[Federal Register Volume 78, Number 213 (Monday, November 4, 2013)]
[Notices]
[Pages 66061-66064]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-26021]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
[FWS-R7-R-2013-N156; FF07RKNA00 FXRS12610700000 134]
Notice of Hunting and Trapping Restrictions Within the Skilak
Wildlife Recreation Area (Skilak Loop Management Area) of Kenai
National Wildlife Refuge, Alaska
AGENCY: Fish and Wildlife Service, Department of Interior.
ACTION: Notice of permanent closure and restrictions.
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SUMMARY: This notice advises the public that the Fish and Wildlife
Service--
[[Page 66062]]
Alaska Region is permanently closing and/or restricting hunting and
trapping within the Skilak Wildlife Recreation Area (Skilak Loop
Management Area), a portion of the Kenai National Wildlife Refuge. This
action is consistent with refuge management plans and objectives and
historic State of Alaska hunting and trapping regulations (regulations
in effect from 1987 to 2012, and as amended in 2007 and 2012).
DATES: The effective date of the closures and restrictions in this
notice is November 10, 2013.
FOR FURTHER INFORMATION CONTACT: Andy Loranger, Refuge Manager, Kenai
National Wildlife Refuge, P.O. Box 2139, Soldotna, AK 99669; Telephone
(907) 262-7021; Fax (907) 262-3359; email andy_loranger@fws.gov.
SUPPLEMENTARY INFORMATION:
Areas Affected and Closure/Restrictions
This notice applies to the Skilak Wildlife Recreation Area (Skilak
Loop Management Area), a 44,000-acre area of the Kenai National
Wildlife Refuge (Refuge) which is bound by a line beginning at the
easternmost junction of the Sterling Highway and the Skilak Loop Road
(Mile 58), then due south to the south bank of the Kenai River, then
southerly along the south bank of the Kenai River to its confluence
with Skilak Lake, then westerly along the north shore of Skilak Lake to
Lower Skilak Campground, then northerly along the Lower Skilak
campground road and the Skilak Loop Road to its westernmost junction
with the Sterling Highway (Mile 75.1), then easterly along the Sterling
Highway to the point of origin. A map of the area is available at
Refuge Headquarters and is posted at informational kiosks within the
area.
The Skilak Wildlife Recreation Area (Skilak Loop Management Area)
is closed to hunting and trapping by this notice, except that moose may
be taken by permit (issued by the Alaska Department of Fish and Game)
only, and small game may be taken from October 1 through March 1 by
falconry and bow and arrow only, and by standard .22 rimfire or shotgun
in that portion of the area west of a line from the access road from
the Sterling Highway to Kelly Lake, the Seven Lakes Trail, and the
access road from Engineer Lake to Skilak Lake Road, and north of the
Skilak Lake Road, during each weekend from November 1 to December 31,
including the Friday following Thanksgiving, by youth hunters 16 years
old or younger accompanied by a licensed hunter 18 years old or older
who has successfully completed a certified hunter education course, or
was born on or before January 1, 1986, if the youth has not. State of
Alaska bag limit regulations apply.
Permit moose hunts are administered by the Alaska Department of
Fish and Game. Through mutual agreement with the Fish and Wildlife
Service, a permitted antlerless moose hunt is allowed when the results
of a fall survey (conducted cooperatively between the Alaska Department
of Fish and Game and the Service every other year at a minimum if snow
cover is adequate) tallies at least 130 animals. A permitted spike-fork
bull hunt is allowed during the following season when aerial
composition surveys conducted each year before December 1 indicate the
bull:cow ratio is greater than 40:100.
Reasons for Closure and Restrictions
The 1.98 million-acre Kenai National Wildlife Refuge (Refuge) was
first established as the Kenai National Moose Range by Executive Order
8979 on December 16, 1941. The Range was reestablished as the Kenai
National Wildlife Refuge in 1980 when the Alaska National Interest
Lands Conservation Act (ANILCA), Public Law. 96-487, 94 Stat. 2371
(1980) was enacted. The Executive Order purpose was primarily to `` . .
. protect the natural breeding and feeding range of the giant Kenai
moose on the Kenai Peninsula, Alaska . . .'' ANILCA states the purposes
of the Refuge include: ``(i) to conserve fish and wildlife populations
and habitats in their natural diversity including, but not limited to
moose, bear, mountain goats, Dall sheep, wolves and other furbearers,
salmonids and other fish, waterfowl and other migratory and
nonmigratory birds; (ii) to fulfill the international treaty
obligations of the United States with respect to fish and wildlife and
their habitats; (iii) to ensure to the maximum extent practicable and
in a manner consistent with the purposes set forth in paragraph (i),
water quality and necessary water quantity with the refuge; (iv) to
provide in a manner consistent with subparagraphs (i) and (ii),
opportunities for scientific research, interpretation, environmental
education, and land management training; and (v) to provide, in a
manner compatible with these purposes, opportunities for fish and
wildlife oriented recreation.'' ANILCA also designated approximately
1.3 million acres of the Refuge as Wilderness, to which the purposes
and provisions of the Wilderness Act of 1964, Public Law 88-577, apply,
except as modified by ANILCA. These purposes are to secure an enduring
resource of wilderness, to protect and preserve the wilderness
character of areas within the National Wilderness Preservation System,
and to administer this wilderness system for the use and enjoyment of
the American people in a way that will leave them unimpaired for future
use and enjoyment as wilderness.
The National Wildlife Refuge System Administration Act of 1966, as
amended (16 U.S.C. 668dd-668ee) recognizes six wildlife-dependent
recreational uses as priority public uses of the Refuge System:
hunting, fishing, wildlife observation and photography, environmental
education and interpretation. These uses are legitimate and appropriate
public uses where compatible with the Refuge System mission and the
individual refuge purposes, and are to receive enhanced consideration
over other uses in planning and management. All six of the priority
public uses have been determined compatible and are authorized on the
Refuge.
Section 304(g) of ANILCA directs the Secretary of Interior ``to
prepare, and from time to time, revise, a comprehensive conservation
plan for each refuge (in Alaska) . . .''. In 1985, the Service released
a Record of Decision for the Refuge's first Comprehensive Conservation
Plan. A directive of this plan was the establishment of a special area,
the ``Skilak Loop Special Management Area,'' that would be managed to
increase opportunities for wildlife viewing, environmental education
and interpretation. In December 1986, the Service, working closely with
the Alaska Department of Fish and Game, identified specific goals for
providing wildlife viewing and interpretation opportunities, and
hunting and trapping opportunities were restricted so wildlife would
become more abundant, less wary and more easily observed. Regulatory
proposals that prohibited trapping, allowed taking a small game by
archery only, and provided a moose hunt by special permit were
developed and approved by the Alaska Board of Game in 1987. These State
of Alaska regulations remained in effect until 2013, with modifications
to allow for a youth-only firearm small game hunt in a portion of the
area in 2007, and for the use of falconry to take small game in 2012.
In 1988, to further development of wildlife viewing, environmental
education and interpretation opportunities, the Service prepared a
step-down plan for public use facility management and development and
renamed the area the Skilak Wildlife Recreation Area. Improvements to
existing and development of new visitor
[[Page 66063]]
facilities occurred in ensuing years as funding permitted, and included
new and improved roads, scenic turn-outs, campgrounds, hiking trails,
interpretive panels and information kiosks, viewing platforms and boat
launches.
In 2005, the Alaska Board of Game adopted a proposal to allow
firearms hunting and small game and fur animals (as practical matter in
the area, fur animals would include lynx, coyote, beaver, red fox and
squirrel), but subsequently put the regulation on hold pending the
Service's development of an updated management plan for the area. The
Service initiated a public planning process with a series of public
workshops in November 2005, and evaluated management alternatives
through an Environmental Assessment which was made available for public
review and comment in November 2006.
The Service released a Finding of No Significant Impact, and the
Kenai National Wildlife Refuge Skilak Wildlife Recreation Area Revised
Final Management Plan was released in June 2007. Under this plan, the
overall management direction for the Skilak Wildlife Recreation Area as
a special area to be managed primarily for enhanced opportunities for
wildlife viewing, environmental education and interpretation while
allowing other non-conflicting wildlife-dependent recreational
activities, first established under the 1985 Comprehensive Conservation
Plan, was reaffirmed. Additional future facility developments and
improvements in support of providing such opportunities were
identified, and longstanding restrictions on hunting (including hunting
of fur animals) and a trapping closure were maintained, with the
exception of adding the ``youth-only'' small game firearms hunt in the
western portion of the area. State of Alaska regulations maintaining
the closures and restrictions, and opening the ``youth-only'' small
game firearm hunt, were adopted by the Alaska Board of Game in 2007.
In March 2013 the Alaska Board of Game adopted a proposal that
would allow taking of lynx, coyote, and wolf within the area under
State of Alaska hunting regulations. Under this regulation, which
became effective July 1, 2013, taking of these species is allowed
during open seasons from November 10 to March 31.
The Service has determined that the change to State of Alaska
hunting regulations in the Skilak Wildlife Recreation Area (Skilak Loop
Management Area) to allow taking of lynx, coyote and wolf directly
conflicts with approved refuge management plans. As was first
recognized in the original 1986 plans and specific management
objectives for furbearers which led to the closure of hunting and
trapping of these species in the Skilak Wildlife Recreation Area,
furbearers such as wolves, coyote and lynx are not as easily observed
as more abundant and/or less wary wildlife species. These species occur
in relatively low densities, and annual removal of individual wolves,
coyote or lynx from the Skilak Wildlife Recreation Area, and/or a
change in their behavior, due to hunting would reduce opportunities for
the public to view, photograph or otherwise experience these species.
Similarly, Refuge environmental education and interpretation programs
which benefit from the enhanced opportunities provided in the area to
view or otherwise experience these species would be negatively
impacted.
Providing for non-consumptive educational and recreational uses, as
well as for hunting and fishing, are legally mandated Refuge purposes
under ANILCA. Opportunities to view or photograph wildlife, or to learn
through environmental education and interpretation programs, represent
a highly valued experience for many Refuge visitors. The Skilak
Wildlife Recreation Area, which comprises approximately two percent of
land area of the Refuge, contributes to meeting those refuge purposes.
Hunting and trapping of lynx, coyote and wolves remains authorized on
over 97% of the Refuge (over 1.9 million acres).
The Service has reviewed its 2007 management plan and associated
Environmental Assessment for the Skilak Wildlife Recreation Area, and
its 2007 Compatibility Determination for hunting on the Refuge, and has
determined that the information evaluated and decisions rendered
regarding management direction for the area and compatibility of
hunting remain current and valid. The continuation of hunting and
trapping restrictions under this Federal closure, to include a closure
on the hunting and trapping of lynx, coyote and wolf, is necessary to
ensure that Service objectives to provide enhanced wildlife viewing,
environmental education and interpretation opportunities in the area
continue to be met. Meeting Refuge public use objectives in the Skilak
Wildlife Recreation Area is consistent with and directly supports
meeting specific Refuge purposes under ANILCA for providing the public
opportunities for environmental education and interpretation and for a
variety of wildlife-dependent recreational activities including
wildlife viewing and photography. Administration of non-conflicting
hunting activities and use of firearms in the Skilak Wildlife
Recreation Area through regulation and in a manner which supports
meeting all Refuge purposes, minimizes conflicts among user groups, and
ensures public safety, is necessary to ensure the compatibility of
hunting as an authorized use on the Kenai National Wildlife Refuge.
Public Hearings Held and Comments Considered
Pursuant to 50 CFR 36.42, the Service held public hearings to
provide notice of the proposed permanent closure and to receive public
input. Hearings were held on July 31 and August 1, 2013 in Soldotna and
Anchorage, Alaska respectively. In addition, written comments were
accepted through August 16, 2013. A total of 26 people testified at the
public hearings, 18 of them expressed support for the proposed Service
action. Among this group were representatives of five organizations
speaking in favor of the action: Friends of Alaska Refuges (which also
said it spoke for The Wilderness Society), the Alaska Wildlife
Alliance, the Sierra Club, Friends of Kenai National Wildlife Refuge
and the Center for Biological Diversity. Seven speakers were opposed
including a representative of the Alaska Department of Fish and Game.
They basically favored the State's change to the hunting regulations
opening the area up to more hunting. One person expressed general
opposition to all hunting and trapping.
A total of 180 written comments were submitted via email, fax, or
mail. Of these, 78 supported the closure and addressed the area's
importance for non-consumptive uses by the public. Of these written
comments, 29 appear to be form comments with no individual statement.
The remaining 49 contained some comment personal to the writer.
Included in the written comments supporting the closure and
restrictions were written statements by five organizations: Kachemak
Bay Conservation Society, Defenders of Wildlife, the National Parks
Conservation Association, the Alaska Wildlife Alliance, and the Center
for Biological Diversity. Among the remaining written comments were 93
individuals who expressed opposition to opening hunting or trapping in
the area because of opposition to hunting or trapping in general, and/
or to hunting and trapping on a national wildlife refuge or of
predators specifically. Nine written comments expressed opposition to
the Service's proposed action and
[[Page 66064]]
support for the State's Board of Game's change. In addition to the
Alaska Department of Fish and Game, the Kenai Peninsula Chapter of the
Safari Club International was among those opposing the Service action
and supporting the State's change.
The Service considered all of the oral and written comments. It
concludes that maintaining the closure on the take of lynx, coyote and
wolf is necessary to meet the Refuge management plan objectives to
provide for enhanced opportunities for wildlife viewing, environmental
education, and interpretation in the Skilak Wildlife Recreation Area.
This decision is in keeping with the Refuge purposes under ANILCA and
furthers the public use objectives that have consistently been
identified for management of the area since 1985. Designating and
administering the Skilak Wildlife Recreation Area in support of these
purposes, while allowing for additional non-conflicting uses in the
area, is a proper management approach which recognizes the obligation
to provide educational and both consumptive, and non-consumptive,
wildlife-dependent recreational opportunities for the public on the
Refuge.
Authority
This closure notice is pursuant to 50 CFR 36.42 for permanent
closures or restrictions on Alaska National Wildlife Refuges.
Authorities for this action are found within the National Wildlife
Refuge Administration Act of 1966, as amended by the National Wildlife
Refuge System Improvement Act of 1997 (16 U.S.C. 668dd-668ee); the
Refuge Recreation Act of 1962 (16 U.S.C. 460k-460k-4); and the Alaska
National Interest Lands Conservation Act of 1980, Public Law 96-487, 94
Stat. 2371 (1980).
Geoffrey L. Haskett,
Regional Director, Alaska Region, U.S. Fish and Wildlife Service,
Anchorage, Alaska.
[FR Doc. 2013-26021 Filed 11-1-13; 8:45 am]
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