United States Department of Agriculture Shoreline II Outfitter/Guide Draft Environmental Impact Statement Volume I Forest Service Alaska Region Tongass National Forest R10-MB-793a January 2016 Cover Photo: A photograph of Endicott Arm Glacier taken from an elevation of 1,115 feet. Commonly Used Acronyms & Abbreviations ABOG Alaska Board of Game LAC Limits of Acceptable Change Alaska Department of Environmental ADEC LUD Land Use Designation Conservation ADF&G Alaska Department of Fish & Game LWCA Land and Water Conservation Act Alaska State Division of Community AKDCBD MIS Management Indicator Species and Business Development Alaska National Interest Lands Native American Graves Protection ANILCA NAGPRA Conservation Act and Repatriation Act BBMT Brown Bear Management Team NEPA National Environmental Policy Act BE Biological Evaluation NFMA National Forest Management Act BMP Best Management Practice NHPA National Historic Preservation Act CEQ Council on Environmental Quality NMFS National Marine Fisheries Service CFR Code of Federal Regulations NOI Notice of Intent Draft Environmental Impact DEIS NRHP National Register of Historic Places Statement Native American Graves Protection DNR Department of Natural Resources NAGPRA and Repatriation Act EPA Environmental Protection Agency ROS Recreation Opportunity Spectrum FSM Forest Service Manual SHPO State Historic Preservation Officer GIS Geographic Information System SOPA Schedule of Proposed Actions Tongass Land and Resource GMU Game Management Unit TLRMP Management Plan GUA Guide Use Area TTRA Tongass Timber Reform Act United States Department of IDT Interdisciplinary Team USDA Agriculture United States Fish and Wildlife IRA Inventoried Roadless Area USFWS Service Shoreline II Outfitter/Guide Draft Environmental Impact Statement United States Department of Agriculture Forest Service Alaska Region ______________________________________________________________________ Lead Agency: USDA Forest Service Tongass National Forest Responsible Official: M. Earl Stewart, Forest Supervisor Tongass National Forest Federal Building 648 Mission Street Ketchikan, Alaska 99901-6593 (907) 225-3101 For Further Information Contact: Chad VanOrmer, Monument Ranger Admiralty Island National Monument 8510 Mendenhall Loop Road Juneau, AK 99801 (907) 586-8800 Carey Case, Team Leader Petersburg Ranger District 12 North Nordic Drive Petersburg, AK 99833 (907) 772-3871 Abstract The Tongass National Forest is proposing new outfitter and guide allocations on the Tongass National Forest marine shoreline zone to be consistent with the 2008 Tongass Land and Resource Management Plan. There is a need to update the 2004 Shoreline Outfitter/Guide Record of Decision to better align with current market demand for non-motorized commercial recreation services. The proposed action would allocate a portion of the overall visitor capacity, up to 80,305 service days to outfitter and guide use. A service day is a day or any part of a day for which an outfitter or guide provides service to a client on National Forest System lands. The Shoreline II Outfitter/Guide project area includes all areas used by non-motorized outfitter and guide activities that originate from the marine shoreline areas in the Admiralty National Monument and in the Hoonah, Juneau, and Sitka ranger districts (see Figure 1-1). In general, the project area extends ½ mile inland, with further inland extensions where specific outfitter and guide activities and locations are accessed from the shoreline (i.e., goat/deer hunting, canoe route/portage, freshwater fishing on anadromous and other fish-bearing streams and lakes, etc.). This Draft Environmental Impact Statement (DEIS) describes four alternatives: no action (Alternative 1), proposed action (Alternative 2), lower allocation (Alternative 3), and higher allocation (Alternative 4). The alternatives represent different project designs intended to address issues raised by the public, while achieving to varying degrees the purpose and need for action. In addition, this DEIS discusses the estimated effects of implementing each alternative, and compares them in terms of meeting management objectives and estimated impacts to resources. The Forest Service’s preferred alternative is Alternative 2. The project website, http://go.usa.gov/Pzi, is the preferred method for receiving comments. Click on the link, “Comment on Project”, to submit comments electronically and attach documents. Send Written Comments to: Carey Case, Team Leader Petersburg Ranger District 12 North Nordic Drive Petersburg, AK 99833 (907) 772-3871 Send Comments via [email protected] Email to: When submitting comments, be sure to include the project name, “Shoreline II”; if submitting an electronic comment, use the project name in the subject line. Please provide your name, address, and a telephone number if available in your comments. Your name and contact information will become part of the public record. Summary Introduction ____________________________ The Shoreline II Outfitter/Guide project area (see Figure 1-1) encompasses lands in Admiralty Island National Monument, and Hoonah, Juneau, and Sitka ranger districts. The Shoreline II Outfitter/Guide DEIS proposes to allocate a portion of the visitor capacity of the project area to outfitter and guide use. The Shoreline II Outfitter/Guide Project Visitor Capacity Analysis (Appendix E) establishes the visitor capacity for the project area. Visitor capacity and the proposed allocations are described in terms of service days. A service day is a day or any part of a day for which an outfitter or guide provides service to a client on National Forest System lands. Service days were calculated and allocated to 48 geographic units defined as Shoreline II Outfitter/Guide use areas. This DEIS outlines potential outfitter/guide use levels (allocations) and provides a framework for managing outfitter/guide activities on all four management units. It does not establish or restrict use levels for unguided visitors. Description of the Project Area The project area includes all areas used for non-motorized outfitter/guide activities that originate from the marine shoreline areas in the Admiralty Island National Monument, and Hoonah, Juneau, and Sitka ranger districts (see Figure 1-1). In general, the project area extends ½ mile inland, with further extensions inland where specific outfitter/guide activities and locations are accessed from the shoreline (i.e., goat/deer hunting, canoe route/portage, freshwater fishing on anadromous and other fish-bearing streams and lakes, etc.). This includes a large portion of Baranof Island where goat and deer hunting areas extend inland. Areas that are not part of this analysis: 1. Private lands and other public lands and waters outside the jurisdiction of the Forest Service (i.e., submerged islands, marine waters, Alaska State Parks). 2. The summer (peak) season at the Pack Creek Zoological Area in Admiralty Island National Monument, which had a separate decision on March 21, 2011. The remaining seasons (fall, winter, and spring) are included within this analysis. 3. Mitchell, Kanalku, and Favorite Bays in Admiralty Island National Monument are being considered under a separate analysis with a decision expected in 2016. 4. The Kruzof Island Mud Bay and Eagle River motorized and non-motorized trail systems and the Eagle River Road large group area, in the Sitka Ranger District, had a separate decision on April 21, 2015. Purpose and Need for Action The purpose of this action is to manage outfitters/guides on the Tongass National Forest Shoreline II project area consistent with the Forest Plan. A decision is needed to determine outfitter/guide use allocations for the project area. This is necessary to balance commercial and non-commercial recreational opportunities and to provide and maintain high quality recreation experiences without degrading forest resources. This action is needed to meet Forest Plan goals and objectives for recreation and tourism, and to support local and regional economies. Summary Since the 2004 Shoreline Outfitter/Guide ROD was signed, demand for outfitter/guide services that originate from the marine shoreline has increased. The need for outfitter/guide services has expanded both in terms of number of visitors and the types of services being offered, and there is also continued demand for institutional outfitter/guide services (e.g., schools and therapy groups). There has been an increase in the fleet of small to mid-size cruise ships desiring to outfit/guide on the Tongass National Forest, and the demand for outfitted/guided big game hunting continues. Also, the traditionally low-use seasons (April- May; September-October) are seeing more use, with additional interest for outfitter/guide use in the winter season (January-March). Seven use areas are at 80 percent or more of their allocation during one or more seasons, and outfitters/guides are dispersing to areas traditionally less used. At some locations, outfitter/guide permit holders have requested to operate beyond the ½-mile zone. There is a need to replace the 2004 Shoreline Outfitter/Guide ROD to better align with current market demand for non- motorized outfitter/guide services. Also, in 2008, the Forest Service updated the national directives for outfitter/guide services. These updates simplified procedures and clarified policies for priority use permits governing performance, inspections, and allocation of use. Additionally, data gathered recently through Forest