensure that the appropriate level of environmental analysis is completed when State activities on NFS land require U.S. Forest Service authorization or there are other Federal actions implicated which triggers requirements for compliance with NEPA and other federal environmental laws. IV. The Department Shall: B. Coordinate with and provide information and assessments to the U.S. Forest Service concerning Department objectives, plans, programs, and policies for fish, wildlife, and related recreation on U.S. Forest Service administered lands. I. Cooperate with the U.S. Forest Service in the design and implementation of wildlife and fish management programs and actions on NFS lands. 2006 AFWA USFS BLM Policies and Guidelines In 2006, the Association of Fish and Wildlife Agencies (AFWA), the USFS, and the Bureau of Land Management (BLM) signed an agreement that provides guidance regarding fish and wildlife management in USFS and BLM-administered wilderness areas in accordance with the Wilderness Act. To date, there is no agreement between the USFS and the State of Idaho regarding the management of MRDG Step 2 10
fish and wildlife in wilderness areas in Idaho. IDFG does not support the adoption of the AFWA policies and guidelines. However, the USFS is beholden to the 2006 policies and guidelines. Pertinent sections of the AFWA Agreement include: E. General Policy Management activities will be guided by the principle of doing only the minimum necessary to conserve and, if necessary, to enhance fish and wildlife resources, and to manage the area as wilderness. F. Project Implementation 1. Use of Motorized Equipment: [T]he States fish and wildlife management activities within wilderness can be accomplished with motor vehicles, motorized equipment, or mechanical transport, only if these devices are necessary to meet the minimum requirements for the administration of the area as wilderness or are specifically permitted by other provisions of the Act. Any such use should be rare and temporary. 3. Fish and Wildlife Research and Management Surveys: Methods that temporarily infringe on the wilderness environment may be authorized by the Federal administering agency if alternative methods or other locations are not reasonably available. Helicopters and fixed-wing aircraft over flights may be used to conduct fish and wildlife research and management activities. Use of aircraft for these activities will be coordinated among the State and Federal agencies to minimize conflicts with other wilderness uses. To the greatest extent possible, aircraft must be used in a manner that minimizes disturbance to wilderness character and to human and wildlife use of the wilderness. Aerial counts and observations (i.e. surveys) of wildlife are allowed in the management of fish and wildlife resources in wilderness. Capturing and marking of animals, radio telemetry...that would involve uses generally prohibited under Section 4(c) of the Wilderness Act will be considered and may be authorized by the Federal administering agency. Guidelines for Fish and Wildlife Research and Management Surveys d. Plan aircraft flights over wilderness to minimize disturbance. Consider time of day, season of the year, route and altitude of flight, and location of landing areas on the perimeter of the wilderness. g. The Federal administering agency should only approve methods that minimize the impact on the wilderness environment to the greatest extent possible. Forest Service Manual FSM 2323.37 provides direction for wildlife and fish research: Wildlife and fish research is an appropriate activity in wilderness. In all cases, research shall be conducted in such a way as to minimize any adverse impacts on the wilderness resource or its users. 1. Research methods that temporarily infringe on the wilderness character may be used, provided the information sought is essential for wilderness management and alternative methods or locations are not available. 2. Scientific sampling of wildlife and fish populations is essential to the management of natural populations in wilderness. 3. Capturing and inconspicuous marking of animals, including radio telemetry, is permitted. MRDG Step 2 11
FC-RONR Wilderness Management Plan The FC-RONR Wilderness Management Plan was completed in November 2003 and includes direction for the management of fish and wildlife resources, including monitoring and research proposals. Excerpts of the Management Plan are included below: Chapter 2, Fish and Wildlife Resources, Section VIII C. Goals 1. The forces of nature primarily affect native species in the FC-RONR Wilderness, and management actions recognize the predominance of natural forces. 2. Biological and social functions of native animal populations are not noticeably impaired by human presence or activities. Natural processes and key habitat components such as birthing/rearing areas determine population structure and numbers; winter range and migration corridors are not impaired by human activities. D. Objectives 1. Wilderness managers evaluate effects of all human activities on fish and wildlife species to reduce or eliminate potential conflicts, restore populations and maintain quality habitats in a natural condition. 2. Idaho Department of Fish and Game Species Management Plans and U.S. Fish and Wildlife Service Recovery Plans will be supported. E. Standards and Guidelines Wildlife 4. Salting, supplemental minerals and nutrients, or supplemental feeding of wildlife is prohibited. F. Monitoring Habitat and population conditions and trends of both game and non-game fish and wildlife species inhabiting the Wilderness will be monitored. Indicators 2. Ratio of males, females, and young in wild ungulate populations. Chapter 2, Research, Section XVII D. Objectives 1. Provide for and encourage scientific study that: a. Depends on the wilderness setting or upon natural systems not readily found outside wilderness. b. Seeks to explain or understand ecosystems found in wilderness or resolve wilderness management problems to provide managers with knowledge needed to better manage wild lands. c. Is conducted in a non-obtrusive manner consistent with preserving the wilderness character and minimizes conflicts between wilderness users and researchers. E. Standards and Guidelines - General 1. Research projects that benefit the protection objectives of the FC-RONR Wilderness will be given highest priority. (S) 2. Research projects not dependent on wilderness will be directed to alternative areas outside the wilderness. (S) 3. Research methods that temporarily infringe on the wilderness resource should be limited or MRDG Step 2 12
restricted, with the adverse effect(s) mitigated to the extent possible. (G). 5. Data collected for management purposes, such as use figures and resource inventories, should be made available to scientists for research purposes. (G) 6. The use of helicopters and fixed-wing aircraft for research purposes outside of public airstrips will be analyzed through the Minimum Requirements Analysis process. (S) 7. Aircraft use, including helicopters, outside of the public airstrips should be considered only when other methods are not possible and not appropriate for the research objectives. If aircraft use is approved, time of day, season of year, elevation, route of flight, and location of landings will be considered to minimize impacts. (G) 8. Research projects must be approved by the Forest Supervisor and authorized by special use permit. (S) Species Management Plans Wildlife management in Idaho is implemented following guidance established in State species management and predation management plans. The Idaho Elk Management Plan 2014-2024 states: Population monitoring is the backbone of IDFG s elk management program. Monitoring provides wildlife managers with information to evaluate management goals and allows informed decision making. Monitoring should include an estimate of population size, as well demographic information such as age and sex ratios. The IDFG website for elk management is: http://fishandgame.idaho.gov/public/wildlife/?getpage=324 Time Constraints What, if any, are the time constraints that may affect the action? The following time constraints apply to those alternatives that would radio-collar animals: Adult female elk should not be captured in spring when they are calving or near to calving. It is illegal to use drugs on elk during the fall hunting season. Calves would need to be collared by January 15 of each year to accurately track mortalities. Components of the Action What are the discrete components or phases of the action? Component X: Component 1: Component 2: Component 3: Component 4: Example: Transportation of personnel to the project site Transportation of personnel and equipment to the project site Monitoring technique(s) Staging and lodging Equipment and activities throughout the year MRDG Step 2 13
Component 5: Management result Proceed to the alternatives. Refer to the MRDG Instructions regarding alternatives and the effects to each of the comparison criteria. MRDG Step 2 14
MRDG Step 2: Alternatives Alternative 1: IDFG Proposed Action Description of the Alternative What are the details of this alternative? When, where, and how will the action occur? What mitigation measures will be taken? IDFG would use satellite radio-collars and helicopters during the winter of 2015-2016 to collect data on elk survival rates, calf recruitment, and causes of mortality. The data collected would provide survival data and a one-year comparison to other GMUs in that year. Staging and Access into Wilderness All equipment and personnel needed for the radio-collaring work would be brought into the FC-RONR Wilderness using existing public and State-owned airstrips. Private airstrips might also be used by permission of the landowner. The number of fixed wing landings is estimated at three for fuel transport and two for personnel and equipment. Base camps for end of the day landing and staging would be at existing airstrips and non-federal landing sites on in-holdings (Taylor Ranch, Whitewater Ranch, Lower Loon, and Mormon Ranch). Fueling points for the helicopter activity would be at existing airstrips and non-federal inholdings or other non-wilderness locations. Fuel would be prepositioned prior to conducting flight operations. Timing Winter is the optimal time for capture because elk are in larger groups and are more concentrated on open shrub winter range. IDFG estimates that helicopter operations would not exceed a total of 5 flight days. However, roughly 10 total days of operation could be needed due to uncertainties such as, but not limited to, unforeseen adverse weather conditions or mechanicals. The days of operation would be during winter between December 1, 2015, and March 31, 2016, and would not necessarily be consecutive. Calves would need to be collared by January 15, 2016, in order to accurately track mortalities. Adult females could be captured anytime from December 2015 through March 2016. Capture and Collar Methods Capture methods would follow published protocols using a helicopter and either a net-gun or immobilizing darts depending on terrain and habitat. Net-gunning is most efficient in open terrain where biologists have the ability to stop and restrain the animal at a selected location, which is safer for both the animal and helicopter crew; in addition, helicopter time is minimized. Darting would be used in forested terrain that precludes the use of a net-gun. Darting requires maintaining visual contact with the animal after darting, generally 5 minutes, before the animal is fully anesthetized. Individual animals can be lost or injured using either technique; net-gunning results in about 2% injury rate and darting results in about 3% injury. Handling and care of the darted animals is managed under standard operating procedures developed by the University of Idaho Animal Care and Use Committee. MRDG Step 2: Alternative 1 15
All captured animals would be radio-collared with GPS satellite collars. These collars would automatically send information to IDFG s computer systems, thus limiting overflights to collect data and locate collared animals. Radio collar batteries have a four-year life; the collars are designed to fall off male calves in one year and remain on permanently for female calves and adult females. IDFG would conduct overflights for collars that send mortality signals or whenever mortality or a dropped collar is suspected. Collars would be retrieved by crews on foot or with use of pack stock; collar retrieval trips may originate at the nearest public, State, or private airstrip (with prior permission), as appropriate. At the time of radio-collaring, IDFG will collect information from adult females as to nutritional condition through various techniques (e.g., ultrasound, body scoring, and blood samples) (Moore 2015) 4. Number of Captured Animals A total of 30 calves and 30 adult females would need to be collared for the study to have statistical precision. Distribution of Landings and Collared Animals IDFG would use a stratified random sampling design to capture elk in proportion to their distribution on winter ranges. This means helicopter landings and collared elk would be broadly distributed across the entire Middle Fork Zone. Each GMU is stratified into subunits based on low, medium or high winter elk densities. Figure 3 shows stratification across GMU 27 one of the three GMUs in the Middle Fork Zone. IDFG would seek to sample all high-density subunits and to sample medium- and low-density subunits at a rate of approximately 50% (targeting medium-density subunits). IDFG would calculate the number of elk required in each of the density strata and randomly capture cows and calves up to the target number (30 calves and 30 adult females). Landings Anytime equipment (such as a net) or people are offloaded from a helicopter, USFS considers that to be a landing (36 CFR 261.18). Similarly, landings occur anytime one or more helicopter skids touch ground. By USFS regulation, five to nine landings could occur per elk if the helicopter hovers and does not touch down a skid: the net; 2-3 people and their equipment offloading the aircraft; and 2-3 people and their equipment reloading the aircraft. IDFG considers a capture event to include two landings: one to net an elk and offload 2-3 personnel and their equipment for processing the animal, and one to retrieve those personnel and their equipment. In order to capture 30 calves and 30 adult female elk, IDFG proposes 120 landings (± 5%) plus nets and darts. Processing biologists would exit the helicopter while the pilot maintains either a hover, or has the front of the skids touching the ground, called a toe-in. The full hover is the most common exit and is 4 Moore, V. 2015. Frank Church Wilderness elk monitoring in winter 2015-2016. Letter to Nora Rasure, Regional Forester, Intermountain Region. August 8, 2015. MRDG Step 2: Alternative 1 16
safer - the skid cannot get caught under vegetation under the snow and the blades are farthest from the ground. A processing team of 2-3 personnel would exit the helicopter during a single hover and would re-enter the helicopter in the same fashion after the animal is processed. Elk would be anesthetized with Carfentanil and reversed with Naltrexone. Multiple captures would occur each day. Elk congregate in groups while on their winter range. The helicopter would move from group to group, attempting to capture 1-2 animals from each. Once disturbed, elk tend to retreat to timbered areas for the remainder of the day. Thus, the helicopter would only make a pass or two over a group in any given day. Once a group has retreated, the helicopter would move on to another group and then another group, etc. In that way, multiple elk from multiple groups could be captured and collared on a single day. MRDG Step 2: Alternative 1 17
Figure 3. Winter elk density in GMU 27 MRDG Step 2: Alternative 1 18
Component Activities How will each of the components of the action be performed under this alternative? Component of the Action X Example: Transportation of personnel to the project site 1 Transportation of personnel and equipment to the project site Activity for this Alternative Example: Personnel will travel by horseback Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Monitoring technique(s) Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 Staging and lodging End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Equipment and activities throughout the year Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 Management result IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Wilderness Character What is the effect of each component activity on the qualities of wilderness character? What mitigation measures will be taken? MRDG Step 2: Alternative 1 19
UNTRAMMELED Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects 0-1 NE Untrammeled Total Rating -1 Helicopters would fly over and conduct landings throughout the Middle Fork Zone to capture elk according to the sample design. Helicopters disturb elk and cause them to retreat from open winter range areas into nearby timber, if available. Elk typically stop their retreat within 200 meters after pursuit ends and resume normal behavior in a few hours. Only one capture operation would be imposed on each group (1-3 animals captured) during the collaring operations, limiting disturbance to one occurrence per group. Helicopters cause animals to expend energy and disrupt their activities. Helicopters control or manipulate an animal s normal daily activities and therefore adversely affect the untrammeled character of the wilderness area. The effects would be temporary (occurring during the period of radio-collaring activities) and would occur over 5 days during winter/early spring, 2015-2016 (days may not be consecutive). Elk mortalities and injuries associated with capture and processing could occur (up to 3%, and not all injuries lead to mortality). Should losses occur, they would be a human manipulation on group size, dynamics, and social structure. MRDG Step 2: Alternative 1 20
UNDEVELOPED Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects -3 NE Undeveloped Total Rating -3 Helicopters (and fixed wing aircraft) are considered developments in wilderness evidence of modern human civilization. During capture and collaring operations, helicopters would fly over and conduct landings throughout the Middle Fork Zone in order to capture elk according to the sample design. Effects of the helicopters would occur during 5 days (not necessarily consecutive) and would not persist throughout the year. The aircraft bringing personnel and equipment into the wilderness area would land at established airstrips; however, the noise and visibility of these aircraft would also adversely affect undeveloped character and be cumulative to effects from other ongoing aircraft operations. The collars to be deployed would automatically upload data to IDFG computers. IDFG would not need to conduct overflights to record data and would not contribute additional impacts to undeveloped character while monitoring collared elk. However, aircraft overflights to evaluate mortality signals and dropped collars would contribute to existing air traffic in the FC-RONR Wilderness and would have a minor adverse effect on undeveloped character; effects would be more noticeable during winter. MRDG Step 2: Alternative 1 21
Undeveloped character would not be affected by the retrieval of dropped collars or those with mortality signals when they are retrieved by crews on foot or using pack stock. Any retrieval trips that originate from the nearest established airstrip would contribute to existing air traffic in the FC-RONR Wilderness and would have a minor adverse effect on undeveloped character. Collars on the animals themselves are installations and evidence of modern civilization, which would have a negative effect on undeveloped character. Radio collar batteries have a four-year life; the collars are designed to fall off male calves in one year and remain on permanently for female calves and adult females. NATURAL Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects +1-1 NE Natural Total Rating 0 Elk mortalities and injuries associated with capture and processing could occur (up to 3%, and not all injuries lead to mortality). Should losses occur, this would be an adverse effect to untrammeled character (see above) and natural character. Losses would not measurably affect the natural MRDG Step 2: Alternative 1 22
character of the wilderness area as a whole ecological processes would continue over the short and long-terms. At the end of the project, IDFG and USFS would better understand the condition of natural character in the FC-RONR Wilderness. The project would provide data to assess whether the decline in elk populations is a result of degrading natural conditions and would allow the agencies to adapt management strategies accordingly. Additionally, the data collected would provide IDFG information to support decisions for harvest regulation and other management activities in the Middle Fork Zone. SOLITUDE OR PRIMITIVE & UNCONFINED RECREATION Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects +1-2 NE Solitude or Primitive & Unconfined Rec. Total Rating -1 Helicopters used during capture and collar operations would adversely affect opportunities for solitude. While temporary in duration, these impacts would occur over 5 days (not necessarily consecutive) during the winter of 2015-2016 and would take place throughout the Middle Fork Zone. While activities would occur during winter when recreational use is minimal, helicopter flights and MRDG Step 2: Alternative 1 23
landings would be likely to adversely affect opportunities for solitude for those recreationalists and other users (such as private landowners) in the wilderness at the time. Winter users of the wilderness may particularly value solitude and therefore be exceedingly affected by the presence of helicopters, aircraft, and their associated noise. During winter, backcountry flights are generally associated with flights into established airstrips, including those on private inholdings. The effects of the collaring operation, including the use of backcountry airstrips to bring equipment and personnel into the wilderness area, would be additive to existing aircraft use. Opportunities for primitive and unconfined recreation could be adversely impacted when helicopter operations occur. Backcountry hunting and other recreational opportunities related to elk (such as photography and wildlife viewing) might benefit over the long-term from the information obtained from radio-collared animals and any associated changes in IDFG and USFS management. OTHER FEATURES OF VALUE Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects 0 0 NE Other Features of Value Total Rating 0 MRDG Step 2: Alternative 1 24
This alternative would have no effect on other features of value. Traditional Skills What is the effect of each component activity on traditional skills? TRADITIONAL SKILLS Component Activity for this Alternative Positive Negative No Effect X Example: Personnel will travel by horseback 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. Total Number of Effects +1-4 NE Traditional Skills Total Rating -3 This alternative depends on mechanical equipment and motorized transport. Traditional skills would not be maintained during transportation of personnel and equipment to the project site or during the collaring phase of this alternative. However, personnel would use traditional skills should they need to retrieve a radio-collar personnel would access the collar on foot or via pack stock. Collar retrieval trips may originate from the nearest public, State, or private airstrip, if appropriate. MRDG Step 2: Alternative 1 25
Economics What is the estimated cost of each component activity? COST Component Activity for this Alternative Estimated Cost X Example: Personnel will travel by horseback $1,900 1 Equipment and personnel would be brought into the wilderness via public and State-owned airstrips. 2 Radio collar elk via helicopter. Offload 2-3 team members to process and radio collar each netted or darted animal. Technique requires 120 (± 5%) helicopter landings (plus nets and/or darts) outside of established airstrips. 3 End of day landing, staging, and base camps would be at State-owned and private landing sites (with permission). Personnel would be present for 5 days during the collaring operation (not necessarily consecutive). 4 Monitor survival and movements via satellite download radio collars. Collars would automatically upload information to IDFG computers. Dropped collars and those associated with mortalities in the FC-RONR Wilderness would be retrieved by crews on foot or using pack stock, with use of public/state/private airstrips as appropriate. 5 IDFG and FS would have the data necessary to assess whether elk population decline is a result of degrading natural conditions; agencies could adapt management strategies accordingly. $2,160 $33,000 N/A $22,175 Total Estimated Cost $57,335 N/A The cost estimate of $57,335 includes: transportation of crews in and out of established airstrips ($2,160); the cost of pilot, fuel, and helicopter rental for capture activities ($1,650/hour for approximately 20 hours); and monitoring costs that include the cost of the collars ($600), remote data retrieval costs, and operations costs to retrieve collars (flights or pack stock). It does not include permanent personnel time or perdiem. MRDG Step 2: Alternative 1 26
Safety of Visitors & Workers What is the risk of this alternative to the safety of visitors and workers? What mitigation measures will be taken? RISK ASSESSMENT Probability of Accident Severity of Accident Frequent Likely Common Unlikely Rare Catastrophic: Death or permanent disability Critical: Permanent partial disability or temporary total disability Marginal: Compensable injury or illness, treatment, lost work Negligible: Superficial injury or illness, first aid only, no lost work 1 1 2 2 3 1 2 2 3 4 2 3 3 4 4 3 4 4 4 4 Risk Assessment 3.2 Risk Assessment Code 1 = Extremely High Risk 2 = High Risk 3 = Moderate Risk 4 = Low Risk Pursuit and capture of animals via low-level helicopter travel and backcountry landings involves typical safety risks associated with these types of flight operations. IDFG and contractor personnel are trained and experienced in these types of activities and would follow strict safety procedures to effectively manage and mitigate risks. IDFG and its contractors would also be responsible for managing operations to avoid conflicts with wilderness visitors and to avoid exposing the public to safety risks associated with the operation. Inclement winter weather is an additional risk. Capture crews would conduct operations only when conditions such as visibility and winds are within acceptable ranges. Capture crews could be exposed to immobilizing drugs used to dart animals. Personnel performing capture work, net-gunning or darting, and elk handling are all certified by IDFG for these activities. Under Alternative 1, personnel would not be exposed to long periods of winter camping or associated inclement weather. Air traffic in the Middle Fork Zone of the FC-RONR Wilderness during the summer and fall months is intense, largely due to recreational rafting and hunting activities. By conducting collaring operations during the winter months, risks of interference or collision with other air operators would be greatly reduced. MRDG Step 2: Alternative 1 27
Summary Ratings for Alternative 1 Wilderness Character Untrammeled -1 Undeveloped -3 Natural 0 Solitude or Primitive & Unconfined Recreation -1 Other Features of Value 0 Wilderness Character Summary Rating -5 Traditional Skills Traditional Skills -3 Economics Cost $57,335 Safety Risk Assessment 3.2 MRDG Step 2: Alternative 1 28