EASTERN INTERIOR ALASKA SUBSISTENCE REGIONAL ADVISORY COUNCIL Meeting Materials
October 15-16, 2019 Fairbanks
What’s Inside
Page
1 Agenda 4 Roster 5 Draft Winter 2019 Council Meeting Minutes 26 Federal Wildlife Closure Review WCR20-42 47 “Domino Effect” Presentation 56 Federal Subsistence Board 805(c) Report to the Council 61 Presentation Procedure for Federal Wildlife Proposals 62 Wildlife Proposal WP20-48 DRAFT Staff Analysis 98 Wildlife Proposal WP20-49 DRAFT Staff Analysis 124 Wildlife Proposal WP20-50 DRAFT Staff Analysis 146 Wildlife Proposal WP20-51 DRAFT Staff Analysis 156 Wildlife Proposal WP20-19 DRAFT Staff Analysis 174 Wildlife Proposal WP20-08 DRAFT Staff Analysis 187 Fisheries Resource Monitoring Program Overview 196 Fisheries Resource Monitoring Program Yukon Region Overview 219 Annual Report Briefing 221 Federal Subsistence Board FY2018 Annual Report Reply 233 Alaska Board of Game 2019/2020 Cycle Tentative Meeting Dates 234 Yukon River Drainage Fisheries Association Ongoing Projects Report: 2018-2019
On the cover...
Caribou tagged for monitoring in Wrangell- St. Elias National Park and Preserve NPS photo What’s Inside
239 List of Documents Required for Alaska Real ID 241 Winter 2020 Council Meeting Calendar 242 Fall 2020 Council Meeting Calendar 243 Federal Subsistence Board Subsistence Regional Advisory Council Correspondence Policy 245 Region 9 – Eastern Interior Alaska Region Map 246 Council Charter Agenda
EASTERN INTERIOR ALASKA SUBSISTENCE REGIONAL ADVISORY COUNCIL
Pike’s Waterfront Lodge Fairbanks
October 15-16, 2019 convening at 9:00 a.m. daily
TELECONFERENCE: call the toll free number: 1-877-638-8165, then when prompted enter the passcode: 9060609.
PUBLIC COMMENTS: Public comments are welcome for each agenda item and for regional concerns not included on the agenda. The Council appreciates hearing your concerns and knowledge. Please fill out a comment form to be recognized by the Council chair. Time limits may be set to provide opportunity for all to testify and keep the meeting on schedule.
PLEASE NOTE: These are estimated times and the agenda is subject to change. Contact staff for the current schedule. Evening sessions are at the call of the chair.
AGENDA
*Asterisk identifies action item.
1. Invocation 2. Call to Order (Chair) 3. Roll Call and Establish Quorum (Secretary)...... 4 4. Welcome and Introductions (Chair) 5. Review and Adopt Agenda* (Chair) ...... 1 6. Review and Approve Previous Meeting Minutes* (Chair)...... 5 7. Reports Council Member Reports Chair’s Report 8. Service Awards 9. Public and Tribal Comment on Non-Agenda Items (available each morning) 10. Old Business (Chair) a. Wildlife ClosureDRAFT Review WCR20-42 – information update (OSM Wildlife) ...... 26 b. Status update on the hunter ethics education initiative (Katya Wessels) c. “Domino Effect” clarification of information requestLisa ( Maas) ...... 47 d. 805(c) Report – information update (Council Coordinator) ...... 56
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 1 Agenda
11. New Business (Chair) a. Wildlife Proposals* (OSM Wildlife/Anthropology) ...... 61 Regional Proposals WP20-48: Revise seasons and harvest limits for caribou in Units 20F, 20E, and 25C ...... 62 WP20-49: Rescind closure to non-Federally qualified users for sheep in Units 25A AVSMA ...... 98 WP20-50: Revise hunt areas, seasons, and harvest limits for moose in Unit 12 ...... 124 WP20-51: Revise Customary and Traditional Use Determination for sheep in Unit 12 ...... 146 Crossover Proposals WP20-19: Revise the elder/minor hunt for sheep in Unit 11 ...... 156 Statewide Proposals WP20-08: Require traps or snares to be marked with name or State identification number for all furbearers in Unit 2 ...... 174 b. 2020 Fisheries Resource Monitoring Program (OSM Fisheries/Anthropology) ...... 187 c. Identify Issues for FY2019 Annual Report* (Council Coordinator) ...... 219 d. Alaska Board of Game Proposals ...... 233 12. Agency Reports (Time limit of 15 minutes unless approved in advance)
Tribal Governments Native Organizations USFWS a. Arctic National Wildlife Refuge (Vince Mathews) b. Yukon Flats National Wildlife Refuge Update (Vince Mathews) c. 2019 Yukon River Salmon Season Summary (USFWS/ADF&G) NPS a. Yukon-CharleyDRAFT Rivers National Preserve Update (Marcy Okada) b. Wrangell-St. Elias National Park and Preserve – Staff Report Barbara( Cellarius) BLM Yukon River Drainage Fisheries Association (Catherine Moncrieff) ...... 234
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ADF&G a. Hatchery production since 1990. b. Number of fry released and returns for Chinook, Chum, and Pink Salmon OSM a. Report b. Real ID Act of 2005 information sharing (Council Coordinator) ...... 239 13. Future Meeting Dates* Confirm Winter 2020 meeting date and location...... 241 Select Fall 2020 meeting date and location ...... 242 14. Closing Comments 15. Adjourn (Chair)
To teleconference into the meeting, call the toll free number: 1-877-638-8165, then when prompted enter the passcode: 9060609.
Reasonable Accommodations The Federal Subsistence Board is committed to providing access to this meeting for all participants. Please direct all requests for sign language interpreting services, closed captioning, or other accommodation needs to Zach Stevenson, 907-786-3674, [email protected], or 800-877-8339 (TTY), by close of business on September 30, 2019.
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 3 Roster
REGION 9 Eastern Interior Alaska Subsistence Regional Advisory Council
Seat Year Appointed Member Name and Community Term Expires
1 2001 Susan L. Entsminger Chair 2019 Mentasta
2 2007 Andrew P. Firmin Vice-Chair 2019 Fort Yukon
3 2017 Michael J. Koehler 2019 Dry Creek
4 VACANT 2019
5 2005 William L. Glanz 2020 Central
6 2002 Andrew W. Bassich 2020 Eagle
7 2017 Robert C. Wright, Sr. Secretary 2020 Tanana
8 2017 Charlie Jagow 2021 Porcupine River
9 2004 Donald A. Woodruff 2021 Eagle
10 2018 Timothy McManus 2021 Nenana
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EASTERN INTERIOR ALASKA SUBSISTENCE REGIONAL ADVISORY COUNCIL Meeting Minutes
March 5-6, 2019 Binkly Room, Pike's Waterfront Lodge Fairbanks
Invocation: Donald Woodruff provided an invocation.
Call to Order, Roll Call and Quorum Establishment: The meeting was called to order Tuesday, March 5 at 9:00 a.m. Andrew Firmin, Council’s Secretary, conducted a roll call. Council members Sue Entsminger, Michael Koehler, Andy Bassich, Robert Wright, Bill Glanz, Charlie Jagow, Timothy McManus, and Andrew Firmin were present in person. With nine seated Council members present (Council has one vacant seat) during the first day of the meeting the quorum was established. Introductions were made for Council members, staff, and guests.
Attendees: The following persons attended some portion of the meeting either in person or by teleconference, in addition to the Council members.
In person:
Katerina Wessels Anchorage Office of Subsistence Management (OSM) Jennifer Hardin Anchorage OSM Lisa Maas Anchorage OSM Pippa Kenner Anchorage OSM Vince Mathews Fairbanks US Fish and Wildlife Service (USFWS), Yukon Flats National Wildlife Refuge (NWR) Jan Conitz Fairbanks USFWS Nathan Hawkaluk Fairbanks USFWS, Yukon Flats NWR Gerald Maschmann Fairbanks USFWS Fred Bue Fairbanks USFWS Steven Strader USFWS Marcy Okada Fairbanks National Park Service (NPS), Yukon- Charlie Rivers National Preserve (NP) Judy Putera NPS, Wrangell-St. Elias National Park and Preserve (NPP) Pat Petrivelli Anchorage Bureau of Indian Affairs (BIA), Interagency Staff Committee (ISC) member Jim Herriges Fairbanks BLM, Eastern Interior Field Office Darren Bruning Fairbanks Regional Supervisor, Interior, Alaska Department of Fish and Game (ADF&G)
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Jason Caikoski ADF&G, Division of Wildlife Conservation for Northeast Alaska Brandy Baker Delta Junction ADF&G, Sport Fish Division Lisa Stuby Fairbanks ADF&G, Sport Fish Division Wayne Jenkins Yukon River Drainage Fisheries Association (YRDFA) Debra Lynne Tanana Chiefs Conference (TCC) Jim Simon Fairbanks TCC, Hunting and Fishing Task Force and Ahtna Intertribal Resource Commission (AITRC) Brooke Woods Fairbanks University of Alaska Fairbanks (UAF) student, TCC Brian McKenna TCC Pam Miller public Paul Williams public
Via teleconference: Barbara Cellarius Copper Center NPS, Wrangell-St. Elias NPP Clarence Summers Anchorage NPS Jobe Chakuchin Anchorage NPS David Sarafin NPS Jeff Estensen ADF&G Deena Jallen ADF&G Brooke McDavid Fairbanks ADF&G, Division of Subsistence Mark Burch Palmer ADF&G Daniel Sharp Anchorage BLM Frank Harris Anchorage OSM Orville Lind Anchorage OSM Robbin La Vine Anchorage OSM Carol Damberg Anchorage USFWS Gloria Stickwan AITRC, Southcentral Alaska Subsistence Regional Advisory Council
Review and Adopt Agenda
Motion #1 by Mr. Bassich, seconded by Mr. Glanz, to adopt the agenda as read with the following changes:
Under the Old Business (10) add topic Representation at the Federal Subsistence Board meetings; Under the Old Business (10) add topic Update on the Delegation of Authority Letter for the Management of Caribou on Federal Public Lands in Unit 20E and 25C to be presented by OSM; Under the Agency Reports (12) add presentations from: o Documentation of Salmon Spawning and Rearing in the Upper Tanana River Drainage to be presented by Brandy Baker, ADF&G.
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The motion #1 carried unanimously.
Election of Officers: The Council unanimously elected Susan Entsminger as Council’s Chair (motion #2), Andrew Firmin as Vice-chair (motion #3), and Robert Wright, Sr., as Secretary (motion #4).
Review and Approve Previous Meeting Minutes
Motion #5 by Mr. Bassich, seconded by Mr. Glanz, to approve the fall 2018 meeting minutes as presented.
The motion #5 carried unanimously.
Council Member and Chair Reports:
Bill Glanz (Central) reported on attending the Fortymile Caribou Herd Harvest Management Coalition meeting in Tok. The group voted to maintain the herd growth rage at 2 to 3 percent. Mr. Glanz remarked that a State government representative was requesting to keep the growth rate at 1 percent, which in Mr. Glanz’s mind is unrealistic.
Donald Woodruff (Eagle) said that the hare cycle is on the upswing, but, probably, will not peak for another couple of years. Quite a few lynx were observed in Eagle. Mr. Woodruff also attended the Fortymile Caribou Herd Harvest Management Coalition meeting representing Eagle and echoed Mr. Glanz’s comments on the State government intent to keep the heard growth flat. In Mr. Woodruff’s opinion, the only way herd would move to new grazing ground in through nutritional stress. The results of the 2017 photo census indicated the herd size at 71,000 caribou and now it is probably at 80,000 caribou. The Canadian members of the coalition needed some convincing to agree to flatten the herd a little bit. Mr. Woodruff also reported on the Eagle Fish and Game Advisory Committee (AC) meeting discussion on moose population in Unit 20E south. Mr. Woodruff also would like to hear the Federal and State managers discussing and cooperating on the rebuilding of the Chinook Salmon stock instead of having so much conversation about harvest. If the stock is not rebuilt, there will be no harvest.
Timothy McManus (Nenana) shared that they did not have the Minto/Nenana AC meeting yet but there is a lot concerns on the State shutting down the antlerless moose hunt since the quota was met. Mr. McManus reported that even the hunt for ceremonial purposes was shut down. People do not want to consume a bull moose during wintertime.
Robert Charlie Wright, Sr. (Tanana) echoed the concerns about the shutdown of antlerless moose hunt and the ceremonial hunt for potlaches in the Interior. Mr. Wright also said that the hare population is up in the Interior, and people are catching many marten, which provides an opportunity for additional small income.
Andrew Firmin (Fort Yukon) said that he is sorry he missed the meeting in Tanana and that it is always good to have the meetings in the villages and to hear directly from the users. The Yukon
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Flats AC plans to request a seat on the Fortymile Caribou Herd Harvest Management Coalition since the Porcupine Caribou Herd had changed its migration routes and does not come close to Fort Yukon anymore. People are forced to travel far to harvest a caribou and sometimes need to stay at the border until October to get one. It also can be dangerous, since one might freeze or get stranded there in winter weather, and caribou might not show up at all. More people from Fort Yukon started hunting the Fortymile Caribou; therefore, it would be good to participate in the Coalition to be more informed and provide local input. Mr. Firmin also noted that in his area the hare population picked a few years ago.
Andy Bassich (Eagle) shared his concern regarding the management of fall Chum Salmon run, which is very important for subsistence users in Tanana, Fort Yukon, and Eagle. With the Chinook Salmon runs down, the fall Chum is being used more and more for human food. It is also traditionally used for feeding dog teams; therefore, the fall Chum is an integral part of the lifestyle there. Last fall ice already started forming and the fishwheels were in operation in middle of October and catching about 10-20 fish per day, which is dangerous and unproductive. It is necessary to have a frank discussion with the mangers about balancing the escapement goals with allowing upper river communities to get the necessary harvest. Mr. Bassich also shared the reports from hunters and pilots that there is very little moose in his area. Mr. Bassich also echoed Mr. Woodruff’s concerns regarding low quality of Chinook runs. It is necessary to bring large fecund older female fish to the spawning grounds and try to rebuild the genetics. It is also necessary to build better communication with people harvesting fish and to get them to understand that bigger returns are only 50 percent of the traditional runs.
Michael Koehler (Dry Creek) reported that snow was very low this year, which made it a terrible year for trapping and transportation, but the ice was good. The weight of moose calves is up, sometime 100 pounds over the average. Mr. Koehler informed the Council that the hunter ethics education meeting with military personnel that took place one day before the Council’s meeting was very productive. Mr. Koehler also attended the Fortymile Caribou Herd Harvest Management Coalition meeting and represented the Council. He had a copy of the draft management plan for any Council member to look at, if they wished. Mr. Koehler also informed the Council that the Coalition made alternative plans of management to stabilize the population if necessary if the herd size begins to decrease due to natural stressors. The draft management plan awaits an approval from the Canadian side.
Charlie Jagow (Porcupine River) talked about a mild snow and ice year in his area, due to which it was a rather good trapping season. The lynx population is peaking along with the rabbits (sic.). The Porcupine Caribou Herd did not winter on the Upper Porcupine River or on the Colleen River, which is the second year in a row that they have done this.
Chair Sue Entsminger (Mentasta Pass), Chair, reported that trappers in her area doing an excellent job in reducing wolf population, which in turn helps to increase ungulate population. Chair Entsminger’s son is one of these trappers. There is a lot of guiding taking place on State’s lands in her area, and Chair Entsminger said that the State needs to figure out a better system to regulate guiding so there is less competition in the same areas. Chair Entsminger is engaged in the hunter education program with Mentasta School, and during the past bear season she accompanied two students on a successful black bear hunt. Each of them got one bear. During
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the school year, Chair Entsminger and her son trained students to skin the bear using the most efficient techniques. The students got to practice on a black and then on a grizzly bear. Chair Entsminger stressed that it is important to get the youth involved, learn, and stop spending so much time on cell phones.
Council Coordinator report
Katya Wessels, Council Coordinator for the Council, welcomed the new member, Mr. McManus, and two incumbents, Mr. Jagow and Mr. Woodruff, to the Council. Then she talked about the following topics: 1. the Council’s membership and a vacant seat 2. changes in the Councils and the Federal Subsistence Board (Board) schedule 3. following proper parliamentary procedures for putting in a motion or amending it.
Old Business
Hunter Ethics Education update
Katya Wessels briefly recapped the history of the hunter ethics education initiative of the Council for the benefit of the new member McManus and informed the Council in detail about a presentation of this initiative at the Fur Rendezvous organized by the Safari Club International. Then, Ms. Wessels reported to the Council on having a meeting with the representatives of Fort Wainwright and Eielson Air Force Base as well as the Council, BLM, and USFWS representatives to work out the details of the pilot hunter ethics education project that involves military personnel. Ms. Wessels also relayed to the Council that she is going to present to the Board an update on the initiate development during the Board’s April meeting.
Mr. Bassich made a request for an official explanation on how potential outside funding sources (non-Federal or State money) can be used for the hunter ethics education initiative and if there are any restrictions. He said that it is important to have a clear understanding of this prior to seeking outside funding. He also recommended that there should be a letter from OSM or all agencies (NPS, BLM, USFWS, and ADF&G) supporting the initiative prior to looking for additional funding. Mr. Koehler made a request to continue to include ADF&G in these discussions. Ms. Wessels and Mr. Mathews informed the Council that ADF&G was invited to come to the military pilot project development meeting but chose not to or were not able send a representative.
Jennifer Hardin, Policy Coordinator with OSM, informed the Council, that OSM is working out communication protocol with the new administration at ADF&G and all requests need to go to Benjamin Mulligan, Deputy Commissioner for ADF&G and Mark Burch, Special Project Coordinator for ADF&G.
Lisa Maas with OSM was not able to present her research on the “Domino” effect because it was not reviewed by OSM’s leadership team.
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Council Representation at the April Board Meeting
The Council discussed who would represent it at the April 2019 Board meeting. Mr. Firmin did not want to represent, since he did not attend the Fall 2018 meeting in Tanana when the fisheries proposals were discussed. Mr. Bassich could not be away from his dog team for an extended period and he would be attending a 10-day Yukon River Panel meeting just prior to the Board meeting. He said that he could stand in as an alternate. Mr. Woodruff talked about his experience representing the Council at a previous Board meeting and recommended that everyone on the Council needs take their turn to participate in the Board meetings. Mr. Bassich suggested that if he is on the road system, he could call in. Mr. Firmin said that he could try to go but would not make any promises. It was decided that Mr. Firmin as the Vice Chair, would coordinate among the Council members, who can possibly represent the Council at the Board meeting, since Mr. McManus and Mr. Wright, Sr., would potentially be in Anchorage at the same time.
New Business
Wildlife Closure Review WCR18-42 (Unit 12 within WRST caribou)
Lisa Maas, wildlife biologist with OSM, presented a summary of the analysis of Wildlife Closure Review WCR18-42 pertaining to the closure of caribou hunting in Unit 12. OSM's preliminary recommendation is to maintain the status quo due to conservation concerns. The Mentasta Caribou Herd population remains low and cannot withstand any harvest. The Chisana Caribou Herd population appears stable and current harvest levels are sustainable, indicating no additional restrictions are warranted. The Wrangell-St. Elias National Park and Preserve (WRST) Superintendent has delegated authority to manage the hunt and can respond to yearly conditions. Additionally, the low harvest quota cannot support the harvest pressure that could result from opening the area to all users.
The Council had a detailed discussion on the status of the Mentasta and Nelchina Caribou Herds and their mixing ratios and patterns. It also received some information from ADF&G on radio collaring (satellite GPS collars) that are used to get a better understanding of moving and mixing of the herds. Additionally, ADF&G talked about morphological differences between the two herds, their different calving ranges and migration patterns.
Motion #6 by Mr. Bassich, seconded by Mr. Wright, Sr., to support OSM preliminary recommendation for maintaining status quo on the closure.
After evaluating all of the received information, the Council determined that it would be prudent to maintain the closure for conservation purposes and assess the situation in the future.
The motion #6 carried unanimously.
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Update on 2019-2021 Federal Subsistence Management Regulations for the Harvest of Fish and Shellfish on Federal Public Lands and Waters in Alaska
Jennifer Hardin, Subsistence Policy Coordinator with OSM, informed the Council that typically the updated Federal Subsistence Management Regulations for the Harvest of Fish and Shellfish on Federal Public Lands and Waters in Alaska become effective in March. This year the situation is different due to a lapse in government funding resulting in rescheduling the Board regulatory meeting to be held in April 2019. As a result, OSM plans to suggest to the Board that they consider implementing companion temporary special actions that would allow the Federal Subsistence Management Program to implement immediately the regulatory changes that the Board has just adopted. Dr. Hardin explained in detail the whole process change and said that this is being done to have new regulations in place by the time the fishing season starts. Temporary special action process requires a public process including consultation with the Councils Chairs, tribes, ANSCA corporations, and the State of Alaska, which is planned to be covered during the Board meeting. The Council and public asked some clarifying questions of the process.
BLM Delegation of Authority Letter (Units 20E and 25C caribou), Special Action Request, and Draft Proposal for Caribou in Units, 20E, 20F, and 25C
Ms. Maas provided explanation of a delegation of authority letter issued to BLM manager for caribou in Unit 20E and 25C to modify or restrict harvest limits and season dates. Jim Herriges, wildlife biologist with the Eastern Interior Field Office of BLM, mentioned that this delegation of authority does not include setting sex restrictions and that there are some variations with State seasons. Mr. Herriges prepared a special action request to expand the existing delegation of authority to include sex. He also drafted a regulation proposal to match Federal and State caribou regulations for the Units 20E, 20F, and 25C, which he distributed to the Council members. In a lengthy discussion, the several members of the Council expressed an opinion that opening the season on the proposed date of August 1 would create confusion for the State’s youth hunt and beginning caribou hunt on October 21 is not advisable since bulls are still in rut at this time and meat is not eatable. The Council felt that it is the best to let the Fortymile Coalition provide recommendations for seasons and bag limits.
Motion #7 by Mr. Woodruff to support the delegation of authority letter to BLM to align Federal and State regulations on the Fortymile hunt. The motion was not seconded and died.
The discussion was postponed until ADF&G presentation on the Fortymile Caribou Herd.
Call for Federal Wildlife Proposals
Proposal to Change Federal Regulations for Moose in Unit 12 Remainder
Motion #8 by Mr. Bassich, seconded by Ms. Entsminger, to put in a proposal to align Federal moose hunting regulations on hunting areas and bag limits in Unit 12 with State regulations.
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The Council recommended changing the Federal regulations for moose in parts of Unit 12 remainder to align Federal and State hunt areas, seasons, and harvest limits to reduce user confusion, as follows:
Existing Federal Regulation
Unit 12 — Moose
Unit 12, remainder—1 antlered bull by joint Federal/State Aug. 20-Sep. 20. registration permit only
Proposed Federal Regulation
Unit 12 — Moose
Unit 12, remainder that portion within the Nabesna River drainage west of the east bank of the Nabesna River Aug. 20-Sep. 20. upstream from the southern boundary of Tetlin National Wildlife refuge —1 antlered bull by joint Federal/State registration permit only
Unit 12, that portion within the Tok River drainage upstream of a line from Peak 5885 at 63° 9.243 N. Lat., 143° 24.248 W. long., to MP 105 of the Glenn Highway (Tok Cutoff) at 63° 7.438 N. Lat., 143° 18.135 W. Long., Aug. 24-Aug. 28 then south along the Glenn Highway (Tok Cutoff) to the Sept. 8-Sep. 17 Little Tok River Bridge at mile 98.2; and within the Little Tok River drainage upstream of the Little Tok River Bridge at mile 98.2 – 1 bull with spike-fork or 50-inch antlers or antlers with 4 or more brow tines on at least one side
Unit 12, remainder – one bull Aug. 24-Aug. 28 Sept. 8-Sep. 17
The intention of this proposal is to align Federal and State regulations to reduce user confusion. Currently, the small tracts of BLM lands in the Federal Unit 12 remainder have different seasons and antler restrictions under Federal regulations than under State regulations. However, differentiating land ownership in the field is impractical. This proposal will align Federal and State hunt areas, seasons, and harvest limits for moose in parts of Unit 12 (outlined above) to make it easier for users to understand where and when they can hunt.
The motion #8 carried unanimously.
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Council Charter Review
Katya Wessels, Council Coordinator, presented biennial Council Charter Review process. The Council briefly discussed a possibility of recommending adding additional seats to the Council and adding the language on the geographic member representation balance. A discussion ensued regarding a necessity to solicit applications to serve on the Council from underrepresented northern areas of the Eastern Interior Region. Ms. Wessels appealed to the Council to assist on this matter.
Motion #9 by Mr. Bassich, seconded by Mr. Wright, Sr., to adopt the Council Charter as is.
The motion #9 carried unanimously.
Council’s FY2018 Annual Report
Motion #10 by Mr. Bassich, seconded by Mr. Wright, Sr., to approve Council’s FY2018 Annual Report
The Council reviewed the draft annual report in detail and stressed that capturing the Council’s concerns and providing this information to the Board is one of the main tasks of the Council. Mr. Bassich spoke on the record regarding topic number 4 Concerns over the Alaska Department of Fish and Game Lowering the Biological Escapement Goal and Its Effect on Salmon Stocks. He said that “one of the issues is the sonar doesn't count eggs, the sonar counts fish and they try and guesstimate how many females, but we really don't have a clear understanding of how many eggs were crossing the border in 1985 and how many eggs are crossing the border right now. That is the crux of the management issue. So whenever we get reports on fisheries escapements, we get the number of fish and everybody is patting themselves on the back saying, well, we got greater than what our IMEG was stating, but in fact, if you really do the math, we're probably putting fewer eggs across the border even though we're putting more fish across the border.” The Council also asked to add a language on requesting a letter of support from OSM or the Board for the hunter ethics education initiative. The Council thanked Ms. Wessels for going above and beyond her duties in an effort to capture the Council’s concerns and ideas correctly and drafting a very detailed report.
The motion #10 carried unanimously.
Alaska Board of Game Call for Proposals
Antlerless moose hunt in the Minto Flats Management Area, Unit 20B
Mr. Wright, Sr., shared with the Council the Tanana/Rampart/Manley Fish and Game Advisory Committee (AC) concerns regarding stopping the hunt for antlerless moose for the purposes of memorial and burial potlatches in the Minot Flats Management Area in Unit 20B and in Units 20C, 20F, and 25C. Mr. Wright also distributed a copy of the AC letter addressed to the Alaska Board of Game and to the ADF&G Commissioner. The antlerless moose hunt is shut down every year once the allowed number of animals have been harvested and seasons must be
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reauthorized annually. The Minto/Nenana AC and Tanana/Rampart/Manley AC plan to oppose reauthorization of antlerless moose hunt in Unit 20B (ADF&G proposal 136 to BOG). The Council discussed a potential to develop a BOG proposal opposing reauthorization of antlerless moose hunt, if it prevents taking of the moose for traditional ceremonial purposes. The Council tasked Mr. Wright, Sr., in providing more information and preparing a draft proposal language to discuss during the second day of the meeting.
Proposal to eliminate three sheep limit winter hunt in Unit 25A
Ms. Entsminger temporarily passed the chairmanship to Andrew Firmin to discuss a potential proposal to the BOG. She reminded the Council about the Arctic Village Sheep Management Area (AVSMA) Federal proposal WP18-56 discussion during the fall 2018 meeting. She also reminded the Council that the Alaska Administrative code (92.003) contains a requirement for a specialized ethics education course that a potential hunter would be required to take in case the AVSMA is open to other hunters besides just Federally qualified subsistence users. However, the State had never developed this course because there is no season. Ms. Entsminger suggested to the Council to submit a BOG proposal to create a permit draw for sheep for residents and non- residents and change the harvest limit for the winter season from 3 sheep to one ram with full- curl horn or larger every 4 regulatory years in the newly established State hunt area (State AVSMA). She said that the sheep in the spring have no fat and are extremely tough, so it is hard for her to understand why “we’re running around on snowmachines and shooting sheep in the spring and have a three sheep limit.” Ms. Entsminger also shared with the Council that during the last hunter ethics education meeting she had met two young hunters from Arctic Village who expressed interest in getting into guiding. Ms. Entsminger noted that if the BOG adopts this proposal, the State would need to develop the ethics education course.
The Council had a prolonged discussion of the merits of the proposal and a potential to eliminate the Oct. 1 – Apr. 30 hunt. Acting Chair Firmin expressed an opinion that no one would hunt during that hunting period except a few non-residents. The discussion ensued regarding that if it is a draw hunt, then it is a State sport hunt only, and it would be necessary to have the winter or some other subsistence opportunity at the State level in order to have a fall drawing hunt. The Council also discussed what it takes to become a guide, all the different steps that will need to be taken in order for the AVSMA ever to become open and the necessity of working with the Arctic Village people through this process to achieve mutual understanding. Ms. Entsminger felt that this is an opportunity to begin working together with the Arctic Village residents on resolving the situation. Mark Burch with ADF&G recalled the discussions that took place at the last Board wildlife regulatory meeting during the wildlife proposal WP18-56 deliberations.
Motion #11 by Ms. Entsminger, seconded by Mr. Woodruff, to change the harvest limit for the winter season in the Chandalar River hunt area from 3 sheep to one ram with full-curl horn or larger by permit and establish a draw permit hunt for residents and non-residents within the newly established hunt area (State AVSMA).
Mr. Bassich expressed an opinion that stipulating to have a draw permit every four years is a good conservation measure and if the AVSMA will get really open in the future, he didn’t want it to become a problem for the residents. Acting Chair Firmin agreed with Mr. Bassich. Mr.
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Wright, Sr., said that he wants to know what the residents of the Arctic Village think about this proposal because it is going to affect them.
Motion #12 by Mr. Bassich, seconded by Ms. Entsminger, to amend the original proposal to add the proposed harvest limit of one ram with full-curl horn or larger every 4 regulatory years under RS595 season of Oct. 1-Apr. 30.
The motion #12 to amend carried unanimously.
Ms. Entsminger talked about the history of the establishment of the AVSMA in response to local residents’ requests and how the Cane Creek and Sheep Creek were added. She also mentioned that it would be good to add into the justification all of the history related to the AVSMA and various proposals associated with it. Mr. Entsminger said that “The Federal Board has acknowledged there's no conservation concern, but said that the closure was needed to ensure the continuation of traditional subsistence.”
Gloria Stickwan stated that this proposal should be brought up to the local people for their input.
The motion #11 as amended passed 8 to 1.
Chair Entsminger proposed to write a letter to the Arctic Village residents to work together and get a more in-depth understanding of the situation in the AVSMA.
Motion #13 by Mr. Woodruff, seconded by Mr. McManus, to write a letter to the Arctic Village asking them for their input and to work together with the Council and USFWS.
The discussion ensued on how many and how often residents of Arctic Village attend the Council meetings. The Council stressed an importance to work with the Arctic Village residents regarding any proposals that would affect them.
The motion #13 passed unanimously.
Mr. Firmin, Mr. Woodruff, and Mr. Jagow were selected for a working group to further develop the BOG proposal on sheep. Mr. Wright, Sr., also put forward a suggestion that if the three sheep limit is changed to one ram with full-curl horn or larger to add a requirement of horn destruction. Chair Entsminger said that another possibility is to change the three sheep to a ewe hunt.
Agency Reports
ADF&G Report of the Fortymile Caribou Herd
Jeff Gross, ADF&G Management Biologist for the Fortymile Caribou Herd, provided an update. The Fortymile Caribou Herd Harvest Management Plan is being revised. The herd continues to grow. The 2017 photo census shows the minimum count at 73,000 animals and the modeled estimate is over 80,000. Over the last eight to ten years, there were some obvious signs of
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nutritional impact. The recommendation is to stabilize or possibly even reduce the herd. The harvest quota went from 150 bulls in the 1990s to 2,000 animals during the last 2 years, and if the herd needs to be stabilized the quotas might go up to 4,000 or higher. Increasing the quotas, means that a lot of harvest will occur along the road system, which presents a challenge. Mr. Gross and the Council discussed the early season opening and possibility of the meat smelling and tasting bad because the bulls are in the rut.
Motion #14 by Mr. Bassich, seconded by Mr. Glanz, to draft a letter to the Fortymile Caribou Herd Harvest Management Coalition regarding the Council concerns for the October 21 State opening and the quality of meat. (146-149).
The Council has a concern about early hunting of bulls that could potentially still be in rut and the Council’s end goal is to align State and Federal openings as much as possible for this hunt. The Council would like to see the ADF&G doing a survey of the meat harvested in the early season.
The motion #14 carried unanimously.
Motion #15 by Mr. Bassich, seconded by Mr. McManus, to add to the Fortymile Caribou Herd Harvest Management Coalition letter regarding the youth hunt
The Council wanted to make it clear that the youth hunt should remain a State only hunt from August 1 through August 11.
The motion #15 carried unanimously.
Tribal Governments – Tanana Chiefs Conference
Brian McKenna, Fisheries Biologist with Tanana Chiefs Conference, reported on a new project launched in 2018. It involved the use of unmanned aerial systems (UAS or drones) in combination with photogrammetry to count salmon. UAS is a promising new technology, which can be used in combination with photogrammetry for monitoring salmon escapement. Mr. McKenna also mentioned that most weirs now use video technology. The Council had a discussion that it might be a good idea to close off known salmon-spawning streams/tributaries to boat traffic for two weeks during the spawning season. The Council also was interested in any studies on how many fish might have been hit and if they survived. The Council saw a possible need for public education and outreach regarding not disturbing spawning salmon. Such rivers as Chena and Salcha are two of the most critical streams for the Chinook Salmon spawning, and the boat traffic going by the spawning grounds might be devastating for the Chinook Salmon eggs. On the Koyukuk River, there is a problem with mining tractors using the shallow waters to get to the mining sites.
Preliminary 2019 Yukon River Pre-Season Outlook
Gerald Maschmann, Assistant Federal In-season Manager for the Yukon River, presented a report on the 2019 Yukon River Salmon Pre-Season Outlook, jointly prepared by the USFWS
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and ADF&G. Mr. Maschmann reported that Chinook Salmon run outlook is similar to the previous year, so the conservation measures will need to be implemented. At the same time, there will be an available surplus of summer and fall Chum Salmon as well as Coho Salmon for normal subsistence and commercial harvests. This situation presents management challenges similar to the previous year. The management strategies include a combination of windows, subsistence schedules, reduced window schedules, period closures and various gear restrictions.
Mr. Bassich noted that people in Eagle had difficulties harvesting sufficient Chum last fall due to low run. He asked the managers regarding this year’s strategy that can allow residents to harvest enough fish. Three Eastern Interior Region villages, Tanana, Fort Yukon, and Eagle, are well- documented users of fall Chum. Jeff Estensen, Fall In-season Manager with ADF&G, replied that the 2018 fall Chum run was unusually late and a lower than normal portion of the run went to Canada. Mr. Estensen said that it might be possible to reduce the amount of commercial fishing that occurs on the pulses that go into Canada to bring more fish to Tanana, Fort Yukon, and Eagle. It needs to be brought up for discussion at the Yukon River Panel meeting.
The Council and Deena Jallen, Summer In-season Assistant Manager with ADF&G, had a discussion about the summer Chinook Salmon management and going from the surgical openings to windows type of management regime. Ms. Jallen said that if there is enough fish, they want to give people at least some opportunity to get their fish and spread that harvest out and find convenient fishing times. Mr. Bassich expressed his concern regarding protecting large fecund females at this type of management regime. Mr. Maschmann added that they worked hard to spread the harvest throughout all the pulses with short openings with 6-inch gear, then 7.5 and some with just dipnets.
Denali National Park and Preserve Report
Pat Owen, Wildlife Biologist with Denali NPP, provided a wildlife update for the NPP. Ms. Owen talked about: bear monitoring bear management moose monitoring caribou monitoring wolf monitoring sheep population surveys
After her presentation, Ms. Owen answered questions from the Council regarding caribou calf surviving rate and the low ratio between ewes and rams as well as what does bare management in the park entails.
Denali Subsistence Resource Commission
Amy Craver, Subsistence Coordinator with Denali NPP, talked about recruiting members for an appointment to the Denali Subsistence Resource Commission (SRC). She and Barbara Cellarius told the Council that the selection criteria for the SRC seat are outlined in the Section 808 of ANILCA and in order to be eligible the person needs to be a member of either a Regional
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Advisory Council or local Advisory Committee and engaged in subsistence uses within the Park or Park Monument.
Motion #16 by Mr. Bassich, seconded by Mr. Glanz, to appoint Robert C. Wright, Sr., to be the Council’s representative on the Denali SRC and Timothy McManus as an alternate.
Mr. Bassich and Chair Entsminger expressed an opinion that overtime no one will be qualified to be appointed to Denali SRC, since there is very little subsistence activity in that park. Mr. Bassich said that the appointees represent not just themselves but a large group in their advisory capacity; therefore, the personal experience matters only to a certain extent. There was a discussion about the boundaries of the resident zone communities in the WRST and a more restrictive situation in the Denali NPP. Clarence Summers, Subsistence Coordinator with the NPS, talked about their work with the ADF&G AC Regional Coordinator. He said that Minchumina in Unit 20C is a resident zone community, so there is a potential to find the SRC candidates that serve on that AC. He also told the Council that residents, who do not reside in one of the resident zone communities, can apply for permit 13440 with the Superintendent.
Motion #16 carried unanimously.
Yukon Flats National Wildlife Refuge Update
Nathan Hawkaluk, acting Refuge Manager, presented the update. He talked about: moose survey in Unit 25D West lynx movement study waterfowl (scoters, scaup, loons, and swans) survey Fort Yukon community hunter liaison project in partnership with the Council of Athabaskan Tribal Governments moose management meetings for the residents of the Yukon Flats snaring clinic in Venetie and Chalkyitsik
Vince Mathews, Refuge Subsistence Specialist for Arctic, Kanuti, and Yukon Flats NWRs, talked about: NWR open house project hunter ethics education project Native Youth Community Adaptation and Leadership Congress
The U.S. Fish and Wildlife Service and the Alaska Department of Fish and Game migratory bird apology letter
Mr. Mathews presented to the Council the U.S. Fish and Wildlife Service and the Alaska Department of Fish and Game migratory bird apology letter intended to reconcile unintended impacts of past harvest regulations of migratory birds and their eggs.
Arctic National Wildlife Refuge Update
Mr. Mathews presented the Arctic NWR update. He talked about:
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Coastal Plain Oil and Gas Leasing Program Research and Monitoring staffing changes management of Porcupine Caribou Herd moose on North Slope (Unit 26C) sheep surveys Public Use Management staffing changes commercial permits Arctic Interagency Visitor Center Arctic Village youth camp
Mr. Hawkaluk told the Council that about 60 hunters were contacted through the hunter liaison program. Mr. Firmin asked for a report from the program.
Public testimony
Paul Williams, member of the public, talked about moose in Unit 25D, wrongness of hunting just large bulls, necessity of black bear management, moose hunting in Yukon Flats, collaboration, and concerns regarding opening of the Arctic NWR for development.
Yukon-Charlie Rivers National Preserve Update
Marcy Okada, Subsistence Coordinator for Yukon-Charley Rivers NP, presented the update. She spoke about: moose survey denning ecology of wolves in Yukon-Charley journal article sheep population
Scott Sample, Chief Ranger, talked about a regulation (36 CFR 13.160) on use of cabins or building temporary structures for subsistence purposes. Under the compendium, an extended stay in public use cabins is 10 days in a 30-day period. Mr. Sample posed an open-ended question to the Council about what they consider a local rural resident for the purposes of subsistence uses in National Preserves, in case if the Council wants to discuss it at the future meetings. He also distributed a map of Communities with recognized customary and traditional (C&T) use privileges around Yukon-Charley Rivers NP. Chair Entsminger shared her experience of dealing with this issue for Wrangell-St. Elias NPP. The Council had a detailed discussion of the issue. A suggestion was made to put all C&Ts applicable to Yukon-Charley NP on the map. Mr. Woodruff suggested adding this topic to the next meeting’s agenda.
Documentation of Salmon Spawning and Rearing in the Upper Tanana River Drainage
Brandy Baker with ADF&G presented an update on Documentation of Salmon Spawning and Rearing in the Upper Tanana River Drainage project. Ms. Baker reported that they specifically worked in the Chisana and Nabesna Rivers drainages and located some probable rearing areas of Chum Salmon. They used DNA environmental sampling to find salmon DNA in the water. Next step is to conduct key respondent interviews in Northway to target other areas of sampling.
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Wrangell-St. Elias National Park and Preserve Report (WRST)
Judy Putera, Wildlife Biologist with WRST, presented the report. She talked about: Mentasta Caribou Herd June post-calving census and fall sex and age composition count GPS radio collars and Chisana Caribou Herd population estimate planned large-scale brown bear survey in the spring wolf survey in the Chisana area Dall sheep sampling survey
Barbara Cellarius, Subsistence Coordinator with WRST, presented an update and spoke about: Federal subsistence permits baseline ethnographic reports projects traditional ecological knowledge projects
The Council discussed with the presenters the low hunter success rates and methods for planned bear and wolf surveys.
David Sarafin, Fisheries Biologist with WRST, presented information on fisheries research, inventory, and monitoring projects and on upper Copper River Federal subsistence fisheries. He talked about: salmon escapement weirs at Tanada Creek and Long Lake assessment of Burbot populations in lakes of the upper Yukon/Tanana River drainages summary of 2018 season on Copper River 2019 pre-season Copper River salmon forecast 2019 early season management strategy for Federal fisheries
BLM Agency Report to the Council
Jim Herriges with the BLM Eastern Interior Field Office presented the report. Mr. Herriges reported on: BLM support of Fortymile Caribou monitoring Tribal management plans for the Steese National Conservation Area and the White Mountains National Recreation Area implementation of the 2016 resource management plan – lifting mineral withdrawals on about a million acres Fortymile Caribou Herd monitoring
Mr. Herriges and the Council discussed caribou grazing in the burned areas and the need for habitat research.
New Business (resumed)
Special Action Request and Draft Proposal for Caribou in Units, 20E, 20F, and 25C (resumed)
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Mr. Herriges continued a conversation with the Council that was started during the first day of the meeting regarding a possible special action request or/and proposal for caribou in Units, 20E, 20F, and 25C, the draft of which was distributed to the Council. Mr. Herriges was seeking the Council’s input on should it be just a special action request to match up harvest regulations with the State. Mr. Herriges explained his rational on proposed dates and bag limits.
Motion #17 by Mr. Bassich, seconded by Mr. Woodruff, to support the special action request as presented by the BLM to adjust the Federal Fortymile Caribou regulations to match the State to reduce the user confusion.
Mr. Bassich said that the State has a number of methods to adjust the caribou harvest to achieve harvest plan goals recommended by the Fortymile Coalition.
Motion #17 carried unanimously.
Motion #18 by Mr. Bassich, seconded by Mr. Glanz, to support the regulatory proposal as presented by the BLM to change the 2020-2022 Federal Fortymile Caribou regulations.
Mr. Bassich expressed a concern about having season open on August 1, as was suggested in the draft proposal. When one hunts caribou that early, they will need to do some detailed planning because it is still very hot and it is not allowed to hunt along the road, so they will have to pack the meat out. OSM staff reminded the Council that they would have another opportunity to provide an official on-the-record opinion on this proposal during the fall 2019 meeting. Mr. Firmin said that it might be a wrong assumption to think that caribou is starving so half of them needs to be killed, instead of letting them to go hungry and may be finding some other grazing areas and expand. In case this does not work, he said, then “let the wild, wild west on the Taylor Highway take care of it.” Mr. Woodruff said that we do not want to see the Fortymile Herd crashing as it happened with the Mulchatna and Central Arctic Caribou herds, and the reduction doesn’t’ mean that half of caribou needs to be taken. The Council talked about how fast a herd crash might happen.
Motion #18 carried unanimously.
Agency Reports (resumed)
ADF&G Report on Movi Virus
Darren Bruning, Interior and Northeast Region Regional Supervisor, Division of Wildlife Conservation, ADF&G, provided a brief overview of Region 3 (Interior and Northeast Arctic) and its main topics and issues: potential decline of the Central Arctic Herd and its population monitoring management of the Fortymile Caribou Herd diverse public values for the wolf moose surveys sustainable harvest of grizzlies
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movement of pathogens and parasites into Alaska due to climate change and risk of disease
Mr. Bruning provided detailed information on the study of the pathogen called mycoplasma ovipneumoniae, commonly referred to as Movi, and its presence in Alaska’s sheep, mountain goat, moose, and caribou populations. Mr. Bruning noted that the public was of great help in collecting the testing samples; about 2,000 samples have been submitted to the lab.
The Council asked questions about the ways of Movi transmittal and presence of the pathogen on the Kodiak Island.
Antlerless moose hunt in the Minto Flats Management Area, Unit 20B (resumed)
Mr. McManus received an information from ADF&G that clarified that the moose hunt for ceremonial purposes was not shut down everywhere. Mr. Wright, Sr., obtained a copy of the ADF&G Division of Wildlife Conservation letter dated December 4, 2018 that contained a list of areas that are not eligible for ceremonial harvest of wildlife because it would inconsistent with sustained yield principles. The list included Units 20B, Minto Flats Management Area, 20C, 20F, and 25C for cow moose. Mr. Wright, Sr., and Mr. Bassich posed a question to Mr. Bruning regarding why the ADF&G would continue cow harvest in the area, but stop a cultural practice that has been in place long before statehood. Mr. Bruning explained that once the harvestable surplus that has been divided between ceremonial harvest and a Tier I subsistence hunt, is taken, then hunting for cow moose is stopped in a particular area. In this case, this is Minto Flats Management Area; however, outside of this area in other parts of Unit 20 moose cow harvest is available for ceremonial purposes.
Motion #19 by Mr. Bassich, seconded by Mr. Firmin, to support the letter from Tanana/Rampart/Manley AC to the ADF&G and BOG regarding antlerless moose and ceremonial harvest.
Mr. Bassich said that ceremonial harvest of moose is a very traditional longstanding practice that needs to be continued and that perhaps the issue will need to be resolved through a regulatory process.
Motion #19 carried unanimously.
The Council also recommended that Tanana/Rampart/Manley AC should submit a proposal to the BOG on this matter. Mr. McManus said that Nenana/Minot AC was also going to put in a proposal.
Yukon River Drainage Fisheries Association (YRDFA) Report
Wayne Jenkins, Director of Yukon River Drainage Fisheries Association, presented the report. He informed the Council about: YRDFA in-season teleconference YRDFA pre-season fishermen’s meeting
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building and maintaining public support of salmon resource management in-season harvest interviews Traditional knowledge of anadromous fish in the Yukon Flats with a focus on the Draanjik Basin YRDFA and Yukon Salmon Subcommittee Yukon River Panel Educational Exchange Yukon River Comprehensive Salmon Plan YRDFA transboundary Efforts YRDFA’s involvement with BLM regional planning
Mr. Jenkins also presented to the Council a letter from the Tanana Chiefs Conference to the Secretary of the Interior Ryan Zinke on the lack of quality engagement with tribal governments on the Yukon River.
OSM Report
Ms. Hardin presented the OMS report on the upcoming Federal Subsistence Board meeting (April 15-18), extension of the open period to submit proposals to change Federal wildlife regulations, and staffing changes.
Pippa Kenner, Anthropologist with OSM, presented a brief update on the Fisheries Resource Monitoring Program and the Partners for Fisheries Monitoring Program.
Tanana Chiefs Conference (TCC) Report
Jim Simon with the TCC Hunting and Fishing Task Force talked about the deliberations of the wildlife proposals WP18-24 to allow use of snowmachines to position the animals at the Board meeting in April 2018. The Board did not adopt the proposal. Mr. Simon implied that the proposal was not adopted because there was a conflict between Refuge policy and ANILCA. The Bristol Bay Native Association together with the Tanana Chiefs Conference wants to initiate a statewide effort to address this issue of customary and traditional methods of hunting using a snowmachine. The State already allows it in a number of areas in Northwest Alaska and in the Bristol Bay region.
Mr. Simon also said that TCC is very concerned that the Section 810 analysis of the proposed oil and gas exploration of the 1002 area of the Arctic NWR has not adequately addressed the possible impacts to subsistence for the Arctic Village community. TCC requested the Council to get involved to request a complete assessment.
The Council and Mr. Simon had a discussion about the essence of terms “chasing” and “positioning” and the methods of positioning prior to the use of snowmachines. Ms. Kenner contributed to the discussion about the use of “fences” in the Northwest Arctic to direct caribou into the riverbeds, where they were harvested. The Council members shared their knowledge on historical positioning of the caribou. Ms. Hardin informed the Council that the Board plans to discuss this issue at its April 2019 meeting.
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Discussion regarding vacant seats on the Council, nominations process, and thank you letters
Motion #20 by Mr. Firmin, seconded by Mr. Bassich, to write a thankyou letter to Virgil Umphenour for the 17 years of service on the Council.
Mr. Bassich volunteered to contribute to drafting the letter and encouraged the other Council members to write a sentence or two. Mr. Bassich said that Virgil was probably one of “the best highly involved members as far as his wide range of knowledge and his photographic memory of conversations and events.”
Motion #20 carried unanimously.
Motion #21 by Mr. Wright, Sr., seconded by Mr. Glanz, to have the dedication to Lester Erhart framed and given to his family.
Motion #21 carried unanimously.
Future Meeting Dates:
The Council approved the dates of October 15 – 16 for the fall 2019 meeting to be held in Fairbanks.
Ms. Wessels provided the information to the Council on the Federal Real ID Act and talked about the need to hold the winter 2020 meeting in a community that has a Department of Motor Vehicles office that can issue the Real ID.
The Council selected March 3 – 4, 2020, and Fairbanks as preferred winter meeting dates and location.
Closing Comments from the Council
New members are happy to be at the meeting and learned a lot Great to have young Council members working on the Council and getting involved Respect for others opinion is important Thank you to the staff, respect and admiration for all the hard work despite the shut down Don’t forget to let your communities know that the call for Federal wildlife proposals is still open Thank you to the Chair Entsminger Thank you for all of the information provided through the agency reports. Effective and interesting meeting We are attacking the message, not the messenger
Motion #22 to adjourn by Mr. Bassich, seconded by Mr. Glanz.
Motion #22 carried unanimously.
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I hereby certify that, to the best of my knowledge, the foregoing minutes are accurate and complete.
August 19, 2019
______Katerina “Katya” Wessels, DFO USFWS Office of Subsistence Management
______Susan Entsminger, Chair Eastern Interior Alaska Subsistence Regional Advisory Council
These minutes will be formally considered by the Eastern Interior Alaska Subsistence Regional Advisory Council at its October 11 -12, 2018 meeting in Tanana, and any corrections or notations will be incorporated in the minutes at that meeting.
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Federal Wildlife Closure Review WCR20-42
FEDERAL WILDLIFE CLOSURE REVIEW WCR20-42
Closure Location: Unit 12—Caribou
Current Federal Regulation
Unit 12−Caribou This is blank
Unit 12—that portion within the Wrangell-St. Elias National Park that No Federal open lies west of the Nabesna River and the Nabesna Glacier. All hunting of season caribou is prohibited on Federal public lands.
Unit 12—that portion east of the Nabesna River and the Nabesna Aug. 10-Sept. 30 Glacier and south of the Winter Trail running southeast from Pickerel Lake to the Canadian border — 1 bull by Federal registration permit only.
Federal public lands are closed to the harvest of caribou except by Federally qualified subsistence users hunting under these regulations.
Closure Dates: Year-round
Current State Regulation
Unit 12 remainder−Caribou Regulation Season
Residents and Nonresidents No open season
Regulatory Year Initiated:
Mentasta Caribou Herd - 1993
The original closure was for: that portion west of the Nabesna River within the drainages of Jack Creek, Platinum Creek, and Totschunda Creek - The taking of caribou is prohibited on public lands.
Chisana Caribou Herd - 1994 The original closure was for: that portion lying east of the Nabesna River and south of the Winter Trail running southeast from Pickerel Lake to the Canadian border - The taking of caribou is prohibited on public lands.
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Regulatory History Mentasta Caribou Herd (MCH)
In 1991, Federal subsistence hunting regulations for caribou in Unit 12 remainder were one bull from Sept. 1-20 and one caribou during a to-be-announced winter season for residents of Tetlin and Northway only as they had a customary and traditional use determination for the Nelchina Caribou Herd (NCH) in Unit 12 (OSM 1991a). Dates for the September season have remained unchanged since then, however, some of the area has been closed to the harvest of caribou due to conservation concerns.
Also in 1991, the Federal Subsistence Board (Board) approved Special Actions S91-05 and S91-08. Special Action S91-05 opened the winter caribou hunt in Unit 12 remainder on Oct. 28 (OSM 1991b) and S91-08 closed it on Dec. 9 after subsistence needs had been met (OSM 1991c).
In 1992, the Board rejected Proposals P92-105 (OSM 1992a) and P92-106 (OSM 1992b) due to biological concerns. Proposal P92-105 requested abolishing the to-be-announced winter caribou season in Unit 12 remainder and Proposal P92-106 requested lengthening the fall caribou season in Unit 12 remainder from Sept. 1-20 to Aug. 20-Sept. 20. The Board determined that there was no biological reason to eliminate the winter hunt and that extending the September hunt could impact the declining MCH and jeopardize the more popular winter hunt.
Also in 1992, the Board adopted Proposal P92-107, which changed the harvest limit for the winter caribou season in Unit 12 remainder from one caribou to one bull in order to protect the declining MCH, which mixes with the NCH in Unit 12 during the winter (OSM 1992c).
In 1993, the Board adopted Proposal P93-034 to close the area west of the Nabesna River within the drainages of Jack Creek, Platinum Creek, and Totschunda Creek to caribou hunting to protect the declining Mentasta Caribou Herd population (OSM 1993). There has been no Federal open season since 1993 for Unit 12 west of the Nabesna River and Nabesna Glacier.
Chisana Caribou Herd (CCH)
Because of its small population size, the CCH has never supported a large harvest. Between 1989 and1994 under State regulations, the harvest limit was 1 bull caribou and the annual harvest ranged between 16–34 animals (Gross 2005). The Federal subsistence regulation from 1989 to 1994 was one bull, Sept. 1- 20. By 1991, due to declining population numbers, the harvest was reduced through voluntary compliance by guides and local hunters. In 1994, the bull portion of the population declined below the ADF&G’s management objective and hunting of Chisana caribou was closed by both the Alaska Board of Game (BOG) and the Federal Subsistence Board (Board). There was no legal harvest of CCH in Alaska between 1994 and 2011.
In 1989 and 1990 the reported harvest of Chisana caribou in the Yukon was 18 and 11 animals and in Alaska was 34 and 34 animals, respectively (Gross 2005). Gross (2005) also reported that the estimated unreported harvest of Chisana caribou between 1989 through 2002 ranged from 1 – 20 in the Yukon and
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1-3 animals in Alaska each year. After 2001, Yukon First Nation members voluntarily stopped harvesting Chisana caribou and there continues to be no legal harvest of Chisana caribou in the Yukon.
In 1994, the caribou hunt areas in Unit 12 were split from two areas: 1) Unit 12- that portion lying west of the Nabesna River within the drainages of Jack, Platinum, and Totschunda creeks and 2) Unit 12- remainder, to three hunt areas: 1) Unit 12 west of the Nabesna River within the drainages of Jack, Platinum, and Totschunda creeks, 2) Unit 12- that portion lying east of the Nabesna River and south of the Winter Trail running southeast from Pickerel Lake to the Canadian border, and 3) Unit 12-remainder (OSM 1994). In 1994, the Board adopted Proposal P94-71, which closed the area east of the Nabesna River to the Canadian border to the harvest of caribou (OSM 1994). The closure for the Mentasta Caribou Herd remained in effect for the area west of the Nabesna River, and the area east of Nabesna River was closed primarily to protect the declining Chisana Caribou Herd (CSH), resulting in the following hunt areas:
Unit 12 – That portion west of the Nabesna River within the drainages of Jack Creek, Platinum Creek, and Totschunda Creek.
Unit 12 – That portion lying east of the Nabesna River and south of the Winter Trail running southeast from Pickerel Lake to the Canadian border.
In 2000, the areas previously designated west and east of the Nabesna River were combined into one area in Proposal P00-59 (OSM 2000):
Unit 12 – That portion of the Nabesna River drainage within the Wrangell-St. Elias National Park and Preserve and all Federal lands south of the Winter Trail running southeast from Pickerel Lake to the Canadian border.
In 2010, the BOG approved a hunt for residents and nonresidents from September 1 through 30 on the CCH for one bull by drawing permit. The hunt was authorized in the portion of Unit 12 within the White River drainage and that portion within the Chisana River drainage upstream from the winter trail that runs southeast from Pickerel Lake to the Canadian Border. However, on Federal public lands the Federal closure supersedes the existing State regulation and thus Federal public lands effectively remained closed to hunting of the CCH under State regulations at this time.
The entire area remained closed to caribou hunting in the Federal subsistence regulations until 2012, when the areas west and east of the Nabesna River were once again split out into two areas (OSM 2012a).
Unit 12 – that portion within the Wrangell-St-Elias National Park that lies west of the Nabesna River and the Nabesna Glacier.
Unit 12 – that portion east of the Nabesna River and the Nabesna Glacier and south of the Winter Trail running southeast from Pickerel Lake to the Canadian border.
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In 2012, the combined proposals WP10-104 and WP12-65/66 were addressed by the Board (OSM 2012a). Proposal WP10-104 requested establishment of a joint Federal/State draw permit for the CCH in Unit 12 with a harvest limit of one bull and a season of Sept. 1–Sept. 30. Proposal WP12-65 requested establishment of a Federal registration hunt for the CCH with a harvest limit of one bull and a season of Aug. 10 – Sept. 30, while WP12-66 requested establishment of a Federal registration hunt with a harvest limit of one bull and a season of Sept. 1–Sept. 30, with the hunt restricted to Federal public lands in Unit 12 east of the Nabesna River and the Nabesna Glacier. OSM noted in its justification for WP12-66 that restricting the hunt west of the Nabesna River and Nabesna Glacier would protect the MCH with minimal impact to subsistence hunters wanting to harvest caribou from the CCH (OSM 2012a). The Board took no action on WP10-104 and WP12-65 and adopted WP12-66 with modification to list the communities allowed to harvest caribou in Unit 12, that portion east of the Nabesna River and Nabesna Glacier, and lands south of the Winter Trail running southeast from Pickerel Lake to the Canadian border: Northway, Mentasta, Tetlin, Tok, Chisana, and Chistochina. The authority to manage the Federal hunt was granted by delegation of authority to the Wrangell-St. Elias National Park and Preserve Superintendent. The CCH was considered stable in 2010 and the bull:cow and calf:cow ratios were above the minimums set by the Draft Management Plan, which was finalized in the fall of 2011 (OSM 2012a, Chisana Caribou Herd Working Group 2012).
The Board adopted Proposal WP12-68, submitted by the Cheesh’na Tribal Council, which requested the residents of Chistochina be added to the Unit 12 caribou customary and traditional use determination (OSM 2012b).
In 2014, the Board adopted Proposal WP14-15/45 to expand the list of communities eligible to participate in the caribou hunt from the CCH to also include residents of the hunt area and those living in Unit 12 along the Nabesna Road (mileposts 25-46) (OSM 2014a).
In 2014, the Board also adopted Proposal WP14-49 with modification to change the fall season dates from Sept. 1-Sept. 30 to Aug. 10-Sept. 30, so that the bulls would be less likely to be in the rut, and thus, ensure the quality of the meat (OSM 2014b). In 2016, the Board adopted Proposal WP16-60 opening Federal public lands east of the Nabesna Glacier and south of the Winter Trail running from Pickerel Lake to the Canadian border to all Federally qualified users hunting under these regulations (OSM 2016).
Federal public lands comprise approximately 61% of Unit 12 and consists of 48% National Park Service (NPS) managed lands, 11% U.S. Fish and Wildlife Service managed lands (FWS), and 2% Bureau of Land Management (BLM) managed lands (Map 1).
Closure last reviewed:
Mentasta Caribou Herd: 1993 – P93-034
Chisana Caribou Herd: 2014 – WP16-60
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 29 Federal Wildlife Closure Review WCR20-42
Justification for Original Closure (ANILCA Section 815 (3) criteria):
Section §815(3) of ANILCA states:
Nothing in this title shall be construed as – (3) authorizing a restriction on the taking of fish and wildlife for nonsubsistence uses on public lands (other than national parks and park monuments) unless necessary for the conservation of healthy populations of fish and wildlife, for the reasons set forth in section 816, to continue subsistence uses of such populations, or pursuant to other applicable law;…
The justifications given for the original closure for the MCH and CCH was:
Mentasta Caribou Herd
Council Recommendation for Original Closure: The Federal Subsistence Board’s April 1993 decision, which closed Federal public lands to caribou hunting in Unit 11 and a portion of Unit 12, occurred prior to the establishment of the Federal Subsistence Regional Advisory Councils.
State Recommendation for Original Closure: ADF&G supported the closure because the State season for Mentasta caribou in this area had been closed for several years (OSM 1993).
From 1985-1992, the MCH decreased from a peak population of 3,100 caribou to 1,300 and the fall calf:cow ratio had fallen below the threshold level required to balance the mortality of the adults (≈15%) during the previous 2-3 years. The near total reproductive failure in 1991 and 1992 resulted in the population age structure to be skewed towards the older age classes, which generally results in delayed recovery. Another factor that may have contributed to the population declines was the relatively poor lichen conditions noted throughout a large portion of their range.
Although the fall harvest is relatively easy to track, the MCH is subject to unknown harvest when it mixes with the NCH during the winter. In addition, the extent of the illegal harvest is unknown, but considering the number of small rural communities they pass through during migration, it is likely high. Thus, the potential for over-harvest of this small herd is high. Most subsistence users also have access to the much larger neighboring NCH.
Thus, closing the subsistence hunt on the MCH was necessary to assure the herd’s continued viability.
Chisana Caribou Herd:
30 Eastern Interior Alaska Subsistence Regional Advisory Council Meeting Federal Wildlife Closure Review WCR20-42
Council Recommendation for Original Closure: The Eastern Interior Council concluded that the Chisana caribou herd should be protected from all hunting to stop the population decrease (OSM 1994). The justification for their decision was based on the following:
Over the past 3 years (1990-1993) the CCH population had declined from 1850 to 900 animals. The fall calf:cow ratio was below that which is required to balance the natural mortality of adults (≈15 %) for at least 4 consecutive years The potential for overharvest of this small herd was considered high since they cross international boundaries and are subject to an unknown amount of unreported harvest. This proposal (Wildlife Proposal 14-49) is intended to protect the continued viability of the CCH and allow them to recover more quickly.
State Recommendation for Original Closure: The Alaska Department of Fish and Game (ADF&G) and the Yukon Department of Natural Resources supported closure to caribou hunting of the CCH until calf:cow and bull:cow ratios increased.
Biological Background The ranges of the Mentasta, Chisana, and Nelchina caribou herds overlap in Unit 12 (Map 1). As of July 2018 the NCH is declining and is at the lower end of the State population objectives (ADF&G 2018, Hatcher 2018, pers. comm.). The MCH occurs primarily in the northern portion of Unit 12 (Unit 12- remainder) and the northern portion of Unit 11 within Wrangell-St. Elias National Park and Preserve (WRST). While the NCH and MCH are considered distinct herds because females calve in separate areas, the herds mix during some breeding seasons, resulting in male-mediated gene flow (Roffler et al. 2012). Therefore, the Nelchina and Mentasta herds function as a genetic metapopulation, although Nelchina and Mentasta cows have discrete mitochondrial DNA (Roffler et al. 2012). However, since there are no closures associated with the NCH, the NCH is not considered further in this analysis.
The CCH is a shared population between Alaska and Southern Yukon, Canada. Since this international herd ranges across multiple jurisdictions, multiple land agencies are involved and responsible for the management of the CCH. In Alaska the CCH occurs primarily on Federal public lands within the WRST, although there is some overlap with Tetlin National Wildlife Refuge (TNWR) and adjacent State lands. In the Yukon, the CCH ranges within the boundaries of Kluane Wildlife Sanctuary and Asi Keyi Natural Environmental Park. Since the overlap between the CCH and MCH is minimal, each population will be considered separately in this analysis. The Management Plan for the Chisana Caribou Herd (Chisana Caribou Herd Working Group 2012) is currently being reviewed and updated.
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 31 Federal Wildlife Closure Review WCR20-42
Map 1. R
Mentasta Caribou Herd
The MCH, the primary herd within Unit 11, calves and summers within the upper Copper River Basin and the northern and western flanks of the Wrangell Mountains (OSM 2018). Barten et al. (2001) found that parturient female caribou from the Mentasta herd used birth sites that lowered the risk of predation and traded-off forage abundance for increased safety. Minimizing risk of predation of neonates may result in ungulates selecting habitats that compromise their ability to optimize foraging (Bowyer et al. 1999, Barten et al. 2001). Female Mentasta herd caribou used sites at higher elevations with sub-optimal forage, presumably to avoid predators, and, when <10 day old neonates were lost, females descended from the higher elevations to join other nonparturient females. In addition, females with neonates >10 days old also descended to join the larger group of females, which coincides with moving out of the riskiest period of predation on ungulate neonates (Adams et al. 1995a).
32 Eastern Interior Alaska Subsistence Regional Advisory Council Meeting Federal Wildlife Closure Review WCR20-42
The calving grounds for the MCH are located in northern Unit 11 within WRST (MCH Mgmt. Plan 1995, Map 1). The MCH disperses across Unit 12 and southern Unit 20E in winter, often intermingling with the NCH (MCH Mgmt. Plan 1995).
In 1995, Federal and State biologists completed the Mentasta Herd Cooperative Management Plan, which specifies the following management objectives (MCH Mgmt. Plan 1995):
To the extent possible, allow for human harvest that will have minimal effects on the production, composition, and abundance of Mentasta caribou. To provide harvest priority to Federally-eligible subsistence users and to allow State authorized hunting to occur whenever possible. To monitor the herd demographics and harvest such that all pertinent data on the health of the herd are collected and disseminated to all agencies and citizens concerned with their management.
The MCH Management Plan (1995) states “an annual fall harvest quota will be established between 15 and 20 percent of the previous 2-year mean calf recruitment as long as such recruitment is at least 80 calves. In addition, at population levels below 2,000 the harvest limit will be limited to “bulls only” and will be closed if the 2-year mean bull:cow ratio drops below 35 bulls:100 cows.” When fall annual quotas are greater than 70 both non-Federally and Federally qualified users are allowed to hunt the MCH during the fall season. When the fall annual quota falls below 70, only federally qualified users are allowed to hunt the MCH during the fall season. Below 30, a Section 804 analysis will determine the allocation of permits among the Federally qualified subsistence users. Since 2000, managers at the TNWR have used a 20:1 mixing ratio of Nelchina caribou to Mentasta caribou as the minimum threshold for considering winter season openings. The TNWR monitors the location and movement from aerial surveys of radio-collared caribou of the MCH and NCH. This information is used to determine a reliable mixing ratio with the NCH. In 2016 and 2017 the number of active collars in the MCH declined to 10 which was too few to adequately determine a reliable mixing ratio with the NCH. In 2018, staff from the WRST and ADF&G deployed an additional 10 collars, which brings the total to about 20 active collars. Population and composition surveys were conducted during fall of 2018 (Putera 2018, pers. comm.).
The MCH population declined from an estimated 3,160 caribou in 1987 to an estimated 470 caribou in 2018 (Table 1). The extremely low calf :cow ratio of 2-6 calves: 100 cows from 1991 to 1993 (OSM 1992d) resulted in a complete failure of fall recruitment of young in the MCH (Jenkins and Barton 2005). Dale (2000) postulated that this may have been due to poor condition from poor forage quality in the summer. Poor forage quality in the summer can cause cow caribou to skip a breeding season to regain body condition due to being nutritionally stressed. The resulting decrease in body condition in female caribou can have a negative effect on productivity by causing lower weight gain or survival in calves (Crete and Huot 1993, Dale 2000). Between 1990 and 1997, Jenkins and Barten (2005) confirmed predation, particularly by gray wolves and grizzly bears, as the proximate cause of the MCH population decline. Grizzly bears were the most important predators of neonates and gray wolves mostly predated on older juvenile caribou in the MCH. The combined predation by bears and wolves was 86% during the
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 33 Federal Wildlife Closure Review WCR20-42
neonate and summer periods. In comparison, predation of calves in the Denali Caribou Herd from 1984 to 1987 by wolves and bears, during the same time period, was only 53% (Adams et al. 1995b). Factors such as the timing of birth and habitat at the birth site, particularly snow patterns, affected the vulnerability and survival of neonates and birth mass affected the survival of juveniles through summer (Jenkins and Barten 2005). The MCH declined at the greatest rate from 1990-1993 compared to 1994- 1997. Winter severity was postulated to decrease the birth mass of neonates and, thus, the survival and vulnerability of neonates and juveniles (Jenkins and Barton 2005). The MCH population has remained stable at relatively low levels since 2004 as evidenced by low calf productivity (Putera 2017a, pers. comm.). Between 1987 and 2017, the bull:cow ratio has fluctuated widely, ranging from 35-120 bulls:100 cows and averaging 58 bulls:100 cows. June and fall calf:cow ratios fluctuated over the same time period, ranging from 1-38 calves:100 cows and 0-33 calves:100 cows, respectively (Table 1, OSM 2018). Low calf production and survival and high cow mortality from 1987 and 2009 were the primary causes for the population declines in the MCH. The number of cows observed during the fall surveys declined from 2,065 in 1987 to 79 in 2009 (OSM 2012c).
Fall surveys conducted within the same 23-year period also revealed severe declines in total observed Mentasta bulls from 847 in 1987 to 68 in the fall 2013 survey (Table 1). Although observed fall bull:cow ratios appear high, the number of cows observed is small and the bull component likely includes a significant number of Nelchina bulls. While Nelchina bulls have wintered within the range of the Mentasta herd (OSM 2018), the range of the Nelchina herd has varied widely due to burns and their effect on lichen availability within their traditional area (Collins et al 2011). Thus, there is limited ability to predict the extent or frequency of mixing between Nelchina and Mentasta bulls, and it is impossible to discern whether the harvest of a bull would be from the Nelchina or Mentasta herd. Higher numbers of adult bulls in the population are important as it helps maintain synchrony in parturition. Holand et al. (2003) showed that skewed sex ratio and increased young male age structure of reindeer could result in fewer adult females conceiving during the first estrous cycle due to their hesitation to mate with young bulls. Maintaining synchrony in parturition also provides increased survival chances for calves since parturition is typically timed with the start of plant growth (Bergerud 2000). Late-born offsprings have been shown to have lower body mass than caribou offspring produced earlier in the season (Holand et al. 2003), which can lead to lower juvenile survival rates due to density dependent factors of winter food limitation (Skogland 1985) and deep snows (Bergerud 2000).
The MCH is considered a sedentary and low density ecotype (Bergerud 1996, Hinkes et al. 2005) versus a migratory and high density ecotype, such as the Nelchina herd, and thus more susceptible to extreme random events. The term ecotype designates populations of the same species that evolved different demographic and behavioral adaptations to cope with specific ecological constraints. A key factor in distinguishing between two ecotypes is whether animals were dispersed or aggregated when young were born (Seip 1991, Bergerud 2000). The chronic low calf productivity and recruitment for the Mentasta caribou could make random environmental events a primary driver for a more severe population decline (Tews et al. 2006). Increased winter mortality due to icing events may result in malnutrition and starvation for more susceptible calves and bulls with depleted energy reserves following the rut (Dau 2011, Miller and Gunn 2003). Bull caribou die at a higher rate than cows due to greater energy demands
34 Eastern Interior Alaska Subsistence Regional Advisory Council Meeting Federal Wildlife Closure Review WCR20-42 during early winter rutting activities, which greatly reduce their body reserves (Russell et al. 1993, Miller and Gunn 2003).
Table 1 F Fall June Fall Fall Fall Fall Bulls: Fall Population Year Calves:100 Calves: Cows Calves Bulls 100 Estimatec Cowsa 100 cows cowsb 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 F – F F
Eastern Interior Alaska Subsistence Regional Advisory Council Meeting 35 Federal Wildlife Closure Review WCR20-42