Public Scoping: Allocation of Recreation Capacity for Commercial Outfitter Guide Services on North Kruzof Island Trails (Kruzof Island Outfitter Guide) PURPOSE AND NEED Introduction The U.S. Department of Agriculture (USDA) Forest Service is preparing an Environmental Assessment (EA) to evaluate management of outfitter/guide allocations of commercial recreation use of the trail systems on northern portions of Kruzof Island (Kruzof Island Outfitter Guide EA) on the Sitka Ranger District (Ranger District). This analysis will be completed in compliance with the National Environmental Policy Act (NEPA) and other relevant federal and state laws and regulations. The EA will disclose the direct, indirect, and cumulative environmental impacts that would result from the alternatives, including the Proposed Action. Public comments, resource concerns, and present and future access needs will be considered in this analysis. The 2008 Tongass Land and Resource management Plan (Forest Plan) identifies the parameters of motorized access and resource protection considered in the analysis. Additional documentation, including more detailed analyses of project area resources, may be found in the project planning record located at the Sitka Ranger District Office in Sitka, Alaska. Existing Conditions Authorized by the 2006 Sitka Access and Travel Management decision, roads to log the area of northern Kruzof Island have been stored. Under the same decision some 38 miles of stored roads have been converted to off-highway vehicle (OHV) trail. Some of the remaining stored roads are suitable for nonmotorized trail use although not maintained as National Forest System trails. Two Forest Service hiking trails are accessed from the OHV trail system. Mud Bay (figure 1) is approximately 12 miles northwest of Sitka located on Kruzof Island. About 30 miles of road built in the 1960 s have been converted to motorized trails. The road terminus is an old log dump, marine access facility (MAF), located at Mud Bay. The MAF, trail system, and entire area are a popular recreation destination. People ride ATV s, bicycles, hike, ski, (and possibly snowmobile) across the island to two recreation cabins located on the outside coast or just to do day trips to enjoy the trail system. The trail system is a designated and popular spot for ATV s and one of the recreation cabins is accessible from the trail system and specifically designed for ATV access. Several alternate destinations include views of the Mount Edgecumbe volcanic field from the Cinder Cone, brown bears and other wildlife in Iris Meadows, Pacific beaches, fresh water fishing on lakes and streams, as well as dispersed opportunities for camping and hunting. There is a Forest Service shelter as well as a Forest Service anchor buoy at the Mud Bay MAF. Eagle Creek/Eagle River (figure 1) is approximately five miles north of Mud Bay also on Kruzof Island. There were about 8.3 miles of road that were used to log the area in the 1970 s and the road terminus is an old log dump, marine access facility (MAF), located at Sukoi Inlet. Forest Service Road 7595 was identified for storage and conversion to motorized trails under the 2006 Sitka Access and Travel Management decision. Work was completed in 2012. Totaling somewhat less than six miles, the
motorized trail ends at the northeast shore of Sukoi Lake. With the end of the old main stem road and all of the branches closed, the motorized trail is there-and-back and much shorter than the Mud Bay system; roughly 18% of Mud Bay length. One half mile up from the MAF is a large group area (LGA) authorized by the 2004 Shoreline Outfitter/Guide Record of Decision (Shoreline ROD). Small and medium cruise ship passengers come ashore at the MAF to utilize the LGA. Typical activities include camping, hiking, bicycling, and ATV use; brown bear, deer, and waterfowl hunting and freshwater fishing. Purpose and Need for Action Each year, the Forest Service receives proposals from commercial outfitter/guides seeking opportunities on the Kruzof Island road system (Mud Bay and Eagle Creek road systems). In 2005, an applicant requested and received a temporary use permit to conduct guided ATV tours on the Mud Bay road system on a trial basis. The outfitter/guide has consistently used all the service days allotted to him and has requested and received increases most years. There may be capacity for other recreation based business. We need to develop an efficient, consistent management strategy to accommodate this increasing demand while preserving a quality experience for all users. The purpose of a carrying capacity analysis is to determine the appropriate level of use in a given area. There are numerous factors, both quantitative and qualitative, which are used in this analysis, a process that involves public scoping, analysis of potential impacts, and the suitability of the proposed activity for the requested location. The objectives of the Kruzof Island Outfitter Guide EA are to: Consider commercial recreation use on Forest Service trails accessible from the Kruzof Island road system. Allocate a percent of total trail capacity to commercial recreation use. Designate the maximum commercial group size allowed on each trail or types of trail. Designate the season of use for commercial recreation use. Consider the types of commercial recreation activities to be allowed. Some of these objectives (group size, season of use) are conditions that would be placed on any authorized commercial use to maintain a quality recreation experience for both commercial and noncommercial trail users. Additional conditions, such as the spacing of commercial groups on a trail (e.g., 20 minutes apart) and the number of groups per operator per day, would be managed through the special use authorization (permit) process and are not discussed here. Nine Off-Highway Vehicle (OHV) trails and seven non-motorized trails are accessed from the Kruzof Island road system (Figure 1). All of these trails are considered for commercial recreation use in this analysis.
Figure 1. Project Area Outfitter Guide Use Allocation on North Kruzof Island Trails.
The (OHV) trails under consideration for commercial use are: Mud Bay Road, mainline 7590 from MAF to Iris Meadows, 759002Q (~5.3 miles) Cinder Cone Road (inclusive) 7592 (6.12 miles) North Beach Road 7591 from 7590 to turn-off for and North Beach Trail and North Beach Travel Management Area (~3 miles) Twin Lakes Road (inclusive) 7591 (~8 miles) Bear Road & Bear Spur remainder 7590 from mile 5.3 to mile 8.9 and 75901 & 75902 (~ 5.2 miles) Cuvacan Cove Road/Cuvacan Spur 75911/75912 (2.36 miles) Unnamed OHV Trail, north off 7590 75903/759031 (1.98 miles) Unnamed OHV Trail, south off 7590 75904 (1.08miles) Eagle Creek Road 7595 (5.63 miles) Two Forest Service hiking trails accessed from the road system: Shelikof Trail begins at southeast edge of Iris Meadows and ends at Shelikof recreation cabin (~ 1.2 miles) Port Mary Trail (~ 1.3 miles), Forest Service Trail Other stored sections of the Kruzof Island road system although decommissioned, provide cross country access beyond the shoreline 1/2 mile: Twin Lake Spur 75913 (2.17 miles) Mud Bay Spur 1 & 2 7596/75961 (2.13 miles) Mud Bay Shoreline (~ 0.5 mile) Gilmer Bay Trail (inclusive) 7595, remainder (4.82 miles) Unnamed Trail, from Sukoi Lake east along and across Sukoi Creek 75951 (~ 1.3 miles) Commercial recreation activities occurring over the past nine years (2004-2012) are road-based (OHV) nature tours, remote setting (hiking) nature tours, camping, brown bear hunting, freshwater fishing, biking, deer hunting, and waterfowl hunting. Twelve commercial operators have used the project area; two are no longer in operation. Since 2005, guided OHV tours have been authorized on the Mud Bay road system during the summer season. The annual average number of trips has been 119 (45-179). The annual average number of clients on these trips has been 1,935 (181-2,903). Proposed Action The Proposed Action (Alternative 2) is one possible alternative to accommodate the increasing demand for commercial recreation opportunities on the trail systems at Mud Bay and Eagle Creek while preserving a quality experience for all users. It would affect nine separate off-highway vehicle (OHV) trails and seven non-motorized trails accessed from the Kruzof Island road system. All of these trails are
considered for commercial use in this analysis. The proposed action would increase the amount of commercial recreation opportunities available by allocating 20% of the recreation capacity of the trail systems to outfitter/guides. Decision Framework Given the Purpose and Need, the District Ranger for the Sitka Ranger District will review the Proposed Action and other alternatives in order to decide how the Kruzof Island trail systems will be managed to meet Forest Plan objectives, public needs, and budget limitations. The decision will include changes in outfitter/guide allocations, cross country access, and non-significant amendment to the recreation opportunity spectrum (ROS) in the 2008 Forest Plan. A finding of significance of the effects and consistency with standards, guidelines, goals, and objectives of the Forest Plan and other laws and regulations will be included in this decision. Public Scoping Scoping is the first step in public participation for the project planning efforts. The purpose of scoping is to identify potential issues, concerns, and opportunities associated with the proposed project. We need your help to make sure we consider all the issues and effects that are of concern to you or your communities. Please examine the enclosed information and maps, and send us comments that will help us to develop a comprehensive and sound environmental evaluation. In addition to the following specific activities, the Kruzof Island Outfitter Guide project has been listed on the Tongass National Forest Schedule of Proposed Actions available on the Forest Service Web site. Local News Media An announcement about the project and public meeting was made by public service announcements in the Daily Sitka Sentinel and on Sitka s Raven Radio (KCAW) during March 2013. The project and public meeting was also the subject of a Raven Radio morning interview on March 15, 2013. Public Meetings On January 16, 2013, the Forest Service in partnership with Sitka Collaborative Stewardship Group held a public meeting to discuss community and resource needs, and project ideas for the Kruzof Island Integrated Resource Project. At that meeting members of the public expressed a wide variety of concerns about both commercial and non-commercial recreation opportunities on and accessed from the Kruzof Island road system. At the meeting the carrying capacity analysis was announced and 20 members of the public responded to a recreation use information request. As a result of public comment, the Forest Service began to define the carrying capacity analysis. On March 28, 2013, the Forest Service held a public meeting to announce the project and provide for pre-scoping public comment. There were six members of the public in attendance. As a result of public comment, local knowledge, and internal monitoring, the Forest Service completed a carrying capacity analysis.
ALTERNATIVES INCLUDING THE PROPOSED ACTION The Sitka Ranger District is considering two alternatives, the No Action Alternative (Alternative 1) and the Proposed Action (Alternative 2). Under the No Action Alternative, continued guided use will occur on an annual basis. Small increases may take place. The proposed action represents a means of meeting the Purpose and Need for this project by allocating a percentage of the recreation social capacity determined in the Recreation Capacity Determination and Outfitter Guide Allocation on North Kruzof Island Trails, developed by the District. The alternatives will be designed to fully comply with the Tongass Forest Plan including all applicable Standards and Guidelines. Alternative 1: No Action Under the No Action Alternative (Alternative 1), current management plans would continue to guide management of outfitter/guide use on the Mud Bay and Eagle Creek road systems. No changes to the temporary nature of permits issued or the level of use authorized. The businesses must apply for use every year and will be restricted to the use of previously authorized trails and seasons as presented in the following table. Twelve outfitter/guides were permitted and providing visitor services on the north Kruzof Island road systems between 2004 and 2012; their activities provide services for forest visitors that are unfamiliar with Southeast Alaska s recreation resources. Authorized outfitted and guided activities include road-based (OHV) nature tours, remote-setting nature tours (including hiking, beach use, and wildlife viewing), camping, freshwater fishing, and bicycling. Since beginning in 2005, 95% of the guided use occurring on these road systems is OHV tours. Outfitter/guides are required to submit use reports annually that identify the use location, type of use, number of clients, number of groups, and length of stay at each location. From this information, the number of service days used at each location is calculated. A service day is defined as a day, or any part of a day, on National Forest System lands for which an outfitter/guide provides goods or services, including transportation, to a client. Actual use reports provide an effective mechanism to track and monitor outfitter and guide use. Table 1 shows the type and amount, season, and location of outfitter/guide use that occurred on north Kruzof Island roads between 2004 and 2012. Activity Service Days Seasons Location Road-Based (OHV) Nature Tours 2903 Spring, Summer Mud Bay Remote-Setting (Hiking) Nature Tours 327 Spring, Summer, Fall, Mud Bay, Eagle Creek Winter Camping 296 Spring, Summer, Fall, Mud Bay Winter Freshwater Fishing 14 Summer, Fall Mud Bay Bicycling 17 Spring, Summer Mud Bay Table 1. Historical commercial recreation use showing activities, highest annual service days, seasons, and locations on north Kruzof Island road systems.
One half mile up Eagle Creek road from the marine access facility (MAF) is a large group area (LGA) authorized by the Shoreline ROD. The LGA would continue to be managed in accordance with the Shoreline ROD. Alternative 2: The Proposed Action The District proposes to develop a management strategy for authorizing commercial use of trails and cross country use on the Kruzof Island road system. The strategy would consider off-highway vehicle (OHV) recreation (Road-Based Nature Tours) as the primary activity. OHVs are vehicles designed or retro-fitted primarily for recreational use off road. This classification includes all-terrain vehicles (ATV), mini-bikes, amphibious vehicles, off-highway motorcycles, go-carts, motorized trail bikes, and dune buggies. Hiking (Remote-Setting Nature Tours) and bicycling would also be authorized on these and possibly other (non-motorized) trails. Camping, freshwater fishing, guided hunting, rock climbing, and sea kayaking are among other commercial uses that might be accessed from the Kruzof road system or creeks. The proposal also defines a winter season that was not addressed in the 2004 Shoreline ROD. This proposal would accommodate possible future requests for commercial cross-country skiing, snowmobiling, trapping, or other winter sport related activities. The capacity per trail, per season represents the total amount of recreational use (both commercial and non-commercial) that is acceptable. According to the Forest Plan, Districts should generally allocate no more than one-half the appropriate capacity to outfitter/guide operations. For specific locations, consider different allocations based on historical use, changing demand, spatial zoning, or temporal zoning. Various factors need to be taken into account when determining the appropriate percent of capacity for outfitter/guide allocation. This proposed action recommends 20% of the capacity be allocated to commercial use. The primary reason for this recommendation is to account for unforeseen factors which might change the appropriate level of outfitter/guide operation. This gives us the flexibility to monitor the use and make adjustments in the future. This conservative maximum would represent a two-fold increase over the highest actual use recorded by the primary permit holder during an eight year period. Actual use and public reaction could justify future analysis for increases between the proposed 20% and the Forest Plan maximum of 50% or only minor reductions in allocation, if required. Table 2. Commercial use would be managed by the allocation of service days which are a percentage of the carrying capacity determined for the Mud Bay and Eagle Creek trail systems for each of the four seasons. The proposal is to allocate 20% of capacity for commercial use as shown below. Trail/Season Capacity Outfitter/Guide Allocation Mud Bay Summer 31,091 (user days figured at 20% capacity) 6218 Mud Bay Spring 7,416 1483 Mud Bay Fall 2,252 450 Mud Bay Winter 8,081 1616 Eagle Creek Spring 1,556 *311 Eagle Creek Summer 14,859 *2972 Eagle Creek Fall 1,756 *351 Eagle Creek Winter 4,040 808
* Outfitter/Guide Allocation includes allocation for Large Group Area authorized in Shoreline. One half mile up from the Eagle Creek MAF is a large group area (LGA) authorized by the 2004 Shoreline ROD. Large group areas authorize groups of up to 75 people and are targeted to small and medium cruise ships. This proposed action would manage the Eagle Creek LGA under the Kruzof Island Outfitter Guide decision with the following conditions for allocating LGA service days at Eagle Creek: 1. Alaska Department of Fish and Game wildlife management Unit 4 provides an additional eleven days of spring brown bear hunting on the outside drainages, including Kruzof Island. Records reveal that over the past eight years this additional hunt is the only period where guided brown bear hunting occurs within the project area and those hunts include the Eagle Creek area. Use of the LGA would not be authorized during the eleven day period May 21 through May 31. Cruise seasons begin as early as May. That part of the spring season not within the eleven days from May 21 through May 31 would be available for LGA use as well as the entire summer season. 2. Large group area authorizations would not exceed more than 50% of the total outfitter/guide allocation for that trail/season. 3. Local use and some guided use occur during the migratory bird season. The Eagle Creek LGA partially overlays the estuarine tidal flats that are a highly regarded hunting area; LGA use would not be authorized during the Eagle Creek Fall trail/season. The 2004 Shoreline ROD only addressed spring, summer, and fall seasons. Therefore currently no LGA use is authorized during winter. Further, no request for winter LGA use has ever been received. Although most of the trail systems are within roaded-modified ROS, the entire project area is surrounded by semi-primitive ROS. To maintain social encounters at levels acceptable for most users the district proposes a maximum party size for commercial use of 20 persons (this includes guides). Table 3 shows the range and average group sizes of visitors for ten commercial recreation activities reported for the project area during a nine year period 2004-2012. Activity Group Size Range Average Group Size Road Based Nature Tours (OHV) 2 16 7 Remote-Setting Nature Tours (Hiking) 2 18 8.9 Bicycling 2 6 3.3 Camping 2 12 7.4 Freshwater Fishing 2 4 2.5 Hunting, Brown Bear 1 2 1.2 Hunting, Deer 1 Hunting, Waterfowl/Small Game 4 Mountaineering 9 Kayaking 10 Table 3. Range and Average Groups Sizes for Outfitter Guide Activities in Project Area, 2004-2012. Historically at least once each summer local users assemble in numbers of 50-100 for a long weekend of OHV-centered recreation including camping, riding, and other activities. This local activity only affects social activities over the days on which it occurs. The Eagle Creek LGA provides opportunity for
commercial groups of up to 75 to experience activities within the project area. Limiting guided parties to 20 persons outside the LGA should maximize the recreation experience for the majority of users. Portions of the project area require modification of the recreation opportunity spectrum (ROS) in the current Forest Plan. For example, the Mud Bay MAF is within a semi-primitive motorized ROS when it is the point of access to the roaded-modified ROS. Likewise, the Shelikof Trail, Shelikof cabin, and Port Mary Trail although located within roaded-modified ROS have all been designated as closed to OHV access and should be part of the semi-primitive non-motorized ROS more appropriate to the land use designation (LUD). An area of roaded-modified ROS southeast of Eagle Creek extends into the project area of the Shoreline ROD and should be semi-primitive motorized. This proposed action includes making non-significant amendment to the Forest Plan as depicted on the map (figure 2).
Figure 2. Proposed Non-Significant Amendment to the Forest Plan Recreation Opportunity Spectrum (ROS). Areas in outline would change to Semi-Primitive Non-Motorized ROS.