Annette Islands Reserve Coastal Management Program

[From the U.S. Government Printing Office, www.gpo.gov]

COUNCIL ANNETTE ISLANDS RESERVE

Annette Islands

COASTAL ZONE

INFORMATION CENTER

oastal
Manage ent
Progra

HT
393
A42
A54 PACIFIC RIM PLANN&W, INC.
1979

COUNCIL ANNETTE ISLANDS RESERVE

SOLOMON ATKINSON, MAYOR METLAKATLA INDIAN COMMUNITY
MARGARET MARSDEN, SECRETARY TOWN OF METLAKATLA METLAKATLA, ALASKA 99926
RONALD MILNE, TREASURER P. 0. Box 8 ESTABLISHED 1887

November 8,1979

Alaska Coastal Policy Council
Alaska Coastal Management Program
Pouch AD
Juneau, Alaska 99811

Dear Council Members:

We are pleased to submit the attached Annette Islands Coastal Zone
Management Program. This program was granted conceptual approval by
the Council of the Metlakatla Indian of the Annette Islands Reservation
on September 6, 1979 pursuant to the attached Metlakatla Indian Community
Council Resolution No. 79-39.

We appreciate your interest in the management of the resources of
the Annette Islands Reservation, and look forward to bearing from you.

Sincerely,

METLAKATLA INDIAN COMMUNITY

Y'6"'
-4
D. AtVinso , Mayor
@omon @A@t@ @na

SDA:me

US Department Of Commerce
NOAA Coastal Services Center Library
2234 South Hobson Avenue
Tsimpslteait NVar Caiioe Charleston, SC 29405-2413

Resolution No. 79-39

By the Council Annette Islands Reserve
METLAKATLA INDIAN COMMUNITY

WHEREAS, the Council Annette Islands Reserve is the governing body of the
Metlakatla Indian Community, Annette Islands Reserve, Alaska, by authority
of the Constitution and By-Laws of the Metlakatla Indian Community as
approved on August 23, 1944, by the Assistant Secretary of Interior; and

WHEREAS, the Metlakatla Indian Community is an American Indian Tribe
organized pursuant to the provisions of Section 16 of the Federal Indian
Reorganization Act, 25 U.S.C. Sec. 476; and

WHEREAS, the Community through a grant from the state of Alaska has been
developing a Coastal Management Program for the Annette Islands Reservation;
and

WHEREAS, the Community through the Council and through a public hearing
held on June 14, 1979 and through other public informational meetings and
discussions reviewed and provided input into the June 7, 1979 draft of
the Coastal Management Program; and

MiEREAS, the Council is satisfied that the draft program with comments from
public hearings represents the issues and goals and objectives of the
Motlakatla Indian Community;

NOW, THEREFORE, BE IT RESOLVED by the Metlakatla Indian Community Council
that the Public Hearing Draft of the Coastal Management Program for the
Annette Islands Reserve be and hereby is adopted for review and approval by
the Alaska Coastal Management Council.

DATEDi This 6th day of September, 1919, at Metlakatla, Alaska 99926

METLAKATLA 114DIAN COMMUNITY

r
ATTEST: @-o'-1-omon D,.--A"t soil

Margare M. Marsden, Secretary

C E R T- I F I C A T 1 0 N

I hereby certify that the foregoing Resolution was duly passed at a meeting
held on September 6, 1979 at which a quorum was present by a vote of 8 FOR
and 0 AGAINST. The Mayor being authorized to sign the Resolution.

Margare,t M. Marsden, Secretary

ANNETTE ISLANDS RESERVE
COASTAL MANAGEMENT PROGRAM

Prepared for the
METLAKATLA INDIAN COMMUNITY

PACIFIC RIM PLANNERS, INC.
5606 14th Avenue Northwest
Seattle, Washington 98107

November, 1979

The preparation of this report was financed in part by funds from the Alaska
Coastal Management Program and the Office of Coastal Zone Management,
National Oceanic and Atmospheric Administration, U.S. Department of Commerce,
administered by the Division of Community Planning, Alaska Department of
Community and Regional Affairs.

ACKNOWLEDGEMENTS

METLAKATLA INDIAN COMMUNITY

Solawn D. Atkinson, Mayor
Margaret Marsden, Clerk
Ronald Milne, Treasurer

COUNCILMEMBERS

Harris Atkinson Frank Hayward
Jack Booth Russell Hayward
Mel Booth Richard Johnson
Bernard Guthrie Henry Littlefield
Leo Guthrie Casey Nelson
Solawn Guthrie Stanley Patterson

ANNETTE NATURAL RESOURCE CENTER

Greg Argel, Director Larry Fry, Forester (to 1979)
Gordon Thompson, Systems Analyst Mike Peacock, Ebrester (to 1979)
John Peeler, Forester Dan Romey, Hatchery Manager
Steven Anderson, Forester Cathy Rose, Wildlife Biologist

PACIFIC RIM PLANNERS, INC.

Henry Leon, Project Manager and Resource Analyst
Howard Hillinger, Economist
Charles Warsinske, Recreation Planner
Rick Seaborne, Graphics and Production

Chapter TABLE OF CONTENTS Page
1. BACKGROUND 1

2. ISSUES, GOALS, AND OBJECTIVES
Fisheries Issues 3
Forestry Issues 4
Mineral Development Issues 5
Land and Water Use Issues 6
Econon-tic Development Issues 7
Goals and objectives 7

3, THE SETTING
Coastal Management Boundaries 11
Watersheds and Drainage Patterns 15
Climate 20

4. THE PEOPLE
History of Matlakatla. 23
Population 24
Economy 29
Social and Cultural Resources 33
Historical and Archeological Resources 34

5. MARINE RESOURCES AND HABITATS
oceanography and Productivity 35
Shoreline Habitats 39
Fishery Resources 48

6. LAND RESOURCES AND HABITATS
Geology and Mineral Resources 59
soils 63
Upland Habitats 65
Timber Resources 69
Recreation Areas 79

7. FRESHWATER RESOURCES AND HABITATS
Groundwater 85
Streams 86
Lakes 90

8. MANAGEMENT FRAMEWORK
Governance of the Reserve 95
Relationship with the Federal Government 96
Relationship with the State of Alaska 98

9* POLICIES AND IMPLEIVEIWATION
Fisheries 102
Forest Resources 107
Mineral Development ill
Land and Water Development 114
Econon-Lic Development 117
Implementation Needs 119

Chapter Page

10. AREAS MUCH MERIT SPECIAL ATTENrION
Canoe Cove and Watershed 121
Tarngas Harbor and Watershed 133
Port Chester and Watershed 145

REFERENCES CITED 155

blINUTES OF PUBLIC HEARING 158

APPENDICES 161

CHAPTER 1
BACKGROUND

For centuries the Tsirpshean people lived along the fog@shrouded shores
of British Columbia, thriving on the abundance of the coast. From the sea
they harvested salmon, halibut, and the oil-rich eulachon. on the beaches
they picked clan-sf crab, and seaweed. In the forest they found berries,
game, and that ideal building material, the western redceda . The Tsinpshean
were isolated by the mountains to the east, and the sea to the west. Their
culture and economy, based on the resources at hand, reflected that isolation.

The coming of the Europeans ended the isolation of the Northwest Coast, and
in the 1800's the Canadian government attempted to change the culture of the
coastal Indians. one group of Tsimpshean, wishing to retain their identity
and self-determination, resisted the government's efforts. Led by Anglican
missionary Father William Duncan, these people migrated north, across Dixon
Entrance into Alaska. There, in 1887, they founded the Metlakatla Indian
Community on Annette Island. The Community's claim to Annette Island was
affirmed in 1891 when Congress formally created the Annette Islands Reserve.

In the ensuing years, the Community created for itself a life that combined
the old with the new. Efforts towards self-sufficiency coincided with
regular contact with the outside world. The Community built a sawmill and
a hydroelectric plant. The cannery, originally built in 1921 has recently
been modernized with a new cold-storage facility. Yet individual fishermen
continue to pursue the salmon in their small boats, and low tides consistently
draw people to the beaches in search of shellfish. Families take to the
wmds when the berries are ripe, and a jar of eulachon oil is still a highly
valued commodity.

.Thus, nearly 100 years after the establishment of the Nbtlakatla Indian
Community, its people remain closely dependent on coastal resources. As an
Indian reserve, Annette Island's resources have been managed by the Bureau
of Indian Affairs in trusteeship for the Community. In recent years, however,
aided by the Self-Deterudnation Act, the Community has contracted to manage
its own resources, although the Bureau retains ultimate responsibility for
the welfare of people and resources.

1@bnagement of natural resources is conplicated by events and conditions
beyond the Community's control. Although the Comnmity has jurisdiction
over the lands and waters within the Reserve, economic and political forces
on the regional, state, and national levels affect the use and value of
the resources. In addition, the resources themselves are governed by the
laws of nature, which frequently extend beyond legal boundaries.

Tb effectively manage its natural resources, then, the Community requires
an inventory of those resources. Also needed is a background of the physical
and biological processes affecting the resources, and the social and economic
phenomena influencing their use.

This plan, the Coastal Zone Management Plan for the Annette Islands Reserve,
presents some of this necessary information. Equally important, it enunciates
the major issues the Comunity faces in coastal zone management, and presents
goals towards which the Community can strive to resolve those issues. The
goals are refined into objectives and policies to guide the Ccmunity toward
achieving its goals. Specific actions are also presented to implement the
policies.

Because obtaining scientific data is often costly and time-consuming, the
information in this report is, by necessity, incomplete. A great deal of
additional work remains to be done, some of it on a regular ongoing basis,
before a complete picture can be drawn of the dynamics of the island's
coastal resources. management decisions are more pressing, however, and
require information in the very near future. -This report, then, can be
viewed in two ways. It is first an effort to deal with some of the immediate
issues with a presentation of needed data. More important, it is a framework
of policies and actions to be taken in the long@term, augmented when possible
by additional information, to guide the Metlakatla Indian Community in
promoting wise use, conservation and propagation of its coastal resources
for generations to come.

CHAPTER 2
ISSUES, GOALS
AND OBJECTIVES'.

In managing its resources,.the Metlakatla Indian Cormunity faces issues
jxcportant to both the resource users and the resource managers. While each
@citizen of Metlakatla'has specific priorities and emphasizes different
issues, there are several-.areas which include the Community's major issues.
The issues and needs are discussed here under the headings of fisheries,
forestry, mineral development, land and water development, and economic
development. Following the discussion of the issues and needs is a state-
ment of goals which the Commmity can attain to deal with the issues.

Fisheries Issues'

SHORTAGE OF INFORMATION ON FISH STOCKS

one of the most serious problems in the management of the fisheries of the
reserve is the scarcity of information on which to make manageirent decisions.
This lack is felt most strongly in the salmon fishery in which Community
fi:shermen harvest fish originating both on-island and off-island, and in
which escapement has been documented for at least 20 Annette Island stream,
but has not been monitored or adequately quantified.

The management of the herring fishery, too, suffers from a shortage of infor-
ma tion. Although the Community has recently assumed many management functions
in this fishery, a shortage of knowledge about the herring stock size, move-
ment and timing hampers effective managen-Lent.

Shellfish and bottomfish are two resources which are taken at a subsistence
level by Com=-dty nvA:)ers, but are untapped at the commercial level. Their
utilization will depend on administrative and financial decisions which, in
turn, de pend on an assessment of the size and condition of the resources.

HARVEST OF FISH STOCKS

Both individual- fishermen and the Community-owned packing company depend
on high catch levels for their financial survival, and the pressure is
great for the Community to set liberal harvest levels. Sustaining the
resources, however, requires an adequate spawning escapement, which requires
restraint on the part of the fishermen. These conflicting requirements
mist be resolved by the Community Council which often does not have access
to adequate information.

The distribution of the catch amng the various gear types further conpli-
cates this issue. Traditionally there has been an imbalance of the catch,
with the Community-owned traps and large seiners receiving a larger propor-
tion of the catch than do the smaller gillnetters and trollers.

FISHEW ENHANCEMENT

The construction of the Tamgas Creek Hatchery places the Metlakatla Indian
Connunity in an important role in enhancement of the salmn fishery, not
just on Annette Island, but in Southeast Alaska. Little attention has been
paid, however, to maintenance and enhancement of natural stocks of fish.
In a Community heavily dependent on the salmon fishery resource, stream
enhancement and habitat protection have received little consideration. A
small amunt of effort, such as clearing log jam or cleaning streambed
gravel, might yield impressive results as the stream systems carry out their
function in natural production of salmon.

Forestry Issues

NEED FOR FOREST INVENTORY

Since the initiation of large-scale logging on Annette Island in 1966, the
management of the island's forest resources has suffered from inadequate
information on the extent and character of the resources. Early Bureau of
Indian Affairs estimates have resulted in an overharvest of timber which now
might necessitate a reduction in the annual allowable cut. At the same time,
municipal finances depend in part on stumpage receipts from timber sales. Th
improve long@term planning for timber use, data is needed on timber volumes,
feasibility of access to timber, soil characteristics (particularly soil
stability), and fish and wildlife habitat.

TIMBER HARVESTING PRACTICES

Increasing recognition of the environmental impacts of logging and the in-
creasing value placed on non-timber resources have led to the development
of new guidelines for timber harvesting practices. Tinlogged buffer strips,
slope restrictions, well-engineered roads and advanced log-handling methods
can minimize some of the adverse effects on soil productivity, water quality,
and fish and wildlife habitat.

changing logging practices to protect other resources often results in lower
stumpage receipts in the timber sale. Evaluating the worth of such practices
is made difficult by the intangible value of some of the resources protected;
however, environmentally sound forest practices can be economically sound as
well. The long@term economic return from the forest resource might be increased
with improved management and harvesting practices. The high cost of road-build-
ing detracts from the value of much of the timber on the island, but improved
logging, road planning, engineering and construction as well as advanced
yarding techniques can help reduce this cost, increasing the value of the
timber and reducing environmental damages.

Mineral Development Issues

At present, there is no commercial mineral development on Annette Island;
however, recent surveys reveal a potentially valuable deposit of barite
near Driest Point, and deposits of metals of unknown value near Crab Bay.
Activities elsewhere in Southeast Alaska (PRPI, 1977a) suggest that the
region may become the scene of large scale mining. Should active mineral
developTent take place on Annette Island, the Comnzatyshould face several
closely related issues.

Mineral exploration is an expensive proposition, one which the Comnunity
cannot afford to undertake at the present time. Any exploration in the near
future would likely require investment by private capital from off the island,
but any interests willing to risk such an investment uould certainly want
a guarantee of the rights to n-Line any deposits they discover. The Community,
on the other hand, would not wish to part with its non-renewable resources
without adequate compensation, at a level that relfects the one-time-only
nature of mineral extraction.

Any large-scale mining would probably require roads, buildings and other
facilities to be constructed at a remote site, and would also
require a support population of skilled workers and their families. Since
few Gommunty members have experience or skills in irineral extraction, some
of the workers would need to be imported to the island, thereby creating an
influx of new residents which many Commity members may not consider desirable.

Environmental concerns, too, play a part in the question of mineral development.
mining would likely disturb soil, remove timber land from production, and
could endanger salmon-producing habitat. Barite, in particular, is of such
low value per unit of volume that it can only be mined economically by open
pit mining, a method that would create long@lasting scars in full view of
1,Jetlakatla.

Land & Water Use Issues

WATEREMNT DEVEWPIENT

The people of Metlakatla have traditionally been water-oriented, and access
to the water remains important to the Communty. The town is served by
several floatplane services, the state ferry system, and barges, as well as
by fishing boats and pleasure craft, all of which require waterfront space
for operation. Recently a new air taxi float was installed on the waterfront.
A new small boat harbor has been funded and is currently under
construction to relieve the perennially overcrowded conditions in the existing
harbor. Inadequate ferry service, long an issue between the Oom-mmity and
the state ferry system, is conpounded by the inconvenient location of the
ferry landing outside of the town. The newly dedicated longhouse, and a
planned park along the waterfront will draw additional users to the water-
front. The character of Metlakatla's waterfront will undoubtedly change in
future years. Whether or not that change will be desirable will depend on
decisions made now by the Community.

DEVELOPNMT OF M4M AREAS

Several little-used areas of the island have recently been discussed as sites
of possible development. Canoe Cove was proposed in 1976 and 1977 as a site
for log storage and handling by the Lousiana-Pacific Corporation. The hydro-
electric potential of Triangle Lake has led to its consideration as a site
for a dam and power plant. The demand for electric power has also resulted
in a proposal for raising the dam at Chester Lake. Construction of a large
salmon hatchery at the mouth of Tamgas Creek, and the initiation of an aqua--
culture training program on Annette Island, have spurred discussion of Tamgas
Harbor as a site for intensive aquaculture development.

Although these areas are subject to little human use now, they do produce
renewable resources, such as timber, fish, and of course, clean water.
Consideration of these resources will be irrportant in decisions on whether
and how to develop these areas, and guidelines are needed to help rraintain
the productivity of the resources.

RECREATIONAL USE OF THE RESOURCES

Recreation opportunities abound on Annette Island. Environments range from
alpine meadows to rocky shores where many recreation activities presently
take place. In many cases, however, these activities degrade the very environ-
mental features which the Community members enjoy and utilize. Properly
designed and constructed facilities would reduce the negative impacts of
recreational use.

The need for inproved recreation facilities is a perennial demand which goes
wanting on the island. Facilities are needed not only to satisfy this demand
but to protect the natural resources.

Economic Development Issues
Historically, the Ccmunity and its members have derived most
of their income from natural resources, primarily timber and fish. Heavy
dependence on a limited diversity of income sources can lead to two problems.

One difficulty is the severe economic disruptions associated with fluctua-
tions in the supply of the resource (as with fisheries) or demand for the
resource (as with timber). The closure of the cannery in 1975 affected
virtually every CbmTunity n-Lenber and the ComTrunity's,government and business
as well. Pbre recently, a three-month shutdown of the Annette Hemlock Mill
created hardships and disrupted Community life.

A further problem is caused when a great proportion of the jobs in the
Community is tied to a sector controlled by outside interests. The phenonnnan
of the "company town" has been experienced throughout the United States where
one corporation controls a large sector of a local economy. Such dominance
of the economy allows an outside-controlled corporation (which may, or may not
have the best interests of the cominity in mind) to have an overwheh-ningly
great influence in local decision-making.

Avoiding such conditions in Mletlakatla requires the development of a nore
diverse economy, one in which no one sector can dominate the CcmTunity and
in which uncontrollable disruptions in one sector can be offset by more
stable conditions in another.

Goals and 0 Jectives

The issues and needs discussed above are varied and far-reaching, and their
solutions must be of comparable magnitude. It is evident, for instance, that
acquiring data must be a high priority, but the acquisition and use of that
information is a mans to a-larger end.

The goals for the Comnunity are set forth on the following pages as statermnts
of the desired conditions in coastal resource management. In the developmnt
of these goals, however, the planning team attempted to make them statements
of not only desirable conditions I but also attainable conditions. In order to
attain these goals, a set of objectives is included for each goal. Each
objective can be viewed as a step toward the goal. The goals and objectives
will also serve as a framwork for policy development and Community decision-
making, as will be described in Chapters 7 and 8. While changing situations
may dictate the development of new objectives or policies, the Community can
continue to strive for these goals.

The goals and objectives are presented on the following pages in the same
five subject areas of coastal resource management as were the issues.

GOAL 1: Management of fisheries resources to maintain or improve
and provide income over the long-term to individuals and the
Community.

oBJEcTi"vE 1.1. Determine the extent and characteristics of stocks
of each species.
OBJECTIVE 1.2. Allow adequate spawning escaperrent to sustain or
iirprove fish stocks.
OBJECTIVE 1.3. Develop and adopt equitable rrethod of allocating
the harvestable surplus.
OBJECTIVE 1.4. Improve and inplement enforcement capabilities.
OBJECTIVE 1.5. Protect critical fish habitats.
OBJECTIVE 1.6. Enhance capabilities of habitats to produce fish.
OBJECTIVE 1. 7. Develop a convercial shellfish industry on Annette
Island.

GOAL 2: Management of forests on a multiple-use, sustained yield basis to
provide income and employment to the Community.

OBJECTIVE 2.1. Establish a forest inventory system to store, classify
and retrieve forest resource infornation.
OBJECTIVE 2.2. Revise long"term timber operating plans to reflect
new inforrration and va-lues, and to respond to chang@
ing market conditions.
OBJECTIVE 2.3. Exercise greater Com-nunity self-determination over
forest management.
OBJECTIVE 2.4. Maintain soil productivity.
OBJECTIVE 2.5. maintain water quality.
OBJECTIVE 2.6. Retain critical wildlife habitat.

GOAL 3: Development of non-renewable mineral resources in a manner
that will maintain the productivity of renewable resources -and
will provide long-term economic benefit to the Community.

OBJECTIVE 3.1. Establish a relationship between the Commmity and
a mineral developmnt firm for exploration and
development.
OBJECTIVE 3.2. Determine potential of known mineral deposits.
OBJECTIVE 3.3. Specify extraction nethods that will not inpact upon
the water quality or soil productivity of surrounding
areas.
OBJECTIVE 3.4. Establish a permanent fund with proceeds from mineral
development.

GOAL 4: Land and water development to provide opportunities for the
Community, enhancing the qualities for which an area is developed,
while maintaining the productivity of renewable resources and the
character of the island.

OBJECTIVE 4.1. Develop Metlakatla waterfront to promote water-oriented
use and access, while maintaining the quality of the
environnmt.
OBJECTIVE 4.2. Provide new roads or docking facilities to undeveloped
areas when needed and feasible.
OBJECTIVE 4.3. Provide recreation facilities to satisfy the needs of
Comunity manbers on Annette Island.

GOAL 5: Development of a productive@, diversified, stable economy,
providing meaningful employment for Community members.

OBJECTIVE 5. 1. Diversify the island's econmy to provide protection
against any one activity or industry exercising undue
inpact on the Commmity.
OBJECTIVE 5.2. Achieve econamic developoent which strikes a reasonable
balance between environmental and econoruc values.

CHAPTER 3
THE SETTING

Annette Island lies near the southern end of the Alexander Archipelago, a
chain of hundreds of rugged, glacially carved islands interwoven with deep
fjords and protected passages. The island is located approximately midway
in the Inside Passage between Seattle, Washington, about 600 miles to the
south, and Skagway, Alaska, about 600 miles to the north (Figure 1).

Revillagigedo Channel separates Annette Island from the southeast Alaskan
mainland to the east, and from Ketchikan on Revillagigedo Island to the
northeast. To the west is Nichols Passage, and farther west are the more
open waters of Clarence Strait, the broad channel that cuts through the
southern half of Southeast Alaska. Duke Island is visible to the south, and,
beyond that, Dixon Entrance, which opens to the Pacific Ocean (Figure 1).

Although Annette Island covers approximately 136 square miles, the mountain-
ous terrain of most of the island, rising from sea level to over 3,500 feet,
limits settlements to the Metlakatla. Peninsula, a low-lying sout1west am
of the island, 24 square miles in size. On the peninsula, the topography is
comparatively gentle, seldom exceeding 100 feet in elevation, with the
except-ion of Yellow Hill. The town of Metlakatla. is located at the north
end of the peninsula, on the shore of Port Chester. Farther south on the
peninsula is the residential area of Annette, and the former Coast Guard Air
Station and adjoining facilities.

Coastal Management Boundaries

The area covered by this program is the Annette Islands Reserve. This reserve,
created by Congress in 1891 and expanded by Presidential Proclamation in 1916,
includes not only Annette Island but also Walker Island, Spire Island, Ham

Figure I
Vicinity

nchorage

YUKON
WISH COLUMBli--

141 LLS- '@"e Well
SkagWay
CANAD l!"
135'

-j
Q Well
C1

%Ms
SI-P,

IN,

juneau

Silka

ateTsbutg

AIG G,

K-W
. . - .... h k
1C I

m 1131LAU.0
A
Annette Islands
Reserve

01-0 princ 9.R-d 000@

FIGURE 2
Annette Islands
Boundary

Spin, Islald 3000
CD q0 Foot Limit

rW, I p, ""ZalDeen

Source; Presidentf.1 Pr.cf-ti.n 1916

Sylburn
Harbor

& Rem Toland

[email protected] Island

Fort Chester

Metlakatla

Crab Bay
It
ISAR NOINT
\\,-, Kwain Ba/Y
S,ug C>

Annette

Canoe C.-
C2
21

POINT

SEXTANT PDA

1 2 3 4 5 .11P,
POINT DAVISON iia
0* 2 3 4 5 SII-PT-1

PPCIFIC RIM
PLANNGR6, INC.
Annette Islands
Coastal Zone Management Program

island, adjoining small islands, and the waters 3000 feet offshore fr(xn the
line of mean low water of these islands (Figure 2).

These boundaries allow the program to include all land and water areas
managed by or for the Metlakatla Indian Community, and therefore facilitate
implementation of the program. They also include the Zone of Direct Inter-
action and the Zone of Direct Influence as mapped by the Alaska Department
of Fish and Game (1978) inside the reserve.

Watersheds and Drainage Patterns

Annette Island is divided into four major watersheds, mapped and coded in
Figure 3 for the receiving waters into which they drain. The watersheds are
further divided into 34 sub-basins, which are generally topographically
distinct areas draining into an easily definable stream. Because of the
dynamic nature of streamflow, the effects of actions upstream and upslope
within a drainage are transmitted downstream; therefore, the watersheds
determine where the downstream effects of an action will be felt. The areas
are also important in the dynamics of the estuarine waters into which they
flow, as will be described later. Figure 3 maps the four major watersheds,
and their sub-basins, and Table 1 shows the acreage of each major watershed
and sub-basin.

The two largest watersheds, Nichols Passage (1) and Felice Strait (3) divide
the island roughly in half, draining west and east respectively. The Trout
Lake sub-basin, draining west into Port Chester, is the largest within the
Nichols Passage watershed. The Purple Lake/Crab Bay sub-basin, the largest
sub-drainage in the Felice Strait watershed, drains naturally to the east,
into Crab Bay; however, this pattern is complicated by the fact that Purple
Lake supplies water to the power plant at the head of Tamgas Harbor. A
portion of the lake's water, therefore, drains west. Physiographically,
however, Purple Lake must be designated as part of the Felice Strait watershed.

The smaller two watersheds, Tamgas Harbor (4) and Revillagigedo Channel (2)
are located at opposite ends of the island. The Tamgas Lake sub-basin is the
major drainage of the Tamgas Harbor Watershed. Tangas Harbor itself con-
stitutes the island's largest estuary, with considerable runoff traveling
downslope east of the harbor to contribute to the circulation and dynamics of
the estuary. The Revillagigedo Watershed is well defined by two large sub-
basins, Todd Lake and Triangle Lake, draining northeast into Nadzaheen Gove.

Because of the relatively flat terrain of the Metlakatla. Peninsula, more
generalized assumptions need be made in defining its drainage pattersn. In
general, the peninsula displays a pattern of east and west drainage. The
north-south road, running from the town of Metlakatla. south to the airport and
Point Davison appears to follow the gentle crest along the length of the
peninsula. The east side drains into Tamgas Harbor, the west into Nichols
Passage.

FIGURE 3
Drainage Basins
Drainage Basin
Boundary
1133 spire Island ;f, @__9
4D 61910 Sub-Basin
114 chl,@ El Boundary
112 Receiving Waters
2 Nichols Passage
T.dd Lak@ eeV, Revillagigedo
1 201 -a 2 Channel
3 Felice Strait
or 4 Tarngas Harbor
110 VAIMUM RKEPS - FEFER To TA= I

T'i-gl,
Sylburn 10 @k@ 301
Harbor 9 10 202 302 C'
107 Hm Island

Iak@
Hwaock island Q!@ 30

105
Port Chester Tr-t 304

Metlakatla @A,
104

Ch.. -k
102 10 30 (5p

Crab Bay

p-pj. Zak.
-r@ POINT
S-.giw 306 K-ain Bay
403 402
Amette T-w-- Lak. C,.t., LakX7

405
Canoe C 309
101
V 308
i 401
68 4 310
GREY POINT 311
OV
MOSS POINT CP X.
lfe%N
SEXTANT POINT

0 1 2 3 4 5 MILE$
POINT DAVISON 0' N

Annette Islands
Coastal Zone Management Program

Table 1

EXTENT OF
ANNETTE ISLAND WATERSHEDS

Receiving Drainage Area in Percent of
Water Basin Acres Total Land Area
1. NICHOLS PASSAGE 29,465 33.9%
101. Metlakatla Peninsula West 6,120
102. Metlakatla 1,432
103. Chester Lake 1,280
104. Melanson Lake 1,752
105. Trout Lake 7,536
106. Totem Creek 400
107. Hemlock Creek 2,224
108. Japan Bay 400
109. Sylburn Harbor 576
110. Unnamed 872
111. Unnamed 2,520
112. Cowboy Creek 1,200
113. Walden Point 400
114. Outer Annette Bay 552
115. Inner Annette Bay 2,096

2. REVILLAGIGEDO CHANNEL 14,592 16.71/10
201. Todd Lake 7,368
202. Triangle Lake 6,552
203. Race Point 576

3. FELICE STRAIT 29,299 33.4%
301. Narrows 2,736
302. Cascade Inlet 1,040
303. Cascade Lakes 1,336
304. Blunt Mountain 1,816
305. Purple Lake/Crab Bay 9,208
306. Kwain Bay 2,336
307. Crater Lake 1,800
308. Unnamed 1,960
309. Annette Point 2,960
310. Unnamed 2,720
311. Davison Mountain 1,744

4. TAMGAS HARBOR 14,105 16.1%

401. Unnamed 744
402. Tamgas Creek 4,864
403. Tent Creek 2,208
404. Head of Tamgas Harbor 648
405. Metlakatia Peninsula East 5,520

Source: Pacific Rim Planners, Inc, planimetric measurements

Climate

Much of the development of renewable resources on Annette Island is influenced
by the area's climate. As will be described in subsequent sections, the climate
enhances the productivity of marine waters and limits that of the forests. It
also has a profound effect on human settlement patterns, lifestyles, and live-
lihoods.

The National Weather Service has collected climatological data at the Annette
Airport since 1941. That data, published by the National Oceanic and
Atmospheric Administration (1977), provides some insight into the weather
patterns on Annette Island, and is summarized in this section.

Precipitation is the dominant force in the local climate. As warm mist air
masses are drawn in from the ocean by low pressure system, they encounter
the colder land masses of Southeast Alaska's mainland and islands. Upon
cooling, these air masses cannot retain the moisture. The resulting precipi-
tation averages 114 inches annually at Annette. Thpography apparently plays
a major role in determining precipitation patterns, as evidenced by the level
of precipitation in Ketchikan, where, only 20 miles to the north, the precipi-
tation is approximately 50 percent higher. At sea level, most of the precipi-
tation is in the form of rainfall; in the mountains it falls as snow during
the colder months.

Seasonally, the precipitation falls most heavily in the fall with October
storms raising the peak monthly average to over 17 inches (43 an.). June and
July are the driest months, averaging slightly over 5 inches (13 cm.) of rain
per month. The prevailing winds are from the southeast. Wind speeds average
over 12 mph in the autum, with storms frequently exceeding 30 mph and
occasionally peaking over 50 mph. In the summer, although clear skies and
high pressure system are accompanied by light north winds, the south-south-
easterlies still prevail, usually in the 8 to 9 mph range (Figure 4).

The marine air masses that bring the heavy precipitation also moderate the
temperature on the island. While the temperature occasionally drops below
freezing, the coldest man monthly temperature is in the lower 301 s Fahrenheit
(near zero Celsius) in January. In July and August the mean monthly temperature
reaches its highs in the upper 50's (13 to 15 C.). Extremes, of course, extend
far beyond these man ranges, from near zero to 90 degrees (-18 to 32 C.), but
the normal readings usually remain in the 30's to 501s, a much narrower range
than is experienced in interior regions of Alaska or British Columbia.

Figure 4
0 F mean Monthly Temperature oc

--15
58-- -- 14
56-- --13
54-- --12
52. 11

50-- -10

48-- 9
46. 8
44-- 7
42-- 6
5
40-- 4
38-- 3
36-- 2
34-- 1

32 -- 0

M A M i J A S 0 N D

Figure 5
Inches Mean Monthly Precipitation cm

--48
18-- --46
17-- --44
16 -- - 42
40
15 38
14 36
13 34
32
12 30
11 28
10 26
9 --24
-- 22
8 20
7 18
6 16
5 14
12
4 10
3 8
2 6
4
1 2
0
0

i F M A M i i A S 0 N

Source NOAA, Environmental Data Service, 1977.

CHAPTER 4
THE PEOPLE

911!"3)"Zory off," C@11 11- '@_J

The Metlakatla Indian Community is composed primarily of Alaskan Natives.
The first settlers of Metlakatla were menbers of all tribes (or clans) of
the Tsimpshean Nation. Later, other Alaskan Natives joined the settlers;
as a result ML-tlakatle now includes Tsimpshean, Tlingit, Haida, Eskimo
Aleut, and other Alaskan Natives, and people of European backgrounds.

The first settlers of Metlakatla originally lived in the area of present
day Fort Simpson, British Columbia. It was here that Father William Duncan,
a lay Anglican missionary from London, cane to teach the Natives. Father
Duncan learned the Tsimpshean language and used it in his services.

At that time, the Tsimpshean clans in the area underwent a series of often-
violent conflicts. One reason for these conflicts, Duncan believed, stemmed
from the introduction of liquor to the natives by white traders. Duncan
sought to remove his followers from these conflicts by establishing a new
community at Metlakatla, B.C. The new location gave the community a ten-por-
ary reprieve from the inter-clan warfare of Fort Simpson, but the old prob-
lems were soon replaced by another type of conflict. Duncan sharply dis-
greed with established policies and rituals of the church of England, such
as the use of wine in comunion services. Duncan refused to conform to
this and other church policies and formed a new church, the Independent Church
of Metlakatla, B.C. To counter this move, the Church of England confiscated
the land of the new church and ordered the church building destroyed.

Father Duncan and the church elders decided to set out once again to find a
new home. An exploratory group was sent to locate a new home site. Along
the way, Chief Johnson of the Tlingits joined the party. The group arrived
at Port Chester on Annette Island, site of a long-abandoned winter camp of
the Taku Tlingits. On March 25, 1887, the party chose Annette Island as the
site of their new home. Father Duncan dedicated the Comminity on August 7,
1887.

The new Metlakatla grew rapidly. Duncan drew up a plan for streets, homes
and public buildings, and designed his home, the schools and all other public
buildings as well. In 1889, the first permanent public building was dedicated,
to house the day@school and the church.

The U.S. Congress fon-nally recognized the new Community in 1891 by creating
the Annette Islands Reserve, a federal Indian reservation. This action set
aside the island for the exclusive use and occupancy by "Metlakatla Indians
and other Natives of Alaska." In 1916, the Reserve was enlarged by Presi-
dential Proclamation to include the waters surrounding Annette Island for
a distance of 3,000 feet. The Cemmrdty constitution, originally drawn up
by Duncan, was re-written to take advantage of greater opportunity for Com-
mu-iity self-detennination provided by Congressional enactments in 1934 and
1936.

Population

Analysis and projection of past, present and future levels of population is
and important element of any plan, for it enables the plan to adjust to vary-
ing conditions facing the Community. This section analyzes trends in some of
the most important characteristics of the population of Annette Island.1

SIZE OF POPULATION

Until the founding of the Metlakatla Indian Community, there was no pen-nanent
or year-round population on any of the islands of the reservation. The found-
ing of the Community in 1887 brought rapid growth; in 1890 the population was
823. During the next 40 years, the size of the Community's population fluctu7
ated, reflecting somewhat uneven success in establishing a stable social and
economic base.

As in many other parts of Southeast Alaska, much of the early population growth
of the Community can be traced to the develor-ment of the commercial sahnon
fishery. In more recent years, however, the Community's economy has diversified
and grown to the point where salmon no longer solely determine size and success
of the Ccnmiunity where other predominantly Native communities have declined
as many Native's moved to urban areas of the state, Metlakatla has continued
to grow, roughly parallelling total Native population in the region. As
Southeast Alaska has grown and diversified, so has Metlakatla. Figure 6 depicts
these trends.

Since 1930 the level of population has shown fairly steady increases, the
sole exception being a small decline in the 1950's. A 1976 Community Census
estimated the population in Metlakatla alone at 1,291 while another report
estimated a total community population of 1,320 in 1977. (Pacific Rim Planners,
Inc., 1977)

Until the 1940's there was no appreciable population on any other parts of
Annette Island outside Metlakatla, or on any of the other islands of Annette
Islands Reserve. In 1942, the U.S. Army established an Air Force base on th
southern end of the Metlakatla Peninsula at the present site of the Annette
Airport. The Army was attracted by the island's strategic position midway be-
tween Washington State and interior Alaska, by the relative ease of navigation
to and from the island, and by the availability of low"lying, flat land at
the site.

1. Fbr additional detail, please refer to the _"Annette Islands Land Use and
Housing Plan" , (Pacific Rim Planners, Inc., 1977)

MMM M@M" MM @Ml Mae M Mae Mg-

Figure'6
Trends in Native Population and Salmon Harvest

10-

-1500

>
:3
7-

j)OV
0
x. 1000
6-
IA
0
C E
M

z
w 0 5-
> C a
-Z 4J 0
M C

0
0
\---.OO
Jr 0
0000/
500 0
00or M
7%

0 -------
0

1860 1970 1880 1690 1900 1910 1920 1930 1940 1950 1960 1970 1980

Sources: U.S. Bureau of the Census, and Rogers, 1978

Figure 7
Past, Present and Projected Population
2,000 Annette Islands Reserve

HIGH

1,500
EDIUM

z LOW
0

1,000

0
a.

500

1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000

Source: Pacific Rim Planners, Inc., 1977.

The base was developed rapidly With as many as 10,000 uniformed personnel
stationed there at a given tune. The close of World War II brought a rapid
decline in personnel, with a total population recorded at 302 persons in
1950. As Air Florce functions declined, the facility cane to be used as a
Coast Guard Air Station and a civilian airport for the Ketchikan area. Popu-
lation of the Annette area began to increase again, reaching 317 in 1960 and
750 in 1970.

Relocation of civilian airport activities to the new Ketchikan Airport in
1973 and of Coast Guard Air Station activities to Sitka. in 1977 have now
reduced population in the areas outside of Metlakatla to about 80 persons.
About half of this number are located at the former FAA family housing
area at Annette, although a few homes remain at the Annette Airport, near
Point Davison, and at the RCA Alascom Station next to the Annette-Metlakatla
Highway.

With the closure of the Annette Coast Guard Air Station, however, Annette
area multi-family housing units which had formerly been occupied by Coast
Guard personnel became available to other Community residents. As a result,
many former residents of Metlakatla have moved to the Annette area, reducing
somewhat the population of Metlakatla proper. No permanent year-round popur
lation resides on any other part of Annette Island or any of the other islands
of Annette Islands Reservation. These trends a summarized in Table 4-1.

Table 4-1
Past and Present Annette Islands Population

1890 to 1979

Metlakatla Other Annette Islands Total for Reserve

Year Number Percent Change Number Percent Change Number Percent Change

1890 823 823 -

1900 465 43.5% 465 - 43.5%

1910 602 + 29.5 602 + 29.5

1920 574 - 4.7 574 - 4.7

1930 466 - 18.8 466 - 18.8

1939 674 + 44.6 -- 674 + 44.6

1950 817 + 21.2 302 -- 1,110 + 66.0
1960 798 - 2.3 337 + 11.6 1,135 + 1.4
1970 1,050 + 31.6 750 + 1/22.6 1,800 + 58.6
1976 1,291 + 23.0 360 - 52.6 1,651 - 8.3
1977 (est) 1,320 + 2.2 80 - 77.8 1,400 - 15.2
1979 (est) 1,210 - 8.3 130 + 62.5 1,340 - 4.3

Sources: U.S. Bureau of the Census, various; Environmental Concern, Inc.,
1972; Metlakatla Indian CbmtTunity, undated; Alaska Consultants, Inc.
Metlakatla Indian Community, 1979

DEMOGRAPHIC CHARACTERISTICS

Perhaps the most notable characteristic of the Reserve's population is that
it is predominantly Alaskan Native. The 1976 Community Census found that
86 percent, or about six out of seven, of Metlakatla's population is Alaskan
Native or American Indian. Since most of the population elsewhere on Annette
Island is norr-Native, the overall percentage for the Reserve is somewhat low-
er-approximately 81 percent.

Metlakatla's population has approximately the same distribution among ages
and sexes as does that of the state of Alaska, but is quite different from
that of the population of the nation as a whole. In 1970, males outnumbered
females by approximately 55 to 45 percent. The balance was reversed nation-
ally, with females outnumbering males by 51 to 49 percent.

Metlakatla's population is also quite young; the Community's 1970 median age
of 20.7 years is substantially lower than the nationwide median of 28.0 years.
These differences in ages and sexes can probably be attributed to three
major factors; (1) death rates from some age groups are much higher in Alaska;
(2) some young adults settle elsewhere in search of employment or other oppor@
tunities which Metlakatla does not offer; and (3) birth rates are higher.
The result is that family sizes are larger, and the population of young persons
is increased proportionately.

Comparison of vital statistics with population estimates, however, indicates
that the Reserve recently experienced a phenomenon common to many Native
communities or reservations in Alaska. Former residents, enticed by improved
local housing, employment and cultural opportunities, have returned to live
in the community. As a result, during the period 1970 to 1977, total Native
population within the Reserve grew at a rate three times faster than that which
could be attributed to natural factors (excess of births over deaths) alone.
The recent period of high unemployment precipitated by the decline of Amette
Airport activities has slowed and even reversed this growth, but it is likely
that any significant improvement in the local employment opportunities will
cause population to begin increasing once again.

Population projections prepared in the 1977 kmette Islands Land Use and
Housing Plan assume a strong relationship between changes in employment
opportunities and changes in population;however, increasing labor force
participation will probably diminish the number of residents supported by
each full time job. As such, a 54 percent increase in employment opportuni-
ties (high growth scenario) would lead to a 31 percent increase in population,
a 27 percent job increase (medium growth scenario) would lead to an 8 ner-
ow)
cent increase in population, and a 0.5 percent decrease in employment 1i I
growth scenario) would lead to a 13 percent drop in population. Table 4-2
summarizes thse projections.

Table 4-2

Projected Population and Employment,
Annette Islands Reserve
1 Populati 2
Total Employment Total on
Number Percent Change Number Percent Change
1977 to 1995 1977 to 1995

1977 (est) 425 -- 1,400

1995
Low Growth Scenario '423 + 1.8% 1,212 - 0.5%
Medium Growth Scenario 540 + 27.1% 1,512 + 8.0%
High Growth Scenario. 1654 + 53.9% 1,831 + 30.8%
Source: pacific Rim Planners, Inc., 1977.

1) Average Annual Full-Time Employment
2) Year-Round Residents

Economy

stated simply, the economy of Annette Islands Reserve is ccmprised of income-
producing activities within the Reserve. In this section, Annette Island's
economy is described in terms of major econcmic activities, including the
history, products, nature, size and future outlook of those activities.
These descriptions are provided as an introduction to later discussions of
coastal zone resources and their use in the following chapter.

Since the founding of the Community, Annette Island's econcimy has been based,
in large part, on the natural resources of Annette Island. Fisheries and
forestry resources are abundant, and have historically supported a major part
of the island's work force. Other employers have been important to Metlakatla's
economy; however, the largest of these, the federal government, has recently
terminated most activities on the island, and its remaining activities are
relatively minor.

The ccmnunity's economy has been the subject of a number of recent studies.
Since these studies contain much information describing the structure and
outlook of Annette Island's economy, this discussion will attempt merely to
summarize their most important findings, particularly as they relate to coastal
management.

IThese studies include the Annette Islands Housing and Land Use Plan, (Pacific
Rim Planners, Inc., 1977), Annette Airport Master Plan, (Stevens, Thcmpson and
Runyan, Inc., undated), Annettee Islands Economic Readjustment Strategy (PAI,
1978), Annette Islands Shellfish and Mineral Harvesting Feasibili@y SEu--dies
(pacific Rim Planners, Inc., 1978), and Recreation and Tourism, Potential of
Annette Island and the Metlakatla Ccirmunity, Alaska (U.S. Bureau of Outdoor
Recreation, 1975).
29

The 1977 Annette Islands Housing and Land Use Plan includes an analysis of
Annette Island's economic base (primary sources of Community employment and
inccrne), spending patterns and employment projections (upon which population
projections are based). The economic base analysis in the report incorporates
estimates adjusting for the likely effects of the Coast Guard relocation and
as such presents a fairly valid picture of Annette Island's economy and eoo-
nomic base.

Table 4-3 presents the economic base analysis contained in that study.
Essentially, the table divides employment estimates into the sources to
which jobs can be attributed. For example, the 82 jobs associated with
forestry and the forest products industry are almost completely attributed
to demand by off-island private businesses (such as exports to Japan). A
very small fraction is due to local demand for wood and wood products pro-
duced locally. Thus, about 99 percent of employment in forestry and the
forest products industry is due to off-island demand. Other industries and
goverment employment are distributed in a like manner.

The totals at the bottom of the table point out several important character-
istics about the economy of Annette Islands. First, sales to the off-island
private sector are the most important source of employment, with 43.4 percent
(nearly half) of Annette Islands employment directly attributable to this
source. Employment directly or indirectly attributable to the federal sector
(this includes both purchases by federal agencies and purchases by federal
employees and their families), is also quite important, accounting for 38.7
percent (or nearly two-fifths) of total employment. Finally, the overall
ratio of basic, or off-island attributed, employment to secondary employment
is very high.- about 1.00 to 0.15 -- indicating that most employment on
Annette Island is attributable to export or basic rather than locally-oriented
activities. In essence, the table demonstrates that most local income is
spent off-island rather than being respent in the local economy. By contrast,
many larger cities have basic to secondary employment ratios of 1.0 to 2.5
or more.

Two major factors can be identified as being primarily responsible for this
lack of respending and secondary Employment. One major factor is certainly
the proximity of Ketchikan, with its larger population and more varied ser-
vices. Ketchikan siphons a good deal of spending by Annette Island residents
away from Metlakatla.

The second major factor is that during the peak summer season, many transients
or non-resident workers are employed -in logging, fishing and fish processing
activities. Most of these activities are relatively self-contained (i.e.,
provide housing and food directly to workers) and much of the workers'
earnings leave with them at the end of the season.

Specific projections for each of the employment categories listed in Table
4-3 are shown in Table 4-4. Three different sets of projections were pre-
pared, because of the wide range of possiblities in the Reserve's future
economic development, and the uncertainty surrounding those possibilities.

The low forecast assumes little economic development activity during the plan7
ning period, other than maintenance of existing activities. It assumes no
development at the Annette Airport, and generally stagnant levels of activity
among Annette Island's major eaployers.

1 30

MM mmm MM

TABLE 4-3

ANNETTE ISLANDS RESERVE ECONOMIC BASE

1977

Average Annual Employment by Demand Sector
Basic Sectors Secondary Sectors
Employment Federal Federal Off-Island State Residents Local Local Total
Category sic Gov't Employees Private (Schools) All Private Gov't Employment
& Dependents Other

I Lumber & Wood
Products 24 81.3 0.6 82.0

11 Fisheries &
Fish Products 09,20 111.7 1.6 0.6 113.8

Ill Other
Manufacturing 21-23, 25-39 .4 0.3 0.3 0.5 1.4

IV Contract
Construction 15-17 0.1 0.1 9.4 9.6

V Transportation &
Communications 40-49 0.3 0.5 42.0 1.1 2.1 0.9 0.9 48.8

VI Trade 50-59 0.4 3.4 0.4 14.7 1.6 0.8 21.3

VII Finance, Ins.
& Real Estate 60-69 0.4 0.1 3.3 0.3 0.2 4.1

VIII Services 70-89, 01-08 0.1 2.1 1.5 8.0 0.8 1.1 13.7

IX (A) Federal
Government -- 18.3 0.9 0.1 1.7 0.4 0.7 22.1
(B) State
Government 26.0 26.0
(C) Local
Government 50.5 3.8 10.1 0.6 6.9 9.2 0.6 81.8

TOTALS 69.6 11.1 247.6 27.7 39.3 14.2 14.2 423.7
Percent of Totals 16.4% 2.6% 58.5% 6.5% 9.3% 3.4% 3.3% 100.00%
Source: Pacific Rim Planners, Inc. , 1977

Table 4-4
Estimated Present and Future Employment

Annette Islands Reserve

1977 and 1995

Total Employment in 1995 by Activity Level

Total Employment in Low Activity Level Medium Activity Level High Activity Level
1977
Employment Category SIC Number Percent Number Percent Number Percent Number Percent
Mining 10-14 0 0% -- 0% 5 0.9% 15 2.3%
Lumber & Wood
Products 24 82 9.3% 82 18.9 139 25.7 180 27.5

Fisheries & Fish
Products 09,20 114 26.8 119 27.5 130 24.1 157 24.0

Other
Manufacturing 21-23,25-39 1 0.2 1 0.2 1 0.2 2 0.3
Contract
Construction 15-17 10 2.4 10 2.3 13 2.4 19 2.9
Transportation &
Communication 40-49 49 11.5 50 11.5 57 10.6 65 9.9

Trade 50-59 21 4.9 21 4.8 27 5.0 35 5.4

Finance, Insurance
& Real Estate 60-69 4 0.9 4 0.9 5 0.9 7 1.1
Services 70-89,01-08 14 3.3 16 3.7 22 4.1 28 4.3

Federal Government - 22 5.2 22 5.1 23 4.2 24 3.7

State Government - 26 6.1 26 6.0 27 5.0 29 4.4

Local Government - 82 19.3 82 18.9 91 16.9 93 14.2

TOTALS 425 100.0% 433 100.0% 540 100.0% 654 100.0%
Source: Figures taken from Table 4-3 reflecting estimated employment levels following relocation of Annette Coast Guard
Note: Percentage figures may not add due to rounding.

M so W, lm, M66 Im M, as .am

The medim forecast assumes:
1. Full-scale development of small log processing operations and expansion
of the Annette Hemlock Mill by Louisiana-Pacific, Inc.
2. Increased employment in fishing due to completion of the new salmon hatch-
ery on Tamgas Harbor, or expansion of the Ccmmziity's fishing fleet , and
some additional entry into other year-round fisheries. (bottanfish)
3. Increased employment in fish processing due to increased harvest and ex-
pansion of the cold storage plant.
4. Small increases in forestry employment due to local management and en-
hancement efforts.

5. Small increases in transportation and communications employment.
6. Small scale exploratory development of barite and other mineral deposits.

By contrast, the high forecast assumes perhaps the highest possible alterna-
tive in terms of Employment projections. Among the assumptions are full-
scale development by Louisiana-Pacific of the airport site, including log
storage, debarking, merchandising, and other secondary wood processing
activity (such as a veneer plant mill). It also represents large increases
in fisheries activities, and establishment of small tourim and mineral
enterprises. Making such development a reality would require a major Cemm-
unity effort in terms of time and investment of funds.
When dealing with an area of small population such as the Annette Islands
Reserve, population forecasts are subject to considerable error, particularly
when the local economy appears to be sensitive to major dislocations. With
a small population and'a long forecast period, the chance for error is great.
One major unanticipated public or private action can affect future population
levels dramatically. Ebr this reason, these forecasts should be considered
the best estimates that can be made at this time, but should be reviewed, up.-
dated and revised as necessary as new information becomes available.

Social and Cultural Resources
At the time of the founding of the Community, many of the major aspects of
Tsimpshean culture had been abandoned in favor of religious values and
practises stressed by William Duncan.

However, the tribal background of the Commzdty continues to assert itself
in daily life. Families play an important role in the Camunity, and the
town's elders command a greater respect than they do in most American towns.
Not only are family ties strong, they are also far-reaching; it is difficult
to find two Metlakatla residents who are not somehow related. In making de-
cisions, Community leaders must therefore relate to the citizens as individuals
with whom they are acquainted and to whom they are probably related.

.33

Another carryover fian the tribal beginnings is the Community ownership
of land. All the land and water in the reserve is held in federal trust
status for all Community members. Thus, the Community does not experience
the pressures usually associated with private ownership, and the issue of
taking which frequently accompanies land use controls.

Historical and Archeological Resources

Prior to the founding of the Ccmnunity in 1887, Annette Islands were used
only sporadically by Tlingit and Haida Indians for seasonal fishing c&ups
and fishing sites. No permanent (winter) settlements of Tlingit or Haidas
are know to have existed on the island. As a result, there are no known
historic archaelogical artifacts located on the islands associated with
earlier Native presence.

Since the founding of the Community in 1887, several structures and sites
on Amete Island have played iRmrtant roles in Community development.
These sites, all of which are in the tam of Metlakatla and under the
control of the Community, include the Duncan Memorial Church, located at
the head of Church Street; the house of William Duncan, now the Duncan
Museun. on Atkinson Street; and the Ccmm:unity cemetary at the southwest
end of Western Avenue.

The Community manages these sites to preserve their original configuration
and condition. The Duncan Cottage was restored in 1974, and the cemetary is
maintained by the Cammity.

CHAPTER 5
MARINE RESOURCES
AND HABITATS

Annette Island is located amid scine of the most productive waters in the
world. The region's characteristic geologic history, climate, oceanographic
and biological conditions combine to make the inside waters of the north-
west coast of North America, including those of Annette Island, a highly
productive, self-sustaining system that is exceptional among the world's
marine ecosystem. The system retains nutrients where they can be used most
efficiently, and produces prodigious quantities of food for fish, shellfish,
waterfowl, marine mammals and people, This chapter reviews the processes
that contribute to the production of marine resources, analyzes the charac-
teristics of those resources, and discusses their use and management.

Oceanography and Productivity

Where rivers and stream enter the marine environment, they foxm an estuary.
An estuary, as defined by Pritchard (1967) is a sEmi-enclosed body of water,
strongly affected by tidal action, having a free connection with the open
sea, in which seawater is measurably diluted by freshaater derived from up--
land runoff. Annette Island has seven readily definable estuaries, distinct
from the more open waters, but even the waters of Clarence Strait and
Revillagigedo Channel are estuarine in the natural definition. They are
partially isolated from the open sea and are diluted by fresIvater runoff.
Most important, they tend to be more productive than does the open ocean.

The foundation of most marine food chains is based on phytoplanton. These
microscopic, drifting plants convert inorganic nutrients, solar energy, carbon
dioxide and water into organic material which is available for use by animals.
The phytoplankton beccme food for zooplankton (microscopic drifting animals),
which in turn feed large marine animals.

The phytoplankton, however, are limited in their food-producing activity to
water shallow enough to allow sunlight to penetrate.
In the open ocean, decaying plants and animals tend to settle into the depths
where sunlight does not penetrate. The nutrients resulting from their deoom-
position cannot be used by the phytoplankton. Biologically, then, the open
sea with its clear blue waters is not very productive. The murky green waters
of the bays of the glaciated coast, on the other hand, teem with life.' The
green color of the water is caused by the rich growth of phytoplankton, which
supports an abundance of other forms of life.

The exceptional productivity of the estuarine waters is enhanced by a process
that draws the nutrients into the estuaries at a depth at which they can be
used by phytoplankton and other marine vegetation. This process is driven in
part by the large volume of freshwater flowing into the.estuaries from the up-
land drainage basins.

For example, if all the r&irwater that falls directly into Tamgas Harbor in an
average year were piled up in one layer, it would exceed nine feet in depth.
Actually, Tangas Harbor receives a good deal more freshwater than that nine
feet each year, because most of the precipitation falling into its 22-square
mile (14,105 acre) watershed is unable to percolate into the impermeable igneous
and metamorphic bedrock beneath. Allowing for an annual loss of 20 inches by
evaporation and transpiration, 94 of the 114 inches of average annual precipi-
tation can be expected to run off into the streams and be carried into Tawas
Harbor. Because the drainage basin is 14,105 acres and the harbor is 3336 acres,.
this runoff, added to the precipitation that falls directly into the harbor,
would form a layer 41 feet deep if retained in the harbor for a year.

The freshwater does not, of course, pile up into a layer 41 feet deep, but neither
does it completely mix with the seawater. Being less dense the freshwater tends
to remain in a somewhat discrete layer of lower salinity water floating on
top of the more dense seawater. Being near the surface, this water receives sun-
light, which encourages phytoplankton growth. Before all this runoff can go
out to the open sean, the phytoplankton have the opportunity to use its nutrients
and produce food.

As it flows out of the estuary, the lower salinity water leaves at the surface.
Since the outflow is at the surface, inflowing water must enter the estuary at
depth. In the warmer months, this inflow-at-depth coincides with a coastwide
process of upwelling in which deep, nutrient-rich, oceanic water is carried to
the shore. This upwelled water probably provides a substantial amount of nutrients
to the estuary. (Figure 9).

When it enters the estuary, the nutrient-rich water passes over the shallow sill.
The constriction of this entrance causes the deep water to mix with the surface
water. The nutrients then become available for use by phytoplankton, which
convert it to food for fish, shellfish and other marine organisms. When they
leave the estuary the nutrients are incorporated into living organisms, which
contribute to the productivity of the offshore waters.

FIGURE 8

Major Estuaries
S1,-e Island

Ildd -k.
e

Sylbu@n T@iangll
@k.
11.rbo

Ham Island

C ... d.

Hemlock Island w

T-t
Lake

c5cz,

b Bay

P@rpl, @ka

Coo. Bay
Smugg

A mette T..g.. Lak.

C&rNoe

1c:3

2 4 5
POXNT @VTSON
V 2 3 4 5 KTwMRTr-

PACM PJM
PWNQ%,1NC.
Annette Islands
Coastal Zone Management Program

F'i g u re 9
Schernatic Diagram of EstuarineCirculation

SURFACE WATER

E$TUARINE WATER
OCEAN
G
SILL
N

Shoreline Habitats

The repeated advances and retreats of glaciers on Annette Island have endowed
it with over a hundred miles of intricately carved shoreline. The shoreline
is diverse, ranging from steep, hard rock cliffs on the island's east side to
broad, soft mudflats in its protected estuaries. Most of the shoreline, how-
ever, is between these two extremes, composed of a mixture of sand, gravel,
cobbles and boulders. Each of these habitats has its own physical and bio-
logical characteristics. Some produce great quantities of clans, possibly
suitable for commercial harvest, while others support mussels, crabs, or a
variety of other organisms. This section will examine the shoreline habitats
of Annette Island in term of their general physical and biological character-
istics. The extent of these habitats is mapped in Figures 10 and 11 , and is
quantified in Table 5-1 below;

Table 5-1
Extent of Shoreline Habitats (in miles)

Type All-Island Subtidal All- Island Lower Intertidal

Rock 53.0 64.5

Coarse 28.0 25.0

Fine 24.0 15.5

@urce_ Pacific Rim Planners, Inc., 1978a. Measured to nearest of mile.

FIGURE 10
Intertidal Shoreline
Habitat
00

Spim Island
F Rock
oqo W 1

Coarse

T.dd z e."
-e
Fine

Sylburn
@k
Harbor

He. Island

Lake 01

H..E-k

@k.

Port Chester

etlakatla

Crab Bay

CEDAR POIN
sroug;g", -ain Bay

Annette -k. @k.

C-.e C-

GREY POINT

f IOTNI

SEXTANT POINT ce,

1 k o 1 2 3 4 5 -IES
POINT DAVISON
1 .5 o' 1 2 3 4 5 KIW@ETFRS

MGM MM
PWMM,[W-. Annette Islands
C
oastal Zone Management Program

FIGURE 11
Subtidal Shoreline
Habitat

Spi- Island ;*I Rock
F1,

MOO Coarse

T.dd l,IJ%- e0o
Ove
Fo 61 Fine

Sylburn Tri Ingle
H.rbor

Harn Island

-d@

Hevaock Isl

T .. t

0 Port Chester

etlakatia

Cd
00 Ch-t.r Lake

0
Cr.b B.7

P-pl, L,k,
MoM Fox, 4@
<1 -ain Bay

0 0
0
0
0

Amette C-te, -k.

Caoe CC e Z

or
0

GRE POINT

NOsS POINT

e
SE-T POINT
le
0 1 -2 3 4 5 NILES
POINT MVISON

Annette Islands
Coastal Zone Management Program

ROCKY SHORES

In exposed waters, particularly on the shorelines exposed to southeast winds,
storm waves pound the beaches, scouring away any sand, gravel or other uncon-
solidated n-Laterial. Solid bedrock remains, and, while even this material is
eroded over geologic time, it remains stable on the shoreline long enough to
develop a community of plants and animals adapted to the hard, sold surfaces.
(Figure 10 shows the location of the rocky shores, which include rocky islands
and sea cliffs.) One characteristic comion to most of these organisms is their
ability to attach themselves to the rock, to withstand the action of both waves
and predators. They distribute themselves in vertical zones on the rock
according to their tolerance of, and adaptation to, the physical and biological
changes related to the exposure and inundation by the tides. (Figure 12 shows
the distribution of representative plants and animals on the rocky shore.)

Figure 12
MIATW.
Murr*

Sul I Kelp

Greenling Blue Mussels

Barnacles
Rod sed
Rocktish-J Purple Stars Limpets]
[Larninaria Kelp Periwinkles-
Sea Urchin
[Sunflower Star
Scallops

ctopus

Rocky Shore

Near the high tide line barnacles attach themselves to the rock. Not permanently
attached, but clinging tightly, are small snails, the periwinkles and limpets.

Larger snails, such as the wrinkled purple snail, appear farther down on the
rocks, where tidal coverage is greater and exposure to air is reduced. These
are joined by chitons, or gumboots, which have a powerful foot for clinging to
the rock, and by mussels, which produce strong threads with which to attach
themselves to the rock. Algae is also prcminent in the mid-tide levels, with
rockweed the most abundant at this level.

The lower intertidal zone of rocky shores is populated by many species which are
also found in deeper water, and may be taken as a partial indicator of the near-
shore subtidal marine life. Most apparent here is the lush growth of algae.
Several species of large brown kelp live here, attached to the rock with hold-
fasts, rootlike structures at the base of the plant. Not so impressive in size,
but nonetheless important in the functioning of the marine ecosystem, are the
smaller brown and red algae which grow in the lower intertidal and shallow sub-
tidal zones.

Starfish are ccmmon on the lower rocky intertidal and shallow subtidal
bottom. At high water they migrate to the high tide levels to feed on
barnacles and mussels. Octupuses inhabit the crevices in the rocks,
crawling and swimming in search of crabs or other shellfish.
MIXED-SEDIMENT SHORES
About a third of the island's shoreline is omposed of mixed sediments,
mostly sand, gravel, and cobbles. The proportion of these materials on
a beach varies with exposure to wave action. Protected shorelines, such
as those found in Came Cove, in Hemlock Bay, and near the head of Tamgas
Harbor are made up of fine materials, such as sand and gravel. Shorelines
exposed to more wave action, such as along Metlakatla's waterfront, have
a greater proportion of boulders and cobbles, since the waves wash away
the finer sediments. Where calm water lets sand and mud settle out,
it allows organic detritus to accumulate. This deccmposing plant and
animal material collects in the sediments, and is a food source for many
marine animals.

The spaces between the particles are important habitat for many animals,
which burrawing-to protect themselves from predators, and fram exposure
to air at low tide. While these mixed-sediment beaches may not appear
on the surface to be as well-populated as a rocky shore, the hidden
burrowers often form diverse and productive communities.

Clams are abundant in gravel and cobbles. Littlenecks are found a few
feet above zero tide level, butter clams scmewhat lower, horse clams at
the minus tide levels, and geoducks at the extreme low intertidal and in
the subtidal zone.

Dungeness crabs, red rock crabs, and small purple shore crabs, frequent
these shores, moving about to feed on detritus at high tide, then
burrowing in the sediment or under boulders at low tide. Other small
animals burrowing into mixed-sediment beaches and consuming detritus
include mull crustaceans, polychaete worms and small clams. These
animals are often fed upon by bottomfish and by some species of waterfowl.

Among the seaweeds and brown rockweed, sea lettuce are ccmmon in the midtide
levels. Brown and red algae, generally smaller than the kelps of the rocky
shores, grow at lower tide levels.

Figure 13
LESS EXPOSED MORE EXPOSED

@Odps Gre.t Okm
Heron

Shore Crab

Canada Goose

Starry
FWUI;dw

Alphipad

lenecil
U`0`nG
hmapperi

Dungones clenrD
Crab
Polyctvaeta "W"Clom
wonns

C Gooduck
TIDAL MARSH EELGRASS BED @,I@@R,CO RSE
IL T1 L I I
Mixed Sediment Shores

EELGRASS BEDS

of special importance among the habitats of gravel, sand and silt beds are the
eelgrass beds. Occasionally found in patches in the exposed shores, eelgrass
grows abundantly in the lower intertidal and shallow subtidal in areas of
reduced wave action and fine sediments, such as Smuggler Cove and the innner
part of Tamgas Harbor.
once established, the eelgrass plants reduce the force of the waves with their
blades, and stabilize loose sediment with their roots and rhizomes. The sheltered
environment they create resembles an underwater meadow, and provides a habitat
for a diversity of organisms.

Research on the community of plants and animals associated with eelgrass has
found it to be an extremely valuable one in the marine environment (Phillips,
1974). The eelgrass itself has a very high rate of biological productivity.
Its annual production of organic matter is higher, in fact, than that of many
cultivated crops which require extensive inputs of energy and nutrients. While
some of that productivity is contributed to the rest of marine environment
through grazing by small invertebrates,. much is used in a fragmented or partially
deccmposed form, as organic detritus. The eelgrass blades also provides a sur-
face for attachment for many small animals and plants. Migrating waterfowl,
particularly geese, feed heavily on eelgrass. Dungeness crabs use eelgrass beds
as a nursery area.

The eelgrass serves another important function as a spawning substrate for herring
around Annette Island. In 1978, for instance, even though the spawning areas
had large quantities of Laminaria kelp, hair kelp and other seaweeds commonly
used by herring as spawning substrate, approximately 55 percent of the island's
documented herring spawn was deposited on eelgrass (PRPI, 1978). In this
capacity, the eelgrass appears vital to the herring fishery, as well as to the
salmon, sea birds and other organisms which feed on herring.

Direct human interaction with eelgrass beds is generally limited to subsistance
hunting of waterfowl, clamming or crabbing. In some areas of the country,
dredging for navigation channels has destroyed productive eelgrass beds, but none
have been dredged, or are likely to be, around Annette Island.

TIDAL MARSHES

Anot her area of special importance, the tidal marsh occupies the high intertidal
areas, and thus serves as a transition community between the marine environment
and the terrestrial environment (Figure 13 ). Often represented by a narrow
fringe of vegetation along the upper edge of a beach, the tidal marshes are more
extensive on the small deltas at stream mouths, and inside bays and coves where
fine sediment accumulates for them to root in, and where they are protected
from wave action. The largest tidal marsh on Annette Island is one of approxi-
mately 38 acres widing along the sinuous channels inside Crab Bay. Canoe Cove,
Kwain Bay, and some of the smaller coves on the island also have fairly exten-
sive tidal marshes.

These marshes are dominated by Lyngbye sedge, but are generally bordered on
their seaward side by a fringe of stunted rockweed, and on their landward side
by tufted hairgrass, beach ryegrass, and Pacific silverweed.

,Although tidal marshes occupy a comparitively small area on the island, they
have been found to be urrportant as a food source for wildlife in winter (meehan
1974). Sitka blacktailed deer rely on it in the winter when their feeding
grounds in the mountains are frozen over, but can be seen grazing in the marshes
at almost any time of the year. Mink also use this habitat in the winter,
feeding on the clams, mussels, sea urchins and crabs which they catch in the
intertidal zone.

The Canada geese, which are hunted on the island feed and rear their young in
these tidal marshes, utilizing small marine animals for food. Among the birds
which feed in the tidal marshes are several species of dabbling ducks, gulls,
shorebirds (sandpipers, etc.) black brant and great blue herons. Swallows feed
on insects flying over the grasses, and bald eagles frequently use the marshes
to feed on fish they have caught offshore.

Equally important, although perhaps less apparent, is the role that the tidal
marshes play in the overall productivity of the marine and estuarine waters.
Tidal marsh plants have been found to have a high rate of productivity of organic
matter which, if not grazed upon by mammals and birds, is largely coverted to
organic detritus which the tides export to the marine waters (Odum, 1961).
(The importance of detritus as a food source to some animals has been described
above in the discussion of mixed-sediment beaches.) The contribution of the
tidal marshes takes on added value as its material is usually exported to the
marine environment during the winter, when the marsh plants die and winter ston*ns
arid high tides wash plant material from the marshes. At this time of year the
productivity of the marine environment is generally diminished due to low, sun-
light levels, and the consequently reduced production of plankton. The material
from the tidal marshes is therefore likely to be an important food source when
it is available.

Tidal marshes have historically been viewed with less regard to their importance
as a natural resources and more to their value as real estate. In areas such
as Southeast Alaska, with many miles of steep rugged shoreline, tidal marshes
look attractive as potential low bank waterfront land. The resultant filling
destroys the tidal marsh as a functioning part of the marine environment and
eliminates its value to wildlife. More recently, realization of the value of
the tidal marsh is leading to laws and policies protecting these wetland habitats.

Fishery Resources

Since the founding of the Community, fishing has been its life-blood, and its
rhythms pulse, day-to-day and year-to-year with the surges of activity in the
fisheries. After a sleepy winter, the town awakens in the spring to the scraping,
painting, tinkering of pre-season boat maintenance. Fishing boats are bought
and sold, permits change hands, and new boats arrive from down south. The cold
storage plant begins to stir, and soon its refrigeration units whir into action.

The net fishermen start the year with herring fishing, while the trollers set
out in pursuit of the returning king salmo.n. Halibut fishing opens in May,
occupying many fishermen until the larger runs of sockeye, pink and chum salmon
return. The fish traps are installed, and, open in July. Then the cannery and
cold storage are at the peak of their activity, and each delivery to the packing
company dock infuses new life into the already bustling enterprises.

Later in the summer, and into the early fall, after the local salmon runs
have entered the stream, the fishermen move north, following new runs up as
far as Lynn Canal. The cannery slows down, and prepares to close for the
winter. As the storm pick tip, scxne boats bead south, a few are pulled out
of the water, but most remain tied up for the winter in the quiet boat basin.
only a few fishermen, perhaps the most industrious, fish red snapper through
the winter, until the fishing fleet once again awakens in the spring.

In many ways, this pattern recures in towns all over the region. The charac-
teristic that most sets the reserve apart from the rest of Southeast Alaska
is the exclusive fishery zone. Extending 3000 feet offshore, this zone may be
fished by Ctmmn-dty members only. The fishery within this zone is managed by
the Bureau of Indian Affairs, acting on resolutions frcm the Cmrnzdty1s
Council (although the State acts in an advisory capacity, as described in
Chapter 8). Within the reserve the Community can request fishery openings and
closings, can license fishermen, and can enhance its fishery resource.

The remainder of this chapter discusses the fishery resources of the Annette
Islands Reserve, and analyzes the uses of those resources. Issues and conflicts
are raised here, and then addressed with specific policies and actions in
Chapter 9.

SALMON

The salmon fishery remains important to the people of Metlakatla today, as it was
to their ancestors for centuries. The Annette Islands Reserve is ideally situa-
ted for the Community to take advantage of the salmon resources. While many
of the streams on the island are salmon producers (see Chapter 6), this resource
is supplemented by the salmon runs which use Clarence Strait and Nichols Passage
as a migratory route and pass within the Community's fishing reserve. In spite
of years of management efforts by State and federal agencies, quantitative data
on the salmon resource and its use is mostly limited to the past few years; never-
theless, there are several characteristics of the reserve's salmon fishery which
are important considerations in developing manageTient policies.

The Ccm-aunity's 3000 foot fishing reserve fives it two opportunities which are
not available outside the reserve. First, Community members without Alaska
Limited Entry Permits can receive a permit to fish salmon within the waters of
the reserve. Second, the Camunity retains the right to use fish traps, which
are not permitted in State waters. Both these opportunities allow more Ccomunity
members to be involved in fishing and fish processing. A 1977 estimate counted
114 persons or over one-quarter of the labor force in the reserve as employed in
these pursuits.

Since 1975 the expanding fleet has included an increasing number of gillnet
fishermen who can buy a boat, but cannot afford an Alaska Limited Entry Permit,
and must confine their fishing to the waters within 3000 feet of the islands.
This additional fishing effort is probably not signficant on the west side of
the island, along the major migration routes. It may, however, impact the local
runs using streams on the east side of the islands, where the seiners and gill-
netters fish when the traps are open on the west side. Unfortunately, there is
not enough escapement data for local streams to determine whether or not there
is a significant impact on local runs.

Extent of the Resource

Although there is little data documenting the extent of the reserve's salmon
resource, the catch per unit of effort can be taken as an indicator of the
relative increases and decreases in the stocks. Probably the most reliable
data cames from the Annette Island Packing Ccxnpany's trap catch tabulations.
Table 5-2 below, presenting the catch per trap per day shows a gradual in-
crease in the catch per unit effort during that 14-year period.

Table 5-2

AWRAGE CATCH PER TRAP PER DAY
(in number of fish)

i.ower Pink Returns Higher Pink Returns
Odd years Fish Even years Fish

1963 1,078 1964 2,721
1965 897 1966 4,599
1967 448 1968 1,877

1969 965 1970 734
1971 (no traps) 1972 3,182
1973 1,356 1974 2,019
1975 4,605 1976 5,467

1977 2,999

Although this data is not conclusive, it suggests a general improvement in the
condition of the stocks during this period. (A good deal of caution is needed
in interpreting this data. In 1977, for instance there was a good return of
pink salmon but due to an exceptionally dry sunwx most of the pinks migrated
offshore and thereby avoided the traps.)

Allocation Among Gear Types

It is typical in Southeast Alaska, the fishing fleet around Annette Island
includes trollers, seiners and gillnetters (although the gillnetters were not
permitted until this decade.) The amount of the catch taken by each gear type
is an issue of concern to some fishermen who believe they are campeting for
fish not only among eachother, but also with the Ccnraunity's fish traps. The
Table 5-3 ocnpares the proportion of the catch taken by each gear type in
the reserve with that in all of Southeast Alaska.

Table 5-3

SALMON CATCH DISTRIBUTICIN AMONG GEAR TYPES
Percent of Total Catch, by Weight

Gear SE Alaskal Annette2

Trap 6.5 27.6
Seine 50.1 45.6
Gillnet 18.6 19.0
Troll 24.8 7.8

TOTAL 100.0 100.0

Sources: 1. Alaska Department of Fish and Game
2. Annette Natural Resource Center (includes fish
caught outside the reserve but landed at Metlakatla).

The table shows that, both in and out of reserve waters, purse seiners take
the largest share of the fish, although they get a scxnewhat higher proportion
in State waters. Gillnetters receive a nearly equal share in both jurisdictions.
Trollers, however, account for much smaller percentage on the reserve than they
do in all of southeastern. (Probably due to the relative ease of entering the
handtroll fishery in State waters). On the reserve, the remainder, over one-
fourth of the landings ccine frcm the traps.

Salmon Fishery Management

To a large extent the salmon fishery on the reserve is managed to conform with
the State-managed fishery outside. Fishery openings for gillnetting and seining
coincide with the State's openings; even the trap openings were set to coincide
with State openings until a few years ago. (Now the Community negotiates with
the BIA for specific trap opening days).

On the west side of Annette Island, consistency with State openings may be
appropriate, since many of the fish caught there originate off-island. On the
east side, however, openings might be according to the timing of the returns of
local salmon runs. If sufficient data were available on tin-Ling and levels of
escapement, the Camunity could manage tem-Linal fisheries near mouths of
selected streams! allowing for adequate escapement and subsistence fishing.

Probably the most pressing need in management of this resource is for data.
Spawning escapement data is required on an annual basis for the island's larger
stream. The Annette hatchary staff has been collecting escapement data frm
the islands two most productive streams. These efforts must be continued and
expanded if the Community is to have good perspective on its locally produced
salmon resource. Fish tagging or other analyses would also help provide data
on the origins on the Annette Island catch and help detennine to what extent
the Cmnunity would benefit from more intensive fishery management or enhance-
ment efforts.

Economic Aspects

Even though other activities have now become important, salmon fishing is
still an important component of comunity income. On an annual average,
fishing and fish processing employs about one-fifth of the community's labor
force. On a seasonal basis, however, fishing employment varies from a low
of 28 in winter to a high of 280 in sumier (Pacific Rim Planners, Inc., 1977).

This seasonality creates a significant economic issue. Since activity is
concentrated into a fEw short months during the year, workers must usually
be imported to work in fishing and fish processing during peak periods.
Weather and biology of salmon probably would limit the community's ability
to spread out the season, but reserve openings could be timed to better even
out flows at the AIPC plant. In addition, hatchery releases of salmon fry
could be timed to return at off-peak periods.

HERRING

Pacific herring spawn along the shores of Annette Island in the spring. The
herring have historically been fished for food and for their oil, but more
recently have been harvested for bait and for the roe which is shipped to
Japanese markets. The uncertain herring population dynamics and behavior,
coupled with heavy fishing pressure in recent years, have led to wildly fluc-
tuating population levels, and consequently to an unstable fishery.

The usual spawning grounds for herring are located on the east side of the
island from Cascade Inlet south to Crab Bay, and on the west side form an
area north of Cedar Point to south of Smuggler Cove (Figure 14). The herring
typically spawn on eelgrass, kelp, rockweed and other marine vegetation, al-
though occasionally they use rocks or shells as substrate as well (PRPI, 1978).
In some areas, herring population is limited by the extent of spawning sub--
strate, but on Annette Island, where the spawn is of light to medium intensity
and most of the vegetation is not used, the herring populations apparently have
other limitations.

Their position near the low end of marine food chains, in which they feed largely
upon plankton and other small organism, makes herring particularly vulnerable
to environmental changes (Hart, 1973; Reid, 1972; Taylor, 1964). Factors such
as changes in sunlight levels, water tEmperature, or nutrient content of the
water can cause changes in the plant plankton's primary productivity. These
changes can be reflected rapidly in herring populations. Predation by birds
and larger fish is also an important Limiting factor, particularly for juvenile
herring.

The pressure of comaearcial fishing cannot be ignored, however. The herring
stocks have been fished for bait in the winter and for roe in the spring
around Annette Island alone. In addition, it appears that these fish are part
of the stock which is fished for bait in a state-managed fishery in George Inlet,
Carroll Inlet, and Tongass Narrows, on Revillagigedo Island. Since 1973, when
roe fishing began, the bait fishery in those inlets has taken an average of
29.2% of this assessed stock per year, while the roe fishery has averaged 2.3%
of the assessed stock. Thus, nearly a third of the herring population has
been fished out per year, on average. (Rules-of-thumb for harvest quotas range
from 10% to 20%). This intense fishing pressure adds to an unstable, but prob-
ably farily high, natural mortality and has led to a serious decline in herring
populations levels, as shown in Figure 15. 52

FIGURE 14
Herring Spawning
Grounds

11-b-4

P-t Chen"
Mellakatla C;cz.

cc cam v
Kwain Bay

c- rk@

C@c,

sx@ PC]"
ve
3 5 Lr@
0 2 3 4 5 xlr@ N

PACM am
PLAHNM.W-
Annette Islands
Coastal Zone Management Program

Figure 15
Hydroacoustic Estimates of Herring Populations
(Tongass Narrows, George Inlet, Carroll Inlet, Cascade Inlet)

8500 - 17
0
CO
0
0

F1
@o 0 P-
F_: U)
0 0 Ln 0
E-1 IqTI . :j
ko CO Id
L 0
OD

LO
500 77-7
0 0
71-72 72-73 73-74 74-75 75-76 76-77 77-78 78-79

Years

So'urce: ADF&G Technical Data Report #38

Since the roe fishing was initiated in the Ketchikan area in 1973, and around
Annette Island in 1976, the herring populations have declined to seriously
1cw levels. Hydroaooustic estimate's by the Alaska Department of Fish and
Game (Blankenbeckler, 1978) show a drop from 8500 tons in the 1971-72 season
to 455 tons in the 1977-78 season. (Figure 15) The decline in spawning
stock was most noticeable in 1978, when a drastically reduced spawning,
changes in spawning grounds, and unusual timing and location of spawning led
to a disappointly low catch level -- less than 10% of the planned quota stock.

The herring fishery gained considerable attention in 1979 as the price of roe
herring climbed to $2000 a ton and higher. In light of the high value of
roe herring and the depleted condition of the stocks, a rearrangement of
priorities in allocating catches between bait and roe fisheries would certainly
be desirable for the Community's fishermen and cold storage operation.

If the herring fishery is to be sustained its future management will also have
to allow more spawning escapement. Because this resource is managed by both
the Community and the State, the future of the herring fishery will depend on
whether the Community and ADF&G can reach an agreement on cooperative herring
management policies.

SHELLFISH

Annette Island 105 miles of diverse shoreline habitat supports several species
of shellfish whichl given the proper economic and legal climates, could probably
support a commercial shellfish industry. The shellfish resource is discussed
here briefly; more detailed information is available in the report, Annette
Island Shellfish Feasibility Study (PRPI, 1978b).

The species which appear most promising are the hardshell clams (littlenecks
and butter clams), horse clams and geoducks. These species inhabit mixed-
coarse and mixed-fine sediment, which cmprises sane 39% of the island's
shoreline intertidally, and about 50% of the shoreline subtidally. An
estimated 2234 acres of intertidal and subtidal land could support clams,
of which at least 385 acreas would be likely to be harvestable. The extent
and distribution of this habitat is showm in Table 9 and Figures 10 and 11.

Table 5-4

Extent of Shellfish Beds

By General Substrate Type
(Area in Acres)

Type Subtidal Intertidal
(To 30 Feet
Below KIN)

Mixed Coarse 1697 152

Mixed Fine 291 94

Source: PRPI, 1978a.

The extent of the shellfish populations has not been measured. If the sub-
tidal beds have clam densities approaching some of the ommnly dug recreational
beaches, however, the resource would certainly be extensive enough to support
a cmrwrcial clan fishery. Since a hydraulic escalator clam harvester can
operate in a well-populated shallow subtidal tract of 40 acres withough ex-
hausting the supply, depletion of the clam resource would be unlikely with
just a few harvesters.

The main obstacle to the establishment of a commercial clan fishery are not
biological but legal and eocnomic. Shellfish sold in interstate cammerce
must be certified under a joint Federal-State program, the National Shellfish
Sanitation Program. In Southeast Alaska, several incidents of paralytic
shellfish poisoning (PSP) have led to the adoption of strict guidelines for
certification of shellfish beds. The guidelines require 18 months of moni-
toring of shellfish beds for PSP, and call for frequent patrol of the beaches
by State inspectors. As a result, there is no cammercial clan fishery in
Southeast Alaska. The frequency of personal-use clan harvesting without ill
effects suggests that the guidelines applied to commercial clam harvesting
might be excessively strict.

A different approach has been proposed, designed to allow a cmuercial harvest
yet still protect the public health. This approach, being implemented experi-
mentally with Bering Sea surf clams, involves batch harvesting, with each
batch of clams being labeled with its point of origin and time of harvest, and
then held in cold storage for testing and later release to market. The adoption

by the State DNR of this approach, if the island's claw are safe, would rEMVe
a major roadblock from the development of a commercial clam fishery.

The other obstacle is economic. Harvesting and processing equipment is costly
(see PRPI, 1978b for costs). Whether established by an individual or by the
Cmmunity, a shellfish enterprise would require a capital outlay ranging
from $25,000 (for small portable harvester) to over half a million dollars
(for full-scale processing plant). The prices the fishermen or processer would
receive for the product do not appear as attractive as they do for salmn,
but increased demand fran East Coast and Japanese markets is gradually raising
the price. In addition, the capabilities of year-round harvesting, the promise
of additional employntent, and the diversification of the Community's eoorxzdc
base all point toward shellfish as a resource worth developing.

BOTTOMFISH

The variable fortunes of t-he salmon fishery have recently led many in the
c=nercial fishing industry to redirect their attention to bottomfish. Fishery
managers hope that Southeast Alaska's fishery can be revitalized with an in-
fusion of bottomfish to diversify the fishing effort and relieve the intense
pressure on the salmon stocks. Seafood companies see bottomfish as a means to
extend the now seasonal operation of their processing plants. Many fishermen,
too, look to bottomfish as a resource to tap during the off-season. For
those without limited entry permits, it might be a means to enter the commercial
fishery.

Bottomfish include many otherwise unrelated species which inhabit waters near
the sea bottom. Aawng the families represented are the flatfish (flounder, sole,
and halibut), the cod (Pacific cod, tomood, pollock, hake and blackood, and
the scorpionfish (rockfish, red snapper, and Pacific ocean perch). These species
vary greatly in their life histories, their habitat requirements, and their
commercial value. Their classification as bottamfish reflects only their
bottan-dwelling habits and, more recently, the fact that they are not members
of the heavily exploited salmon family.

Although they are currently being publicized as a new resource, bottomfish have
been exploited commercially in the Gulf of Alaska for over 50 years. In the
1920's longlining for halibut began in the Gulf, and other species were taken
only as incidentals in this and the shrimp trawl fishery. When the factory
ships of Japan, Korea, the U.S.S.R. and Poland entered the fishery in the 1960's
all the groundfish species except halibut were still in relatively abundant,
virgin states.

Since that time it has become apparent that bottomfish cannot be regarded as
an unlimited resource, but must be carefully managed. The three species
which have been fished extensively@-halibut, blackcod and Pacific ocean perch--
have undergone serious population declines. Many of the other species remain
in an essentially virgin state, but their condition may be more an indicator
of theri relatively low market value (and hence lack of incentive to commercially
harvest) than of careful management. The groundfish resource clearly presents
limitations as well as opportunities.

Conflicts between different fisheries have also arisen. Large trawlers inter-
fere with longline gear and preempt fishing grounds for halibut fishing. In
addition, shrimp boats and trawlers pursuing relatively low-value fish, such as

blackood, sometimes take a significant nunber of bigh-value fish such
as chinook salmon. Other fisheries conflict when species with similar
habits and habitats such as halibut and f lounder are taken in incidental
catches. Future development of the groundfish fishery will certainly have
to resolve these conflicts.

The new interest in hottcmfish coincides with the establishment of the 200-
mile Fishery Conservation Zone (FCZ) and the development of a Fishery Manage-
rent Council (NPETU). In addition, the Southeast Alaska bottomfish fishery
operates under the management of the Alaska Departnent of Fish and Game,
the International Pacific Halibut Commission,- and the National Marine Fisheries
Service. It therefore appears that any new intensive exploitation of the
bottomfish resource will proceed under a number of watchful eyes.

The NPFMC has taken a number of actions to take advantage of the opportuniti es
of the groundfish fishery while resolving same of its Limitations. Fishery
regulations have been established by the NPFMC to ease conflicts between users
of mobile fishing gear and those of stationary gear. Additional measures apply
specifically to foreign pre-emption of domestic fishing grounds. Other re--
strictions are area closrues and incidental catch limitations. Those of
special regional importance include the closure of the area east of 1400 W.
(Yakutat) to foreign incidental catch of halibut, shrimp, and herring. Once
a foreign nation exceeds allocation of any species within a statistical area
(including Southeast), that the area is closed to all fishermen of that nation
for the remainder of the year. Responsibility is thus placed on foreign
fishermen to develop fishing gear that is more selective of species taken.

Limited entry to domestic fishermen is being considered within State waters.
A concentration of domestic fishing effort within these boundaries, due to
foreign fishing offshore has led to concern over stock depletion there. Further
study of the effects of domestic fishing is needed to determine the ccrrpati-
bility of the State regulations with those established by the NPFMC within the
conservation zone.

With at least four agencies managing the bottomfish fishery, outside the reserve,
and no major known concentrations of bottomfish in the reserve, it would be either
redundant or conflicting for this coastal management program to develop bottom-
fish management policies. The Ccumunity can, however, adopt policies to take
advantage of the resource, and use it to expand and diversify the local economy.
Since Metlakatla already has a large, well-equiped cold storage facility, and
since nearly 99 percent of the bottcmfish is processed into the fresh-frozen
form, it would be logical for Metlakatla to attempt to attract more of the ex-
panding domestic groundfish fleet to use its cold storage plant as a hcm port.
Such a venture, initiated in Petersburg in 1976, now processes pollock in the
winter and flounder in the spring.

CHAPTER 6
LAND ' RESOURCES
AND HABITATS

The Metlakatla Indian Community has a wide spectrun of resources to manage
on Annette Island. Some, such as t-imber, produce a direct financial return
to the Cznmrdty. Others, such as wild-life, support hunting and trapping
for individual Cbmunity members. Still others, such as soil, are not
directly harvested, but are essential to the production of harvestable
resources. Managing any one of these resources effectively requires that
all be given consideration. Harvesting timber or extracting minerals
withough regard for the effects on other resources can jeopardize the future
productivity of the affected resources. This chapter discusses the re-
sources of the uplands, their interactions with each other, and their ixnpli-
cations for future managarmt.

Geology and Mineral Resources

The development of the resources of Annette Island, as well as the patterns
of human settlement, are strongly influenced by its geology. Events of
hundreds of millions of years ago formed the foundation of Annette island,
but some geologic processes continue today and must be regarded in plans for
resource use.

Under its thin blanket of vegetation and soil, Annette Island is composed
of bedrock formations ranging in age from 62 million to 350 or more million
years old (Berg, 1972). Most of the mountains of the island were formed as
molten lava solidified slowly underground as igneous intrusive rock. These
intrusive rocks are common throughout the Coast Range and some of the islands
of Southeast Alaska. In time, they were slowly, gradually lifted up above
sea level in large blocks.

During the last two million years, most of North America underwent several
advances and retreats of continental glaciers. In addition to continental
glaciation, Southeast Alaska was also subjected to alpine glaciation origi-
nating in the mountains. At its maximun extent, the glacial ice was over a
mile thick on Annette Island. The glaciers moved slowly and imperceptibly,
breaking off and carrying along rocks in their path, using thEm to carve the

valleys, lakes, inlets and coves characteristic of Southeast Alaska.
Annette Island's high ridges, long, narrow, mountain lakes, U-shaped
valleys and rugged shoreline are products of glaciers' erosive sculpture.
When'they retreated, about 10,000 years ago, the glaciers left behind the
renmants of the rock they had collected during their advance. These can
be seen as the boulders along the shoreline. Many scars gouged out by
the glaciers are visible, today on the rock slopes of Ieadville Mountain
and Purple Mountain, above the town of Metlakatla.

The Metlakatla Peninsula, however, is formed of a different type of rock.
Subjected to pressure from overlying rocks some 200 to 300 million years
ago, this rock structure was changed, and became the partially metamorphosed
rock visible today in outcroppings along the shoreline but underlying
most of the peninsula. This metamorphosed rock is characterized by
foliation, or distinct planes of rock which make it less strong than the
massive intrusive rocks of the mountains.

Because the peninsula is canposed of less resistant rock that the remainder
of the island, and this softer rock is cut by horizontal thrust faults, it
was nore eroded by the advancing glaciers than were the mountains.
Instead of carving the metamorphosed rock, the glaciers sheared it off flat,
much like a gigantic snowplow passing across the peninsula. Thus, while the
rest of the island exhibits dramatic topography, -the Metlakatla Peninsula
is relatively smooth, with its low, rolling hills seldom exceeding 100 feet
above sea level.

The one exception to the flat topography of the peninsula is Yellow Hill, a
formation of dense, tough dunite rock. The strength of the dunite that
allowed it to resist glacial erosion now makes it valuable as a road
building material, and it is quarried several miles south of Metlakatla.

Just inland from the shoreline, the Metlakatla Peninsula is rim-ned with
deposits of gravel and sand, of up to 1,000 feet in width. These deposits
are described by Marcher (1971b) as ancient beaches whose sediments had
been reworked by waves, tidal currents and glaciers before the beaches
themselves rose above sea level. This uplift, which appears to be wide-
spread throughout Southeast Alaska, can happen rapidly, as in an earthquake,
but usually the land rises slowly and imperceptibly, in an uplifting
process that is believed to continue today.

These raised beach deposits, because they are composed of sand and gravel,
are much more structurally sound than the thick organic peat deposits
overlying the bedrock elsewhere on the peninsula, and the early construction
in Metlakatla was sited on these raised beach deposits. Now that the
town is expanding out over the muskeg, the raised beach deposits are extract-
ed in a gravel pit to be used as fill and aggregate material in construct-
ion projects.

The raised beach deposits, which have been measured at up to 33 feet in
thickness, have been proposed by Marcher (1971b) as a potential source of
groundwater. Mule the igneous and metamorphic rock underlying most of
the island is impemeable and a poor source of groundwater, the permeability
of the raised beach deposits and the high rainfall on Annette Island
make these deposits a likely source of groundwater. Their proximity to
the surface, however, makes them vulnerable to contamination from land-
fills and sewage, and their development as a water supply would require
adem:tate sanitary precautions.

FIGURE 16
Locally Surveyed
Areas with
Mineral Potential
Spi- Island

q@@ 01,

T.dd
a

-j

Sylburn T'langip
Harbor

Island

C--d.

HendoOk Island

T-t
@k.

Port Chester

Metlakatle

cc Cha.t- @k.

CO Crab Bay
Z!

A,
SrOugils' K-m. Bay

Annette T.M. Lk@

Ca,nOe C
10

0
0 @y pD1WT

MOSS POINT

e
SEXTANT POINT
63 je

POINT DAVISON
0, 1 2 3 4 5 @X@Krp@s
M
PACMRIM
PLANNQ%, INC. Annette Islands
om- - Coastal Zone Management Program

An aspect of Annette Island's geology that may prove important as a resource
in the future is the mineral deposits recently located in geologic investi-
gations of the island (Figure 16). CMmercially valuable deposits of
the mineral barite have been found on the Sylburn, Peninsula, north across
Port Chester frcm Metlakatla. In the area of Crab Bay, on the east shore of
the island, lead and zinc deposits have been found in the limestone and
rhyolite bedrock near Sink lake and Cave Creek, the main tributary of Crab
Bay. Gold also appears here in several wall veins. The relatively small
size and widely spaced distribution of most of these veins may make mining
unfeasible, but further exploration will be required before the value of
these deposits can be assessed.

Soils
Besides serving as an underlying foundation for any construction on the island,
the soil is important an dictating the potential productivity of the upland
ecosystem. The soil supports green plants in capturing the sun's radiant
energy and converting it to the organic material thatis the foundation of the
upland ecosystem.

Annette Island's soils are an outgrowth of its geology, climate and vege-
tation. Together, these three factors have created soils that, although
not identical throughout the island, have many characteristics in common.
These characteristics affect the soil's ability to support structures, to
grow timber, and to withstand disturbance by excavation or other operations.

Because of the climate, the soils are nearly always cold and wet. The cold-
ness slows the deccmposition of organic material to the point at which it
accumulates faster than it can be decomposed. Thus, the soil has a relative-
ly thick surface organic layer, but is poor in inorganic nutrients and
minerals.

In spite of the relatively thick organic layer, the total thickness of the
soil is less than it is in more moderate climates. In many areas, the soil
is so thin that outcrops of bedrock are exposed at the surface. In other
places, the steep terrain and the weak structure of the soil have caused
slides, with large masses of soil moving downhill and exposing bedrock or
glacial subsoil.

Only mall areas of the island have had soils analyzed and mapped in detail.
More detailed information has been collected on nearby Prince of Wales
Island for the U.S. Forest Service by Gass, et. al. (1967). much of that
information applies to Annette Island as well. The soils will be discussed
here under the general headings of forested soils and muskeg soils.

FORESTED SOILS

The more well-drained of the soils on the island allow the growth of coniferous
forest. From the standpoint of geologic time, these soils and their landform
are very youthful. The glaciers which covered the island only 15,000 years
ago left only bare bedrock in their wake. Even today much of the mountain-
ous terrain on Annette Island is bare rock, or very shallow, poorly developed
soil. in the years that followed glaci -al retreat, the cold, wet climate,

and limited activity of soil bacteria slowed the soil development. Only
the shallow upper layers of soil have sufficient nutrient content to
support any substantial growth of timber. If these layers are lost through
such natural processes as landslides, or through man-caused earth moving
or excavation, the disturbed site does not immediately regenerate a
coniferous forest, but instead reverts to early successional species such
as horsetails and alder, which can subsist on low nutrient levels.

The youthfulness of soils is accented by the landforms. The steep topo-
graphy coupled with the ever-present moisture, make the soils unstable, and
can lead to landslides of other mass soil movements as the soil and under-
lying bedrock settle into a "more ccxnfortable" position. Swanston (1974)
noted that logging and road building are important causes of soil movenents
in mountainous areas with high rainfall.

Although the weak structure can cause mass slides, erosion of the
surface soil is not usually a problem on undisturbed soils. The lush growth
of vegetation has, over the years, built up an organic mat in the top layer
of the soil. This organic material absorbs rain, protecting the soil frcin
surface erosion during the rainy season, and reducing surface runoff to a
mirdmum.

The upper layers of the soil have a rapid permeability to water, and because
of the climate they are perpetually moist. The heavy rainfall leaches
nutrients out of the soilf and the cold climate slows down the activity of
soil microorganisms which would otherwise add nutrients to the soil. Thus,
since f-he soil is poor in inorganic nutrients, the vegetation and the decom-
posing twigs, leaves, etc., which incorporate the nutrients in organic form,
are important as a nutrient reservoir, storing nitrogen, phosphorus and other
nutrients critical to the functioning of the forest ecosystem. The nutrients
cannot be used, however, until bacteria break them. down further, a slow
process in Southeast Alaska.

In an undisturbed condition, then, the forested soils of Annette Island plav
an important role in the qrowth, however slow, of timber and other vegetation.
Maintaining that undisturbed condition of the soil, however, is critical to
continued productivity of the forest. Harvesting the timber without destroy-
ing the productivity of the soils is difficult, particularly on steep slopes,
and may require foregoing the opportunity to log otherwise attractive timber
in order to retain the integrity of the soil and watershed.

MUSKEG SOILS-

Muskeg soils cover most of the Metlakatla Peninsula and are present in large
areas elsewhere on the island where the drainage is perched or the.terrain
is insufficient gradient for drainage. Although formed on top of igneous
and meteawrphic rock, the muskeg soils have developed thick layers of fibrous
organic peat with poor structural characteristics. The impermeable rock
underneath limits drainage, further reducing these soils' suitability for
development and retarding the growth of timber.

Muskeg soils range frcm thick deposits of sedge or sphagnum. peat (up to 50
feet in depth) to relatively shallow layers Q to 5 feet) overlying the bed-
rock. The shallower muskeg soils can be recognized by the presence of shrubs

FIGURE 16a

UPLAND HABITATS

Forest

Sp@ island Upland Meadow
Muskeg
Alpi nelSubalp! ne /Rock

ove

Sylburn
Harbor

0 Ham Island

Hemlock island

nakc

Port Chester

Metlakatla zak

Chester Tke

Crab Bay

P-pl@ Uk.
C5, CEDAR POINT

Kwain 13av
srosq'I",

Taq.. take

Canoe C. Ad&
C, 190"b
off all,

GREY Porm

'S POINT Y.
SEXTANT POINT Al@
153

POINT DAVISON 0,

MC RIM
PL"M5, INC. Annette Islands
Coastal Zone Management Program

FIGURE 16b

WILDLIFE HABITAT USE

Terrestrial

Sitka Black-talled Deer

sp@ island Winter Range

Summer Range

Timber Wolf

Denning Sites

Beaver

Active Dams
Q',- ear, Bil rd
Tadd LaEe Ova Vancouver Canada Goose

N- Ing Habitat
Trum@peter Swan

Restingifeeding Areas

Bald Eagle

Nest Sites

Sylburn
Harbor

--rd

C r.d.
LakV

Re.lodk, Island
T ... tk,- 0

Fort Chester

Metlakatla Melanso, L,k@

Chcate, Lak@
p
S
n W CMb Bay

P.Ipl@ Lak,
POINT

Kwain Bay

ette 'a.'. Lak@ Crater Lake

Canoe Cove

-Er 1-7

'OES POINT

1 0 f 2 3 4 5 MILES
POINT DAVISON
2 1 4 5 KII-TEM,

PACIFic Rim
PLANN&O, INC.
Annette Islands
--r- Coastal Zone Management Program

and some trees, as opposed to the sedges and sphagnu-n moss which dominate
the landscape in the deeper muskeg soils. While the deeper muskeg soils
are unsuitable for development of any kind, the shallower peat soils can
be used as sites for a limited amount of construction if sufficient -
structural fill material is placed on top. They can be used for roads,
for instance, but are extremely expensive (and sometimes hazardous) to
Prepare for buildings.

The recent develoFmentof a synthetic support fabric may facilitate road
construction on muskeg soils'. This fabric, when unrolled on the soil and
covered with aggregate, greatly increases the soil's ability to support
weight, and minimizes the amount of aggregate required.

Upland Habitats
Just as the island's geology afid climate control the development of the
soils, the soils affect the development of communities of vegetation and
wildlife. Although detailed examinAtion reveals many discrete commmities,
the level of detail needed for resource management allows the classification
of several major-habitat types. In the uplands, these habitats include
forests, muskegs, alpine meadows and exposed rock. Each of these has cbarac-
teristic soils, vegetation and wildlife. Each presents opportunities and
limitations for resource use. The habitats will be discussed here briefly
in term of their vegetation and wildlife.

MUSKEGS
The high water table on Annette Island, caused by theimpermeable, bedrock
combined with high levels of precipitation and impeded drainage, has led
to the formation of large areas of muskeg. Although there are several
communities of muskeg, it can be generally defined as an open habitat,
vegetated by sedges, mosses, herbs, and shrubs, and scattered clumps of
trees, growing in poorly-drained soil that is wet during most of the year.

Muskegs are present in large areas in much of the island, and dominate vast
areas of the landscape on the low, flat Metlakatla Peninsula. Even areas
which are largely forested contain pockets of poorly drained soil which
have develped into muskegs. The sedgenuskeg is vegetated exclusively by
sedges, with a water table near, and sometimes above, the surface.
Sphagnum muskeg is dominated by sphagnu-n moss, with shrubs including crow@
berry, Labrador tea, bog rosemary and swamp laurel, and a scattering of
stunted trees including mountain hemlock, Alaska cedar and shore pine.
Transistional muskeg retains both the sedges and sphagnum moss in dominance
with shrubs similar to those of spagnun muskeg, and a somewhat greater
coverage of stunted trees. The demarcation between forest and transitional
muskeg is not well defined, but is related to minor changes in the soil's
drainage characteristics.

Muskeg Wildlife
The fairly open terrain and limited cover of the Muskeg restricts its value
as habitat for big game, the one exception being the Sitka black-tailed
deer, which enters the Open environment to graze on the sedges and shrubs.
Muskeg does harbor mammals that are small enough to find cover in the low_
growing vegetation. The 10ng@talled Meadow mouse finds suitable burrowing

habitat among the herbacrous vegetation and low shrubs, where they eat
succulent plants. The dusky shrew feeds on insects in the muskeg. In the
summer, minks use the muskeg as one area in which to feed on aquatic animals
and possibly on the mice.

Besides the manuals, birds are also limited in muskeg Jy the @;hortage of cover.
Only a few species reside here throughout the vea : the qreater vellowlegs,
northern shrike, Oregon junco, Lincoln's sparrow, pine sisken and pine
grosbeak, the latter two probably attracted by the seeds of the stunted pines
and other coniferous trees. Sparrow hawks have been seen on the island, and
probably feed on mice in the muskeg. Ravens and crows are also common in
the muskeg. Canada geese and trumpeter swans utilize the small shallow mus-
keg lakes during their migrations; both species feed heavily on the sedges
and other aquatic vegetation, and the geesenest in the sedges as well. Blue
grouse also use this habitat.

Because muskeg soils have poor drainage and,structural characteristics, they
impose severe limitations on human uses in these areas. The poor drainage
also inhibits the growth of trees, and makes the muskeg of little value as
timber-growing land.
Possible uses of muskeg land which might be explored on an experimental
basis include grazing of ungulates (e.g., goats or Scottish highlander
cattle), and ditching, draining, and planting for agriculture.

ALPINE MEADOWS

In the areas above 1500 feet in elevation, tree growth is stunted by the
cold climate and poorly-developed soils. At even higher elevations the
vegetation is limited to low shrubs, such as the heathers and blueberry,
club mosses, and herbaceous species such as Nbotka lupine, deer cabbage,
sedges and grasses.

As with the underlying bedrock, the alpine soils are poorly-drained. The
slowly decomposing vegetation gradually accumulates into peat. In this
habitat. the cold temperatures slow the decomposition of vegetation, and
result in thin , poorly developed soil. The soil structure, drainage and
steep slopes all combine to make alpine meadows unsuitable sites for con-
struction of buildings or roads.

Alpine Wildlife

While the low alpine plants provide cover for only the smaller mammals,
the herbaceous vegetation and shrubs produce food for deer in the summer.
Wolves also use the alpine habitat occasionally. Although mountain goats
are not native to Annette Island, they have been successfully introduced
into the alpine habitat on Baranof Island. Such an introduction might
be successful on Annette Island if additional big game is desired.

In the winter, birds using the alpine meadows are limited to the rock
ptarmigan. During warmer weather, the ptarmigan is joined in this habitat
by the rufous hummingbird, raven,robin and golden-crowned sparrow.

The forest just below the alpine meadows is an especially critical habitat
for wildlife using the meadows. The two major elements of any wildlife
habitat are food and cover. VdAle the alpine meadow is an important source

of food, its low-growing plants are not suitable as cover for any but the
smallest animals. While larger animals feed in the open meadow, they re-
treat into the nearby forests for cover. This forest adjacent to the al-
pine meadows, while it may be similar to other forests in vegetation,
plays a greater role than the others as habitat for wildlife.

EXPOSED ROCK

Like the alpine meadows, the exposed rock habitat is found at high eleva-
tions. A view of Annette Island from a distance shows the bare rock to
be a dominant feature of the mountains, more so than in most of the islands
of Southeast Alaska. Purple Mountain, Bald Ridge and Tangas Mountain all
stand out with their vast rock outcroppings.

Closer inspection reveals that these areas are not truly barren, although
their vegetative cover is quite limited. Mosses and lichens grow on some
of the rock, with heather, mountain hemlock, and occasional herbaceous
plants inhabiting cracks in the rock. These areas have no value for timber
production.

The sparse vegetation provides little in the way of food or cover for
wildlife, although some of the species using alpine meadows also venture
onto the bare rock. The steep slopes, lack of soil, cold climate and access
problems limit human use of these areas to biking and climbing.

FORESTS

Extending along the coast from northern California through Southeast Alaska,
the coastal mist temperate coniferous forests are among the most impressive
in the world. Comwnly called rainforests, they are dominated by several
coniferous species which reach epic proportions in terms of height, diameter,
age, and most importantly, productivity (Franklin and Dyrness, 1973). All
along the coast they produce valuable timber, supporting the forest products
industry. When properly managed, they also provide habitat for wildlife,
protection for watersheds, and recreation for people.

Forest Vegetation

on Annette Island, as elsewhere in southern Southeast Alaska, the dominant
tree species are Sitka spruce, western hemlock, and, on wetter sites, western
red cedar. Annette Island's forests are typical of the region in their
understory species as well. Blueberry, red huckleberry, devil's club and
salal are common shrubs, while the ground cover is usually dominated by
mosses, grasses, bunchberry dogwood, and skunk cabbage. Mosses, lichens
and fungi also grow in profusion on tree trunks, rock outcroppings, and
fallen logs. These epiphytes and the accompanying bacteria are important
in decomposing the logs and recycling nutrients into the soil for use by
new trees,

Forest Wildlife

At lower elevations! the forests provide year-round habitat for red squirrels,
deer mice, and red-backed mice, which feed on the seeds of the coniferous
trees. Among the insect-eating mammals are the dusky shrew near stream beds
and the common shrew in the more well-drained forests along the shoreline and

on steeper slopes. Flying squirrels inhabit the hollows of the old-growth
conifers, although their nocturnal habits make.than inconspicuous to the
observer. Mink utilize the forest near the shoreline in the winter, when
they require cover after feeding on the beaches. River otter possiblyause
the forests near larger streams and estuaries for the same purpose.
Another mannal using the forests is the Sitka black-tailed dear. During the
warmer months, deer can utilize most habitats of Annette Island, from the
alpine meadows to the beachgrass along the shoreline. In the winter, however,
scarce food supplies, especially when acccmpanied by heavy snowfall, force
the deer into elevations below 500 feet. Even at these elevations, the food
supply is variable, and shortages of winter browse lead to mortalities
which control the deer population (Klein and Olson, 1960). Although open
clearcuts and muskegs have plenty of browse plants, they can be buried by
winter snow. Young, even-aged forests provide shelter from the snow, but
do not produce sufficient browse to maintain deer populations. Mature,
old-growth forests, however, provide both an abundance of browse (largely
huckleberry and blueberry) and potection from snow, and appear to be
critical to deer survival in the winter (Bloam, 1978).

Although deer hunting on Annette Island is quite common, there is no
effective management progran currently underway. Extensive hunting
apparently reduced deer populations in past years, particularly when the
Coast Guard was using the island. Since that time the deer population has
begun to rebound, but its status in the future will probably be closely
linked to the extent of low elevation, old-growth forest available as
winter feeding habitat.

Amcng the game birds using Annette Island's forest as habitat, the blue
grouse is most evident. Bald eagles nest in the old-growth conifers near
the beaches, with the close proximity to saltwater making this habitat
vaulable as a staging ground for the eagle's fishing forays. Other raptors
(largely predatory birds) appear to be very Limited on Annette Island. These
raptors include the redtailed hawk, sparrow hawk, short-eared owl and snowy
owl.

Songbirds are most abundant where the forest understory is dense, such as
along streambanks. In this habitat, the birds are attracted by the cover,
the berries on the shrubs and the insects. Among the most abundant species
are the black-capped chickadee, Oregon junco, andwinterwren. Summer
visitors include the yellow warbler and the orange-crowned warbler. As with
the deer-feeding habitat, this old-growth forest, with its partially open
canopy and growth of brush, is critical to maintaining -the populations of
songbirds.

Forest Productivity

Productivity is an important consideration in determining management policies
in light of the high cost of timber harvesting and processing in Southeast
Alaska. Although the coastal rainforests are among the most productive in
the world, the forests of Southeast Alaska are less productive than their
counterparts along the Washington, Oregon, or British Columbia coasts.

The climate of the region plays a strong role in limiting the productivity
of the forests. The heavy rainfall leaches inorganic nutrients. from the
soil, leaving organic material (leaves, twigs, etc.)as the main form of
nutrients in the forest soil. The cool climate also retards bacterial
decamposition of the organic materiall slowing the recycling of nutrients
into a form usable by the trees.1 The soil therefore is poor in nutrients
and the trees grow more slowly. The cool climate also directly affects
tree growth slowing the growth significantly below that in more moderate
climates. (Owston and Kozlowski, 1976).

Timber Resources

Like many communities of Southeast Alaska, Metlakatla depends on logging
and wood products processing for a large part of its livelihood. The
Reserve's natural tirrber resources are, however, fairly limited. Conse-
quently, much of Metlakatla's future well-being depends on its ability
to manage its limited timber stands and maintain and enhance its rather
tenuous position in wood products processing.

To aid in understanding the many factors which impinge on Metlakatla's tim-
ber and timber-utilizing activities, this section is organized into two
subsections. The first describes the Reserve's tirrber stands, including
extent, location, utilization and management considerations. The second
subsection describes Metlakatla's wood products processing activities, focus-
ing particularly on significant regional, national or worldwide trends
likely to influence Metlakatla's future.

Timber Extent and Location

Like most of the region, Annette Island appears fran a distance to have more
valuable timber than is actually present. A comparison with the rest of
Southeast Alaskal however, shows that the island averages even less timber
per acre than does Southeast Alaska.

of the entire land area on Annette Island, only 24%, or 21,172 acres is
classified as commercial forest land. (The remaining 76% includes non-
commercial forest, muskeg, lakes and exposed rock.) This figure is sub-
stantially less than the 33% of the s = ounding Tongass National Forest
which is classified as commercial forest land (USFS Landtype-Timber Task
Force, 1978).

Of the comercial forest land, however, 8062 acres are unloggable due to
steep slopes and access problems. Another 2388 acres could be logged but
their low volumes of timber (less than 1.5 million board feet per mile of
needed access road) make logging econcmically infeasible.

'The slow decomposition of organic material is demonstrated dramatically at a
site near Todd Lake that was logged in 1973. Five years later, the chips
thrown by the chainsaws remained intact.

An additional 6274 acres has been set aside as "Reserved" to protect
critical fish and wildlife habitats and recreation areas. Included among
this land are buffer strips along strearrus, lakes and estuaries, the timber
in the TcTngas Lake watershed, and small quantities of timber in the Crab
Bay and Kwain Bay watersheds.

The rEmaining 4348 acres (about 5% of the land area of the island) constitute
the reserve's inventory of operable comwxcial forest land. Most of this
land lies in the northern half of the island, to the north of Trout Lake.
Fairly large blocks of timber rEmain in the areas of Trout Lake, Triangle
Lake, Nubbins Mountain, Bingo Mountain and Driest Point. Over half of the
operable forest, or 2190 acres, has already been logged or is involved in
the current Trout Lake timber sale. Thus, the Ccmmrdty now has 2150 acres,
only 2.5% of the island's area, with operable marketable timber rema ini ng
on it.*

Table 6-1, below, ccrnpares the extent of forest land of the Annette Islands
Reserve with that of the surrounding Tongass National Forest.

Table 6-1

Extent of Forest Land

Annette Islands Tongass National
Reservel Forest2

acres M acres M

Commercial Forest Land 21,172 24.4 5,036,753 32.9
Loggable 4,348 5.0 4,079,358 1 26.7
Loggable, but uneconomic 2,488 2.9 Undetermined3
Reserved 6,274 7.2 Undetermined4
Unloggable 8,062 9.3 956,868 6.3

Non-commercial Forest and
non-forest 65,569 75.6 10,283,282 67.1

TOTAL AREA 86,741 100.0 15,284,227 100.0
IFrom: Annette Island Timber Operating Plan, 1979.
2From: USFS Landtype-Timber Task Force, 1978.
31, Loggable" in national forest, includes areas which require non-standard
harvesting methods.
4Reserved areas pending decisions on TLMP, RARE 11 and (d) (2).

Presently, not enough data are available to calculate estimated volu-nes for
stands of timber. Consequently, quantities presented here are by acre rather
than volune.

FIGURE 16c

COMMERCIAL TIMBER A1AI1A.ILIT1

Loggable

Spi 1. and L gy d
Loggable but uneconomic
UnIogq:bIe
Reserv d
441.@ .11,01

Sylburn 'Tri nq1
Harbor

Hem Island

Hemlock Island

Port Chester

Metiskatla
Cd C5;::z,
C12
Cheet- Tke

Crab Bay

IIIPI@ -k,
sro.ggle, Ce 4) Kwain Bay

Annette T-q.. @k.

Canoe C e

PLIN,

I 1 0 1 2 3 4 5 -LEI
POIXT DAVISOo ia
1 .5 0 1 2 3 4 5 X1,0.E1R.S
N

PLANN90, INC.
Annette Islands
Coastal Zone Management Program

Timber Management

Prior to 1966, the only timber harvesting on the island was small-scale,
community-operated cutting. In that year, however, the Community persuaded
the BIA to initiate a program of forest managEment on the island and to
allow commercial timber harvesting. The BIA prepared a Timber Operating
Plan, required by federal law before timber could be harvested, but the plan
was never ratified by the Community Council.

The Operating Plan made some assumptions about timber values and logging
costs which are now considered by the Community's,Natural Resources Center
to be imprudent and unwise. It assumed that almost all acreage with sizeable
timber would someday be economical to log, and should be included in the
annual cut calculations. This assumption led to detexmination that the
annual cut on Annette Island should be 265 acres. The plan failed to provide
sufficient protection for fish and wildlife resources, gave little mention
to such timber stand improvement activities as thinning and reforestation,
and did not address harvest, production and marketing strategies which would
increase Community income and Ernployment.

In 1976, the BIA forester on Annette Island worked with the Annette Natural
Resources Center to recompute the annual allowable harvest and rectify some
of the original plan's shortcomings. They redefined the ccamercial forest
land into three categories: loggable; unloggable, and reserved. By their
methods, the annual cut was computed to be 116 acres. This effort laid the
groundwork for the Annette Island Timber Operating Plan (now completed).

The present operating plan was written by the Annette Natural Resources Center
staff in 1978 and 1979. It further divided the land base into five categories,
adding the classification of "loggable but non-econornic." A long@range logging
and land-use map was prepared for the whole island, whereby Timber ManagEment
Areas were delineated from Special Use and Multiple Use Areas, and potential
logging roads were located.

The new plan was even more conservative than the 1976 effort in determining
loggability (using economic feasibility criteria) of the island's forests.
A recovery rate of 1.5 mill-ion board feet per mile of road construction was
established as the minimum. volume necessary to produce an econcn-Lically feasi-
ble logging operation.

The other major change in this plan was the deletion of the Crab and Kwain
Bay Logging Units. A number of tentative logging plans were considered,
but none was found which could adequately protect the fish and wildlife
resource and still be economic. With these deletions and logging criteria,
the annual cut was calculated to be 53 acres.

Because 2190 acres were harvested in the first 13 years of the cutting cycle,
the annual harvest for the remainder of the cycle (until the year 2046) will
be reduced to an average of 33 acres. If economic conditions and logging
technology should change sufficiently to allow harvest of the "loggable but
uneconomic" land, this allowable harvest would nearly double.

The new Timber Operating Plan is more inclusive than past plans, and being
locally prepared more accurately reflects the interest of the Community as
well as those of sound forest managenent. It discusses all major forestry

issues, ranging from timber harvesting and road building to forest products
processing and marketing, from timber stand improvement to beach salvage
and forest technician training. An extensive review and critique process
is now underway. Further modifications and updates will help keep the plan
current and viable.

Enhancement and Timber Stand Improvement

Most of the timber on Annette Island is in old-growth spruce-hMlOCk forests.
Growth in these stands is slow, and, in some cases blowdown and decay exceed
growth. Most of the mature trees are infested by dwarf mistletoe, a para-
sitic plant which slows growth and can directly or indirectly cause tree mor-
tality. Disease and insects also impair the productivity of the forest.
Leaving decadent trees unharvested can result in a loss of timber and can
lower the eventual stumpage rates for that timber. The defects and loss of
timber in old-growth forests suggest that, to strictly maximize timber
yields over the next few years, a policy of accelerating the harvest might
be desirable; however, as mentioned above, the extent of the commercial
forest resource is not great, and policy decisions must include consideration
of the amount of available timber.

Improvement of the timber stands, therefore, will likely revolve around
practices other than merely reducing the inventory of old-growth forest,
as is done elsewhere in the region. Among the activities, being explored
are thinning and planting. While these activities might not be economically
feasible in much of Southeast Alaska, BIA assistance is supporting them on
Annette Island in hopes of developing a more productive forest resource.

A stocking survey of a 1972 clearcut revealed that natural regeneration was
inadequate. Spruce cones were collected for nursery seeding, and 35,000
seedlings were planted in this clearcut in the fall of 1979.

The forestry program will also conduct a thinning experiment on 24 acres
of Hemlock Island. Growth response will be recorded and aimed at developing
managment prescriptions.

USE OF RESERVE TIMBER RESOURCES

Until 1967, there was little ccomercial harvesting of the Reserve's timber.
Some timber was harvested and processed in a small Community-operated saw-
mill to provide materials to build the town, but large-scale commercial
logging did not begin until 1967. In that year the BIA sponsored the first
of four timber sales the last of which was completed in 1976. These sales
accounted for the logging of about 1,701 acres of forest land. An additional
340 acres are currently being logged in the Trout Lake sale. The four
completed sales yielded total receipts of $2,112,910, of which at least
90 percent is returned to the Community by the BIA. (The remainder is used
by BIA for management.) These figures are summarized in Table6-2.

Much of the timber harvested on the reserve has been sold as round logs to
Japanes biryers. Timber cut on the reserve is not subject to an admini-
stratively imposed restriction on export of unprocessed round logs which
is applicable to timber harvested in Tongas Naticnal Forest. Due to Japanese
preference, round logs typically fetch a much higher price per unit of
volune than do cants; hence, much of the reserve's cut is exported "in the
round' . Lower grade logs unsuitable for export axe typically sold to
Ketchikan Pulp Cxnpany (now Louisiana-Pacific, Inc.) for processing into
pulp.

Table 6-2

Annette Islands Timber Sales
Past, Present and Future

Calendar Logging Acres Years Acres Volume Volume
Year Unit Per Year Per Year
POST AND PRESENT SALES (MMBF) (MMBF)
1967 - 1971 Hemlock Creek &
Todd Lake 687 5 137 25 5
1972 - 1974 Annette Bay 955 3 328 29 9.7
1976 - 1977 Chenango Mtn. 208 3 104 7 3.5
1979 - 1982 Trout Lake 340 4 85 13 3.3

TOTALS TO DATE 21190 137** 74 5.4

FUTURE SALES
Triangle Lake &
Annette Bay 895 NA NA NA NA
Red Mountain 765 NA NA NA NA
Cascade Lake 166 NA NA NA NA
Davison 278 NA NA NA NA

TOTAL FUTURE SALES 2,104 65 32.4 69.4 1.07

Estimates Average

NA - Data not available

Source: Annette Natural Resources Center, 1979

Wood Products Processing

one of -the major economic activities in Metlakatla, as in several other
souteastern communities, is wood products processing. This section
describes local and regional aspects of this activity.

Regional Perspective

Although Southeast Alaska has a major timber industry, it supplies only
a small fraction of wood products in the Pacific Rim area. The industry's
develognent has been strongly influenced by state and federal policies,
and is heavily dependent on Japanese purchases for its economic well-
being.

The region's comercial timber industry began with the building of the
Russian colony at Sitka in the early 1800's. Local timber was used to
provide materials and fuel for local shipbuilding, a foundry and building
construction. The first sae-nill in the region began operations in 1833.

With the purchase of Russian claims to Alaska in 1865, control over south-
east Alaska's timber resources-shifted to the U.S. government. The ccnt--
mercial lumber and wood products industry continued to grow, although tim-
ber cutting for camercial purposes was then illegal.

In 1902, the U.S. Congress established the Alexander Archipelago Forest
Reserve (now the Tongass National Forest) (Harris, 1974). The U.S. Depart-
ment of Agriculture (USDA) was given a mandate to manage the forests to
maximize a broad range of national objectives related to employment, price
stability, economic efficiency, foreign relations, small business, economic
growth and development, ccmmzdty stability and national security. (Darr,
1977).

In 1926, the U.S. Congress passed legislation giving the USDA discretionary
power over export of timber from the national forests of Alaska. Harris
(1974) noted:
The departments position was clarified in 1928 and remains generally
in effect today that primary manufacture of timber from National
laska is required so as to insure the development
Forest lands in A
of a stable, year-round industry. (Emphasis added)

This policy has substantially determined the development of Southeast Alaska's
timber industry. The U.S. Forest Service, (USFS, and agency of USDA) has
determined that "primary manufacture" means that round logs must be cut
into lumber with a maximum thickness of 8 3/4 inches. (There are no length
or width maximums.) Typically, the lirber is processed on two sides, leav-
ing the "wane" on the edges of the lu-aber. Waney lumber, commonly called
cants, may then be sold to foreign or export markets.

Prior to distribution of lands to village and regional Native corporations
under terms of the Alaska Native Claims Settlement Act, the Tongass National
Forest encampassed about 90 percent of all timber inventory in Southeast
Alaska, so nearly all the timber was subject to the primary manufacture rules.

Under USFS encouragentent, pulp and paper mills were built in Ketchikan
(1954) and Sitka (1960) to provide a market for low grade timber. Fifty
year allotnents of USPS timber were set aside to provide a steady source
of supply to the two mills.

The Southeast Alaskan timber industry is presently dominated by two
firms (Louisiana Pacific, Inc. and Alaska Pulp Company) which control
directly or indirectly about 90% of the timber harvested in the region.
Further, these two firms depend heavily on exports to Japan to sell much
of their output.

Other USFS timber is sold on a competitive bid basis, but the two firms
exercise defacto control over this source of supply, also. Slightly under
two-thirds of the timber purchased by these two firms in 1974 came from
the USFS long term sales allotments. The remainder of the logs purchased
came from independent (primarily USFS) timber sales. overall, these two
firm purchased over 96% of available timber supplies in 1974. (See Table6-3)
(Darr, 1977).

By controlling the source of supply, these two companies also have dis-
cretion over how timber is used. Normally, higher quality timber is routed
to Cantmills (scme of which are owned or operated by these same companies),
while lower quality timber goes to the two pulpmills. In 1974, slightly
over half of the harvest controlled by the two firms went to the two pulp
mills, while the remainder went to cant mills. (Darr, 1977).

Table 6-3

Log Flows in Timber Market of Southeast Alaska
1974

Quantity Percent of
Purchaser/Use (1, 000 MMBj Amount Harvested

Louisiana Pacific, Inc. 1,162.4 50.5
Volume used for pulp 672.7 29.2
Volume used for cants 489.7 21.3

Alaska Pulp Company 1,055.1 45.9
Volume used for pulp 510.5 22.2
Volume used for cants 544.6 23.7

Volume in Other Uses 82.4 3.6

(Unused Volume (Not Harvested)) (1,324.1) -

Total Volume Available 3,624.0 -

Total Volume Harvested 2,299.9 100.00%

Source: Darr, 1177,

Much of Louisiana Pacific's pulp production has gone to U.S. domestic mar-
kets, while Alaska Lumber and Pulp CcMpany's production has been sold to
Japan. Practically all cant production, in addition to a small volume of
unprocessed round logs from non-USFS lands, is sold to Japan. (Darr, 1977).

After arrival in Japan, almost all the cants are processed further into
lumber. Ultimately much of the lumber is then used for construction,
packaging and manufacture of furniture and fixtures. The US, USSR, Canada
and New Zealand are the primary suppliers of Japan's log imports. Alaskan
cants, however, supplied only about one percent of total lumber consuned in
Japan in 1977. (Darr, 1977).

Another reason why the USFS primary manufacturing rule is important is that
Japanese purchasers of wood products have a decided preference for round
logs as opposed to cants. Under current conditions, owners of timber stands
can realize an average of 15 to 25 percent more revenue for a given volume
of timber which can be sold as round logs as compared to a similar volume
which must be processed prior to export. This differential presents a
powerful incentive to private landowners. Based on this incentive. if the
USFS policy were changed or significant stands of timber were exem-pted
fran the primary processing requirement, the shape of southeast Alaska's
timber industry could be substantially changed. Table 6-4 summarizes likely
timber ownership patterns following conveyances pursuant to the Alaska
Native Claims Settlement Act and Alaska Statehood Act. As the table indi-
cates, roughly 10 percent of the productive forest lands will soon be under
private control.

Local Perspective

The largest single eniployer on Annette Island is Annette Hemlock Mills,
operated by Louisiana-Pacific, Inc. The company has leased this Corrmunity
owned sawmill since 1971, which was rebuilt in 1969 to replace an earlier
mill destroyed by fire. Presently, the will cuts hemlock cants for
shipment to Japan and sends chips to the Ketchikan Pulp Mill, another
Louisiana-Pacific subsidary. The mill usually operates on two shifts,
and in 1973 employed an annual average of 120 persons to process 71 million
board feet of timber and about 26,000 tons of wood chips. The mill is
supplied by logs harvested by Louisiana Pacific fram national forest
land on Prince of Wales Island under the 50-year timber sale. Logs are
rafted to the mill fram Louisiana Pacific's logging camp at Thorne Bay
on the east side of Prince of Wales Island.

In Metlakatla, as elsewheref wood processing is extremely sensitive to
domestic and Japanese demand for forest products, which themselves vary
greatly from year to year. For example, between 1972 and 1975, employment
in Alaska's lumber and wood products industry dropped by 29 percent
nearly one-third--after having steadily increased since 1965. (Ruderman,
1976). This decline was strongly felt at the Annette Hemlock Mills, where
employment dropped by over one-half for several years. This downturn was
in large part responsible for Metlakatla's high unemployment of the past
few years.

man" mmmmmm IWIM mmew mmmmm

Table 6-4
Estimated Timber Availability in Southeastern Alaska
by Ownership Category

Maximum Potential
Productive Forest Volume of Standing Timber Sustained Yield Per Year
Category of Ownership Acres Percent MMBF Percent MMBF Percent

State of Alaska 84,000 1.5% 2,000 1.5% 20 1.5%

Lands to be Conveyed
to Regional and Village 500,000 9.0 11,250 8.4 150 11.1
Native Corporations

Tongass National Forests
(after Native and State 4,950,000 89.4 120,000 90.1 1,180 87.4
Selections)

TOTAL 5,534,000 100.0% 133,250 100.0% 1,350 100.0%

Willions of board feet, Scribner Scale

Source: Glass, 1978.

Presently, annual average employment in logging and forest products process-
ing activities totals about 82 jobs. The employment level varies seasonally
due primarily to winter shutdowns in logging rathern than processing activi-
ties. The estimated peak summer employment is about 25 percent higher than
the lowest employment level in winter.

The Community has several areas of concern regarding wood products processing
activities. First, over time, lumber and wood products plants have tended
to Employ fewer workers as equipment and methods have improved. (Wall and
Oswald, 1975) Thus, maintaining existing employment levels will require
either expansion of the existing sawmill, or the initiation of new process-
ing activities such as the construction of a small log mill, shake and
shingle mill or veneer plant.

Second, reliance on a single large employer or major industry tends to result
in relatively large fluctuations in community employment. Unfortunately,
since most of southeast's supply of raw material is controlled by two fi rms ,
who themselves exercise very little control over the price, timing or quan-
tity of products that they sell, little can be done to ease this situation
aside from diversifying the types of activities the Czmmz-iity pursues.
Establishment of new processing activities, using either on or off-island
sources of supply, will aid this situation.

Finally, changes in ownership of southeastern Alaska's timber resource may
have a significant downward effect on employment and inccme resulting from
timber harvesting and processing activities.

Since many of the newly conveyed private lands have old growth stands of tint.-
ber, econcmic incentives would dictate that these timber stands be harvested
more rapidly than the maximum sustainable yearly harvest.

A recent analysis of this question concluded that if private landowners
(principally Native corporations) harvest their timber on a moderately accel-
erated basis (about 50 percent increase in volume over sustained yield levels),
cant manufacturing employment would probably drop by about 10 percent in
southeast Alaska. This drop would occur because Mre logs would be sold in
the round, resulting in less employment in both cant and pulp manufacturing.
(Glass, 1978). Further, the increase in round log exports associated with
private harvesting could cause the price of round logs to drop by ds much
as one-half. (Darr, 1977).

Unquestionably, such an occurrence would have serious consequences in Metla--
katla. Annette Hemlock Mill employment might drop, and Community inccme from
timber sales would likewise be seriously affected.

There are several reasons, however, to believe that the magnitude of the im-
pact will not be as great as this. First, Annette Hemlock Mill employment
is, for the present, closely tied with production at the Louisiana Pacific
pulp mill operations at Ward Cove near Ketchikan. Most of the logs supplying
the mill are harvested under the 50-year USFS timber sale agreement with
Louisiana Pacific. Since much of the timber harvested is of a higher grade
than that normally used for pulp manufacture, since this tinber must be manu-
factured in same way prior to export, and since cant manufacturing represents
the highest possible financial return to Louisiana Pacific, cant manufacturing

is likely to continue at near normal levels at the Annette Hemlock Mill
(long-term sales from the USFS account for about two-thirds of Louisiana-
Pacific's pulp needs).

Thus, the presence of fairly structured supply and sales chains precludes
the impact of increased private logging on cant manufacturing employment
to be overly great. In addition, if Puget Sound cant markets develop
(as they may), the overall impact might be negligible or even positive
for Metlakatla.

The effect of increased private logging on stumpage rates received by
the Community may also not be as great. Since many Native corporations
have indicated a desire to use their harvesting of timber as a means to
maintain or establish local processing employment, round logging exporting
my not be as great as possible. In addition, overly rapid harvesting
and export as round logs, and its resultant price decreases, would affect
private landowners just as severely as it would the Camunity. overall,
it is likely that private harvesting and round log exporting will increase
over the next decade, leading to scmewhat depressed timber stumpage prices,
followed by decreased harvesting levels and higher prices in the 1990's.
Policies designed to address these issues are listed in Chapter 9.

Recreation Areas

Annette Island provides its residents many opportunities for outdoor recrea-
tion. Hiking, fishing, hunting, boating and camping are just a few of the
activities engaged in. The areas where these activites take place are
spread throughout the island, however, the areas close to Metlakatla or
accessible by road receive the most use.
These activities are undertaken with little or no facilities such as picnic
tables, campgrounds, or maintained trails. While this lack of facilities may
not lessen the enjoyment of the user, in scme instances it leads to damage
of the area being used. without such minimal facilities some areas cannot
sustain even a moderate amount of use. Such overused areas are characterized
by ccopacted soils, damaged vegetation and litter. Damage to areas frequently
used by the residents of the island can be lessened by redesigning and
developing them, if only to minimum standards. A few minor efforts would not
only improve the ease of use but would protect the environment.

The following discussion describes several recreation areas in and around
Metlakatla and suggests possible improvements for each. These areas are
numbered for location in Figure 17.

SKATERS LAKE (1)

Located on Airport Road, just south of Metlakatla, Skaters Lake has tradition-
ally been used for recreational purposes. The 14-acre lake is fed by muskeg
drainage from the west. Its outflow is carried under Airport Road in a cul-
vert and eventually reaches Port Chester. Due to several barriers and con-
tamination, the lake no longer supports spawning salmon. A new source of
contamination is the recently-developed bark dump located just across Airport
Road from the lake. Chemicals leached from the bark find their way to the lake,

lowering the quality of the water by consuming oxygen and coloring the
water brown. Also impacting the lake are the roads in the hTmediate area
which block the drainage feeding the lake. Less water reaches the lake,
and both its water quality and its size have been reported to be reduced.

During the last year the Camunity obtained funds fran the State and de--
veloped a trail on the northside of the lake. The trail runs from Airport
Road and winds its way through lodgepole pines and muskeg to the extension
of Skaters Lake Road. With this developed access, the lake and environs
is receiving much more use, acccopanied by management problems. These
problem include littering, ccnipaction of soils near the trail, and impair-
ment of some of the lakeshore access points.

These problems can be solved by providing facilities such as litter contain-
ers, picnic tables and benches and developed shoreline access. An overall
master plan could incorporate these and other elements, along with a
scheme to fund, construct and maintain the area.

WESTERN AVENUE SHORELINE (2)

This strip of shoreline along Metlakatla's western boundary is historically
significant to the Cmmunity. It was here, in 1887, that the first party
landed to establish the town. This shoreline starts at Atkinson Street and
runs west for approximately 3000 feet to the site of the new small
boat harbor. Recent developments in this area include the Senior Citizens
Center and the Longhouse.

The Camunity has an opportunity to provide park and recreation facilities
for the residents and at the same time create a link between the comiercial
core area andthe new boat harbor. Small picnic and sitting areas, play-
grounds and sites for Ccnumnity-oriented structures could be incorporated
in this develognent. By utilizing existing vacant lots, removing dilapidated
buildings, and cleaning up debris along the street and beach, the Community
could create a low-cost, high-public-use area. Necessary to the realization
of this concept is an overall phased site development plan locating features
and suggesting a variety of landscape treatments and land uses.

YELLOW HILL (3)

Yellow Hill is a dominant feature to those traveling along Airport Road. Approx-
imately two miles from Metlakatla, the hill covers an area of 100 acres and
is cmrposed of iron-laden dunite, resistant to glacial advance, but rounded
by wind and water erosion over the centuries. The view from the top is a
spectacular panorama of the Metlakatla. Peninsula. The hill has a great
potential for rock-climbing and hiking, and with little effort the necessary
facilities could be developed. Such inprovements as a defined parking area,
a signed trailhead and litter containers would be most desirable for this
area.

POINT DAVISON (4)

Located at the southerrmst tip of Annette Island, approximately 10 miles
south of Metlakatla, Point Davison juts into the waters of Clarence Strait.
The point is a scenic caubination of rock outcroppings, and windswept trees

FIGURE 17 -

Recreation Areas

Locally Accessable
Spire, Island
0
0 Remote

Todd @ke a sex'

Sylburn
Harbor

Hw Island

Heralock Isl

16
'Port Chester

Metlakatis

Ch@

Bay
(( a3--@
Cq1 'an'. 'n"",
Snauggla" 604e Kwi. Bav

9
Mott T. @k.

ta .0

CRVY POTM -2111

OSS POMT
so 6,z3 At
SSXTA@ POINr

4 0 1 2 3 XXLES

v 1 .5 1 2 3 4 -5 KMO.MRS

PAUNC RIM
vz=- Annette Islands
Coastal Zone Management Program

with pockets of meadow grasses and shrubs. During World War II, Point
Davison was used as a gun emplacement and bunker for defense of the mili-
tary installation on the island. Concrete foundations and scattered debris
are all that remain of this occupation.

This area is used by the residents of the island for picnicking, fishing and
shellfish gathering. Because of the remoteness of the site and the lack of
facilities, management problems such as littering and vandalism are evident.
With the introduction of some relatively minor facilities, the site has the
potential to beccme a quality day-use area. Minimum improvements would
include upgrading the access road and parking area, picnic tables and shelters,
and trash containers. Once developed, the area would require periodic main-
tenance,

CHESTER LAKE (5)

Chester Lake provides drinking water for Met.lakatla. Located east of the
town and 825 feet above sea level, the lake also has hydroelectric potential,
as described in a recent feasibility study. (Retherford, 1976). A board-
walk and trail system provide access to the lake, from the lake's outlet,
is a commanding view of Metlakatla, Port Chester, Nichols Passage and Clar-
ence Strait.

The scenic quality of the lake and its closeness to Metlakatla suggest a
likely area for development of recreation facilities; however, because this
lake is the Commmity's drinking water supply, contamination must be avoided.
Presently there is no control of access to the lake, and developing facilities
would encourage more use. Closing the access to Chester Lake and allowing
only authorized entry for maintenance of the trail and the water system would
certainly minimize the danger of drinking water contamination.

CANOE COVE AREA (6)

Canoe Cove, located on the western side of the Metlakatla, Peninsula, is one
of the most scenic areas on the island. About seven miles from Metlakatla
by road and trail, it provides excellent fishing and shellfishing. Access
to the cove is along a gravel road ending at a trail which winds its way
to the water. Recently the cove was studied as a possible site to land log
rafts for transport to a log storage area at the airport and finally to the
Annette Hemlock Mill in Metlakatla. This proposal has not been acted on.

Little is needed to improve Canoe Cove for the recreationist. Periodic
grading of the road and repair of the trail system's boardwalk would improve
access. other development in Canoe Cove might include picnic tables, fire
pits and litter containers however these are not a high priority due to
the uncertainty over Canoe Cove's future. Canoe Cove is proposed as an
Area Which Merits Special Attention. (See Chapter 9).

SMUGGLER'S COVE (7)

Accessible via a short unpaved road off the airport road, Smuggler's Cove
offers the user a sheltered sandy beach with a panoramic view of Clarence
Strait, with Dall Head to the northwest, and the mountains of Prince of Wales
Island in the distance.

This site is popular among Metlakatlans for picnics and beach parties. Its
proximity to town and lack of facilities, however, have led to heavy accu-nu7
lations of litter. This area would benefit considerably frcrn the addition
of litter containers and picnic tables.

TAMGAS HARBOR BEACHES

Several beaches on the west side of Taingas Harbor are frequently used for
recreation and subsistence shellfishing. Perhaps the most popular is Hospital
Bay (8), along Tamgas Harbor Drive. The area frorn the boat dock to the
Tamgas Apartments (9) is also a heavily used beach. The head of the harbor
(1) and Moss Point require travel on scrnewhat longer, less maintained roads
for access, and are used less intensively.

REMOTE AREAS

Flor those with access to a boat, the reserve offers miles of beach and uplands
for picnicking, shellfish gathering, hunting and hiking. Among the favorite
remote picnic areas are the wall islands offshore of Metlakatla (16), the
mouth of Tain Creek (13), Japan Bay (18) and Cowboy Camp (14). Purple Lake
(17) and Tamgas Lake (11) are also popular, both requiring a hike up from
the east shore of Tamgas Harbor. Flor the more adventuresome, Taugas Mountain
(12) lies beyond the lake, and can be climbed on a one-day hike. Even more
remote is Crab Bay (15) frequently used for overnight boat camping, crabbing,
and hunting.

These areas are subject to less use than those with road access, and therefore
require little or no facilities or improvEments. Protecting their natural
amenities through buffer strips, etc., will help maintain their value as
recreation areas for the Ccmnunity.

CHAPTER 7
FRESHWATER RESOURCES
AND HABITATS

Perhaps more than any other cariponent of the envirormL-nt, the flow of
freshwater intertwines the resources of the Annette Islands Reserve.
Fran clouds blown in from the Pacific ocean, it falls as rain, dripping
from the branches of the trees, nourishing the forests, and flooding the
muskegs. Seeping downhill through the soil it emerges to the surface
slowly trickling, joining other trickles to form a creek. Where several
creeks flow together, they fonn one large stream, cutting at its bank on
one side, and building it on the other, changing the shape of the land
and carrying sediment downstream. The stream also carries nutrients frcin
the soil as well as leaves, twigs and other material used as food by
insects, which in turn feed fish. Young sahnon use the streams to swim
toward the sea and the adults return to the streams to spawn the next
generation. otter, mink, and other wildlife feed -on the fish where the
streams flow through the forest. As it opens into the marine water, the
stream provides food for eagles, herons, and a variety of waterfowl.
This chapter reviews scme characteristics of Annette Island's freshwater
resources and habitats, and discusses their present and prospective uses.
Groundwater

Although Southeast Alaska receives heavy precipitation, and surface run-
off is extensive, groundwater suitable for municipal water supplies is
elusive. The geology of the region is largely responsible for the
difficulty in obtaining groundwater. The same impermeable igneous and
metamorphic bedrock that causes rainwater to run off the surface of the
land also hinders the development of large supplies of groundwater.

In the mid-1960's researchers drilling test wells on Annette Island found
only small amounts of groundwater available in bedrock, largely from
fractures in the impermeable rock. Recharge of groundwater into these
test holes was slow, and continuous pumping led to an increase in chloride
content of the water, believed to be caused by seawater intrusion
(Marcher, 1971a). This chapter reviews scme characteristics of Annette
Ialand's freshwater resources and habitats, and discusses their present and
prospective uses.

A more prca-Lising source of groundwater, detected in related research,
is the beach uplift formations around the perimeter of Mst of the
Metlakatla Peninsula. These sand, gravel and clay deposits, ranging up
to 500 feet in width from the shoreline and up to 33 feet in depth, are
described by Marcher (1971b) as receiving regular but slow recharge frcin
the island's abundant precipitation. They could probably be developed
into groundwater supplies using horizontal infiltration galleries, although
their proximity to the surface suggests that areas surrounding the
infiltration galleries should be protected from pollution to avoid
contaminating the water supply.

Streams

At least 64 streams drain Annette Island. These streams range in size
from small trickles, unnamed but flowing throughout the year, to the
rushing cascades of Tamgas Creek, now the site of the salmon hatchery.
While some of the larger streams are known to teem with salmn during
spawning season, the smaller undocumented creeks also produce salmon
and cannot be ignored in the Community's resource management efforts.

STREAMFLOW AND WATER QUALITY

The suitability of a stream as habitat for fish and wildlife as well as
its ability to transport sediment, nutrients, and organisms depends
on a number of physical and chemical properties. Perhaps most important
in determining the character of the stream is its flow rate, although
related properties such as temperature and dissolved oxygen are also
critical.

Flow Rates

The rates of streamflow fluctuate greatly from stream to stream, and
from season to season. Although the size of both the streams and the
watershed varies, the streamflow appears to exhibit a pattern, which
can be illustrated by the following graph (Figure 18) developed by the
U.S. Forest Service fr(xn studies of a number of Southeast Alaskan Streams.

As the graph shows, streamflow is at a fairly low level in the ea ly
months of the year, as precipitation is locked up on snow in the moun-
tains. (Streams draining primarily lcw@elevation watersheds would show a
higher discharge in the winter.) In the spring, as temperatures rise
and the mountain snowpack melts, the streams grow steadily, fed by both
the snowmelt and the continuing rain.

After May or June, precipitation generally falls off, and with the
snowpack nearly or completely gone, the streamflow decreases drastically.
occasional summer rains create short-term increases in the flow of some
streams, particularly in the watersheds that lack muskegs or lakes to
hold this water for gradual release. Streams originating in these
watersheds respond rapidly to even short rains or short dry spells.

Figure 18

Generalized Pattern of Streamflow In
Southeast Alaska

AVERAGE
FLOW RATE
44

I t

J F M A M J J A S 0 N D
MONTH

JAdapted from: Schmiege, Helmers, and Bishop, 1974)

The return of the rainy season in Septem-ber and the storms later in the
fall swell the streams to their heaviest flow of the year. This increase
continues sharply throughout the fall, until the cold temperatures
once again freeze the water and lock it in the mountains for the winter.

Water Chemistry

Like the streamflow, the physical and chemical properties of the water
vary with the seasons and with the stream. Only a limited amount of data
on water chemistry in the island's streams has been collected by PRPI
and the U.S. Fish & Wildlife Service. Although this is too little data
to draw any conclusions or to recognize trends, a general discussion of
stream characteristics, particularly with regard to the requirements of
salmon, suggests that the stream chemistry is consistent with the needs
s
of good a.1mon habitat.

The temperature of a stream follows seasonal trends similar to that of
the air temperature, but with a much narrower range. The flow of a
stream moderates the effects of the summer's heat as does the shade
provided by thick forest vegetation; a fast-flowing stream shaded by the
forest is likely to be cooler in summer than a slower stream in a
cleared area. For optimLzn growth and survival of salmonids, water
temperature should range from 400 to 570 F. (90 to 140C.) and should not
exceed 62' F. (160C.) (Bell, 1973). Of the limited stream data avail-
able; there are no records of a stream exceeding 620F., although the
upper limit of the optimum range has been exceeded both in large, fairly
swift streams and in small, sluggish streams. There is only one record
of a stream colder than the lower limit of the opt-knun range, but most
of the data so far have been collected in spring and summer. Very likely
the streams do get cooler than ideal for growth of fish in winter.

The water's pH (or acidity-alkalinity) also affects it suitability for
fish, in part by affecting the way various dissolved chemicals act on
the fish. Bell (1973) gives a pH of 6.7 to 8.3 as the range "ih waters
where good fish occur." On Annette Island several streams have been
measured as having a lower pH (more acid) than 6.7. Very likely the low
pH of the water is caused by tannic acid leached from muskeg peat.
This tannic acid also gives the streams their characteristic clear brown
color. whether or not the acidity limits fish production in:the streams
is not certain at this time but the possibility must be considered before
any efforts are devoted- to stream enhancement.

Dissolved oxygen in the water is another critical factor determining its
carrying capacity. Bell (1973) states that for salmonids the dissolved
oxygen should not drop below 5 parts per million (ppn) and should exceed
7 ppm in spawning areas. Dissolved oxygen is related to the streamflow,
since a rapidly flowing stream is usually well aerated. Temperature also
affectsthe stream's 'dissolved oxygen content; cold water is capable of
holding more oxygen in solution than is warm water. Thus, in the summer,
when the streamflow is at a minimum and terffperature is at a maximum,
the streams dissolved oxygen content is usually reduced. Data available on
oxygen content of Annette Island streams are not sufficient to evaluate their
suitability for fish production; however, the smaller, slower streams that
flow through unforested areas may undergo serious declines in their dis-
solved oxygen content during the summer months.

STREAMBED MATERIAL

Most of the stream on the island cut through bedrock, and many faster streams
have streanibeds composed of bedrock or large boulders. Others slip quietly
through muskeg, and have streambeds of soft muddy peat. Neither of these
materials are suitable for salmon spawning.

Salmonids require a clean gravel streambed as spawning habitat. The proper
sized gravel is small enough so that the adult salmon can bury the eggs in
it, but large enough to have a great deal of void space, or interstices,
through which water can flow, providing the developing eggs with oxygen and
removing waste products.

The proper substrate is also essential for production of food organisms.
The food species which are most useful and available to salmonids are
those which cling to the surface of objects such as rocks or gravel,
vegetation, logs, etc. An ideal streambed substrate, therefore, is
composed of these materials, rather than of sand or silt which supports
organisms that burrow and therefore are not available as fish food.

Logging, road building and other soil-disturbing activities can have a
severe impact on a stream's ability to support fish by changing the
caarposition. of the streambed sediment. As soil is eroded frcm the surface of
steep slopes, or is lost in mass movement (Swanston, 1974), it is carried
into the streams where it settles out into the spawning gravel. When it
fills the voids in the gravel, it impedes the flow of oxygen-containing
water and kills the developing salmon eggs. Mortalities of salmon eggs
can reach 85% if 15 to 20% of the voids in the gravel are filled with
silt (Bell, 1973). The change in streambed substrate also affects the
food supply for young salmonids, reducing the clinging species, and
creating habitat for the less desirable burrowing species (Meehan, 1974).

FOOD SUPPLY IN STREAMS

As it does in the sea and on the land, the food in streams originates
in green plants, capturing energy from the sun and converting it to
organic material. Unlike its marine waters, however, Annette Island's
streams do not receive a great deal of sunlight, and aquatic vegetation
is sparse.

Overhanging trees and shrubs apparently provide a substantial portion
of the stream's food supply in rainforest areas. Material such as leaves
and twigs dropped into the strearn is processed into food by insert larvae
and other invertebrates, and by bacteria. The insect larvae feeding on
this material are available as food for coho salmon rearing in the streams
(Meehan, et al., 1977).

In those streams with adequate light, primary productivity (and therefore
food supply) may also be limited by the levels of dissolved nutrients in
the stream. For several reasons, mostly related to geology and climate
(and discussed in more detail in the section on lakes, following) the
streams' water is probably low in dissolved inorganic nutrients. Recent
experiments have explored the possibility of fertilizing streams to enable
aquatic algae to produce more food (Stockner and Shortreed, 1978.)
While the results appear to have some prcmise, any such methods would be
very costly. Retaining the trees and shrubs along the streambank
appears to be the most feasible method to ensure a food supply for fish
and other aquatic organisms.

SALMONID USE

Of the 64 streams on the island, 38 have been documented by the U.S.
Fish & wildlife Service as producing salmon, trout or Dolly Vaxden.
Thirty-two of these produce salmon, with or without cutthroat trout and
Dolly Varden, while six streams produce only cutthroats and Dolly Varden
(Figure

Twenty-eight of the 32 salmon streams produce pink and/or chum salmon,
while only 10 support coho. Pinks and chums usually migrate downstream
into the estuary immediately after they emerge from the gravel as fry.
The streams they use need sufficient flow and water quality only during
the fall, winter and sprinq. In the sumer, when flow is low and water
quality may be impaired, the pinks and chums are not present.

Coho, on the other hand, spend the first year of their lives in the
streams, and therefore require adequate streamflow and water quality
throughout the yea . Some of these are very small insignificant-appearing
streams, yet they are important for coho rearing. Maintaining the
integrity of the coho-producing stream is a high priority if the island's
coho runs are to be sustained or increased.

Sockeye salmon migrate through tuo of the island's streams, Tamgas Creek
and Lower Trout Creek (Tain Creek), on their way to and from their
spawning and rearing grounds in Tamgas Iake and Trout lake.

Lakes

Annette Island has some 20 alpine lakes of at least five acres in size,
along with many smaller alpine lakes and literally hundreds of muskeg
lakes ranging in size from large puddles to several acres. Although
they vary in appearance, these lakes share several characteristics which
have important implications for their management.

In general, the lakes are not very biologically productive. Nutrients
available for primary production are limited in quantity for several
reasons. Rainfall cannot percolate into the impermeable bedrock and
therefore cannot carry dissolved inorganic nutrients from the rock into
the lakes. The soil, as described earlier in this chapter, is also a
poor source of inorganic nutrients, and probably does not contribute much
in runoff to the lakes.

Organic material such as leaves, twigs, etc., is another possible source
of nutrients, but many of the alpine lakes (such as Chester Lake) lack
overhanging vegetation which would contribute organic material.
other alpine lakes (such as Tamgas Lake and Todd Lake) have overhanging
trees and shrubs, and most of the muskeg lakes have sedges, pondweed
and water lilies growing along their shores; however, the presence of
organic material in the lake does not necessarily lead to a fertile lake.
The cold water temperatures slow the deccniposition which converts the
organic material into usable nutrients in organic form. Decomposition
is probably slower in the higher elevation alpine lakes, but even muskeg
lakes nc-a sea level have thick deposits of peat -- organic material

FIGURE 19 -
Salmon Spawning
Streams and Lakes

Spire Island

C Chum

C co Coho

H Pink (Humpy)
Todd Lake
S Sockeye

Svlburn Tri-q-1
Hrbor, Lake

HM Island

C
Henamk island Lake
0
Trout Lake

Port Chester

Metlakatia Nela-L&k.
c
H 0
Chester Lake

Crab Say

CSDAR POINT Parple Lake

. . . . . . . . . .
K-in Bay
li.*F. FFF f
r................................

Tam jas

. . . . . . . . . . . .
H
matte Ta c HW
Hatc C-- Lake
S
... I . . . . . . . . . . .Th . . . . . .
.........................
c
C
... ........ .......... ..
.. ......
C=Oe

G S REEK
<H WATERSHED

.0-A POINT
Ross POINT
J H
SEXTANT POINT co
41, 63 H
1 4 0 1 2 3 4 5 HILES
POINT DAVISON
N

PACM QH
MAWGIZ-5, IW- Annette Islands
Coastal Zone Management Program

which has only partially decomposed -- in their beds. It is possible that
the sedges and other emergent vegetation could reduce the fertility of
a lake's waters by consuming the dissolved nutrients from the water and
then, over the years, locking the nutrients up in thick beds of peat
on the lake bottom.

The low fertility of the lakes has consequences that can spread up the
food chains to affect the production of fish. Dissolved inorganic nutrients
can be used by phytoplankton (microscopic algae) to produce food which
is used by zooplankton (microscopic crustaceans and other animals). The
zooplankton can be used as food by fish, or by insect larvae which can
be eaten by fish. A low fertility of the water thus results in low phyto--
plankton production and can limit the potential of a lake to produce fish.
While some insect larvae and other invertebrates can feed on the slowly-
decomposing organic material in a lake bed, these organisms are unavailable
to fish if they burrow into the material, as they likely do in peat
deposits in muskeg lakes.

The cold water temperature has a more direct influence on fish production,
by slowing the fishes' growth, since digestion of food and other metabolic
processes are temperature-dependent (Everhart, et al., 1975). In addition,
same of the alpine lakes are so shallow (as little as three feet deep)
that they freeze to the bottom in winter, precluding use by resident fish.

Use of some lakes by anadromous fish is limited by barriers to their
passage. Waterfalls, beaver dams and log jams restrict fish movement.
In at least one case (the outlet of Skaters Lake), a poorly placed culvert
prevents passage of fish.

In spite of these unfavorable conditions, many of the lakes do support
fish. Research by theU.S. Fish and Wildlife Service has documented
resident or anadromous salmonids in 12 alpine lakes and in 24 muskeg lakes
The alpine lakes are used by coho and sockeye salmon for
rearing, and by resident cutthroat trout and Dolly Varden (which very
likely prey upon the salmon fingerlings). Cohos were found in only two
muskeg lakes, but cutthroats and Dolly Varden appear to be more widespread
in this habitat.

The fish production of some of these lakes might be improved with a few
enhancement measures requiring relatively little effort. Realigrment
of culverts and removal of barriers such as log jams or beaver dam
could make some lakes accessible to fish migration, and possibly usuable
for rearing coho and sockeye. (Several of the muskeg lakes, on the other
hand, were created by beaver dams and would not benefit from removal of
the dam!)

Introducing rainbow trout into Annette Island lakes has been attempted
by the U.S. Fish and Wildlife Service, but predation by indigenous
Dolly Varden or cutthroat trout has apparently eliminated the transplants.
Other lakes, without predators and with more suitable water characteristics,
might prove more receptive to transplants.

Manipulation of the water quality has proved successful in some areas
as a means to enhance the lake habitat. A fairly sinple procedure involves
adding agricultural lime to muskeg lakes to increase the pH (reduce the
acidity). Fertilization is a much more sophisticated technique, in
which the limiting nutrients are added artifically to increase a lake's
productivity. Either of these methods would require at least a year of
water quality monitoring on the lake in question before it could be
successfully carried out, and follow-up sampling to evalulate the effec-
tiveness of the efforts.

HUMAN USE OF FRESHWATER RESOURCES

In addition to their value as fish and wildlife habitat, the lakes and
streams of Annette Island are vital to the utilities which serve the
Community. They have provided both water and power since the early days
of Metlakatla, and will likely be developed further to fill local needs.

Chester Lake, overlooking Metlakatla from its perch above Port Chester,
has been tapped as a source of water and power since the founding of the
Community. It powered Metlakatla's water-driven sawadll in 1889,1 and
for many years ran a hydroelectric plant which now sits vacant at the foot
of the waterfall. Several cedar pipelines, antiquated and abandoned,
attest to the years of using Chester Lake as a water supply for the town.
These lanes have been replaced by a large modern galvanized pipe, as the
lake continues to fill Metlakatla's needs for water. To supplement its
hydroelectric power from Purple Lake, the Ccmmmity has developed plans
to raise the dam at Chester Lake and install a new hydroelectric plant.
These plans are now pending federal approval of permit applications.

The Purple Lake Power Plant now supplies the reserve with most of its
electric needs (although diesel fuel must be burned to supplement it at
times of low water and/or high demand.) This facility taps the water of
Purple Lake through a pipeline and tunnel bored through the west side
of the lake. The surplus water in the lake continues its natural drain-
age pattern to the east, into Crab Bay, while that needed for power
generation drains west.

Yellow Hill Lake, just south of Metlakatla, provides drinking water to the
south end of the peninsula: the Annette area, the airport, FCA and the
National Weather Service. Since 1977, this water has been used to supply
the interim fish hatchery facilities at Annette. Although originally in-
tended as a temporary use, the abundant, high quality, gravity-flow water
from Yellow Hill Lake has proved such an ideal source that the temporary
hatchery may be continued as a permanent facility.

The new hatchery on the island, under construction at the mouth of Tamgas
Creek uses the water frcrn Tamgas Lake. Plans call for tapping the water
from the surface and from deeper in the lake. Although Tamgas Lake is only
100 feet above sea level, it has a large drainage basin, and if consistent
with the hatchery operation, the lake may have some potential as a low-head
source of hydroelectric power.

Another lake with hydroelectric potential is Triangle Lake, on the island's
east side. With the development of hydroelectric power from Chester Lake, it
is unlikely that Metlakatla would require additional power from Triangle Lake,
but there has been scme discussion of developing a facility there to sell
power off the island. 94

CHAPTER 8
MANAGEMENT
FRAMEWORK

The Metlakatla Indian Ccrmmnityls unique legal and cultural status as-
cribes to its environmental management powers unparalleled within Alaska,
and perhaps within the country. These powers and responsibilities derive
fram a long series of actions by federal, state and Cmmunity governments,
which would require far more space than is available in this document
to explain ocmpletely. Instead, this chapter will discuss some of the
events and actions which have significantly influenced the shape of the
Community's management. Later sections of this report will describe
management practices which the Community has employed, and proposes
changes in management practices following the adoption of this coastal
management program.

Governance of the Reserve

The Metlakatla Indian Ccmunity is a federally-recognized government. The
Annette Islands Reserve was established by Act of Congress on March 3, 1891,
setting apart "the lands known as Annette Islands for the use and occupancy
of the Metlakatla Indians and other natives of Alaska who might be permitted
to join them." The boundaries were later expanded by Presidential Proclam-
ation on April 28, 1916 reserving "the waters surrounding these islands to
a distance of 3,000 feet from the shore line for the use and benefit of the
Metlakatla Indians and such other Alaska natives as had joined or might
join thEm" (U.S. Department of the Interior, 1946).

The original settlers of Annette Island established a council form of gavern-
ment soon after arrival in 1891. Formal recognition of the Community's
government did not come, however, until publication of approval of "Rules
and Regulations for Annette Islands Reserve" by the Secretary of the Interior
on January 28, 1915. Later, Congressional acts granting greater authority
to Indian groqus persuaded the Ccnmunity to amend its constitution. The
present Constitution of the Metlakatla Indian Community was approved by the
Secretaryof the Interior on August 23, 1944 and ratified by a vote of the
Community on December 19, 1944 (U.S. Department of the Interior, 1946).

COMMUNITY GOVERNMENT

The Ccmmmity Constitution establishes a government comprised of executive,
legislative and judicial branches. The executive branch includes the
Mayor, the Secretary and the Treasurer, each elected to two-year term by
popular vote. The Community Council consists of 12 members, elected to
staggered two-year terms. At the beginning of each year, the Council
appoints a magistrate for a one-year tem.

The Mayor presides over meetings of the Council, and may vote only in the
event of a tie vote on a particular matter. In addition, the, Council elects
from its members a chairman, who serves as Acting Mayor in the absence of
the mayor.

The Constitution also defines the qualifications, rights and responsibilities
of membership in the Metlakatla. Indian Community. Applicants for membership
in the Community must be an Native of Alaska indigenious race, at least 21
years of age, and have maintained a residence in Metlakatla for at least a
year. Applicants must not have received any benefits authorized by the Alaska
Native Claims Settlement Act and must be approved for membership by a vote
of three-fourths of the Community Council. Indians from British Columbia
may apply for membership in the Community after two years' residence in the
Community. Minor children whose parents are Community members are considered
members until they reach the age of 21, at which time they must satisfy the
above requirements to retain mel-nber status.

The Community's constitution also allows members to vote in Community elections,
run for and hold Community office. Members are liable for fees, fines or
levies which are imposed by the Community. Among the benefits for which
members are eligible are the right to receive assignment of a Community-
owned lot in Metlakatla. for construction of a residence, and the assignment of
10 acres of land (other than mineral land) for agricultural purposes.

The Community Constitution authorizes the Community Council to:

... pass such ordinances for the local government of the Community as
shall not be in conflct with the laws of the United States, and, where-
ever there is no applicable clause of the (Community) Constitution nor
an ordinance of the Metlakatla Indian Community the Council shall
have authority to apply and enforce Federal low within the boundaries
of the Annette Islands Reserve as the low of the Community, except in
jurisdiction. (Arcticle IV, Section 1)

The constitution grants the Council a good deal of authority related to
management of lands and resources. The Council may prevent the sale, dis-
position, lease or encumbrance of Community lands, interests in lands
or other Community assets.. The Council also can issue permits for Community
members to use and occupy land for residential and agricultural purposes.
If need be, the Council also has the authority to employ legal council,
and to negotiate with the State and Federal governments.

RELATIONSHIP WITH THE FEDERAL GOVER0,RM

An important feature of the governance of the Annette Islands Reserve is the
relationship between the Czmmunity and the federal government. As with many

other American Native groups, the Reserve was established during a period
in the nineteenth century when the federal government sought to end Anglo-
Native conflicts by establishing reservations and guaranteeing Native
rights. This was accomplished by the federal governments, assumption of
a trustee role over Native lands and affairs. One author noted:

Essentially, this unique (Federal-Indion) relationship is derived from
treaties, statutes, executive orders, and administrative determinations.
That is to say that American Indians are the only people specifically
mentioned for special treatment in the Constitution. Further, the
Indian tribes or nations have retained many aspects of sovereignty
and relate to the Federal government, in some respects, as sovereign
nations. (Seneca, 1972)

Assumption by the federal government of trust responsibilities over Natives,
in effect, created a double-edged sword. On the one hand, Native groups
were given "sovereignty" over their own affairs, including exemption frcm
mst forms of state taxes (particularly property taxes) and prosecution
and authority over use of reservation lands and resources. The trust status
also theoretically guaranteed Natives many other benefits provided for in
treaties, such as schools, health care, and financial and technical assist-
ance in community and econcmic develor-ment.

on the other hand, Natives in ef fect became wards of the federal goverment.
The federal government--through the Bureau of Indian Affairs intruded into
virtually,every aspect of Native life. In the use of reservation lands,
for example, the federal government determined how the lands would be used,
who could lease the land and for how much and, eventually, to whcrn the land
could be sold.

During the decades since, federal policy has wavered, frcm. efforts to termin-
ate treaties, reservations and trust status to attempts to achieve genuine
self-sufficiency. The Alaska Native Claims Settlement Act of 1971, which
provided payments of cash and land in exchange for settlement of Alaskan
Native land claims, is one recent example of federal action aimed at temnin-
ation of federal trust status.

Throughout nearly a century of settlement in the U.S., the Community has
sought to retain and increase its jurisdiction over its own affairs and the
natural resources of the Reserve within the context of often inconsistent
federal policy. As a result, decisionmaking regarding resources management
is often fragmented and cumbersane, and Ccnumnty initiatives are often
blunted by requirements that decisions be circulated through numerous layers
of federal agencies and offices.

Currently, several federal agencies share public service or other responsi-
bilities with the Ccmmuiity goverment. In many cases, the powers and re-
sponsibilities supercede those of the Ccnmmityls government, just as federal
powers supercede those of states. An important distinction, though, is that
title to all lands of the Reserve is held by the federal government in trust
for the Community. As a result the powers of federal agencies are not subject
to the same constitutional restrictions ccmpared to federal-state relation-
ships, and federal powers are more extensive on the reserve.

In most cases, however, both the Cmmunity and the federal governments
share powers and responsibilities to provide public services to the Re-
serve and its Native residents. This is true for education, health, water
supply, sewage disposal, police and fire protection, and streets and roads.

There is a major distinction in the use of the Reserve's natural resources--
land, water, timber, minerals, fish, and wildlife. In these areas, the
Secretary of the Interior (through the BIA) has much greater powers than does
the Camunity goverment, in some cases possessing nearly exclusive powers
to plan or permit any uses of natural resources.

The Comunity does, however, have several important tools with which to
influence this process and accomplish its objectives. These tools include
approval of agency operating plans, contracting of BIA functions, direct
bargaining with federal agency officials, and lobbying for specific Congres-
ional appropriations.

Approval of agency plans is an important tool. Generally, federal regulations
require agency operating plans for the Reserve to be ratified by vote of
the Ccmmmity Council. BIA Timber Operating Plans are a good exmple of this
process. In addition, many specific actions, such as land lease agreEments,
must also be ratified before BIA personnel may legally take actions ocin-nitting
Reserve resources. Through this means, the Community Council can exercise
veto power over agency plans. The difficulty presented by this method is
that vetoing proposed agency plans may result in long waits before new plans
are drafted; consequently, lengthy (and often unacceptable) delays may result.
Contracting BIA functions is another tool which has only receritly been avail-
able to the Community. The Indian Self-Determination Act allows Indian tribes,
at their option, to contract directly with the BIA to perform part or all
of certain functions normally performed by BIA personnel. The Cbmmmity has
used this opportunity to establish natural resources management and municipal
services divisions. Control of these functions (including forestry and, to
a lesser extent, fishery management) allows the Conymxiity to assure that staff
work in these areas more closely conforms to Comunity wishes, and measurably
speeds planning lead times.

Third, partly as a result of contracting BIA funcions and better control over
information-gathering functions, Community officials are now better able to
bargain with officials of federal agencies exercising trust responsibilities
over the Reserve.

Finally, the Ccmmunity also sends officials to Washington, D.C. to directly
lobby federal budget officials and legislators to secure specific appropria-
tions for projects desired by the Ccumunity. As a result of better use of
these tools, the Community has recently emerged with a newer, stronger voice
in the use and managementof its resources by federal trustees.

RELATIONSHIP WITH THE STATE OF ALASKA

A prior agreement with the federal government preempts the State of Alaska
from exercising many of its powers within the Annette Islands Reserve. Most
involvement by state agencies is service-oriented in nature, such as providing
educational services; the state has little jurisdiction or power over most
aspects of Community governance as it relates to use and management of coastal
resources.

The State does, however, act as an advisor to the Cmmunity and BIA in many
resource managTmt decisions, such as the setting of ccomercial salmon
harvest regulations, for the Reserve. The extent of State influence over
Cmmunity resource management decisions thus depends to a large extent on
how vigorously State agencies pursue this advisory role.

CHAPTER 9
POLICIES AND
IMPLEMENTATION

The preceding chapters of this report have discussed the resources
of the Annette Islands Reserve, and have analyzed the uses and
management of those resources. The report has also presented issues
facing the Conrunity, and a list of goals and objectives for community
development and resource management. Chapter 8 drew together the
information presented to that point and discussed the approach to
address the issues consistent with the goals and objectives.

In this chapter, the approach is presented in a systematic fashion,
as a program of policies and actions. Some explanation of the format
is helpful at the outset. As discussed in Chapter 2, the goals
are general, broad statements of desired conditions in each area
of resource management. objectives are steps to be completed to
attain the goals. Policies are the guidelines or "rules of thumbl"
which spell out the Conn-unity's stand on particular issues. Actions
are the detailed steps, consistent with policies, which the Community
and others need to take to satisfy overall goals and objectives.

This chapter describes how the governance system of the reserve
functions in the operation and management of activities which affect
or are affected by the Reserve's coast resources. This section also
describes methods which will be used to manage these resources and
implemnt the program's policies and standards.

Where not otherwise specified, actions taken by the Cmmunity and
referred to in this chapter are first authorized by Council and
implemented by the Mayor or his staff.

101

Fisheries

COMMERCIAL AND SUBSISTENCE FISHERIES AND
SEAFOOD PROCESSING
One of the unique aspects of the Annette Islands Reserve is the 3,000-foot
fishery reserve surrounding the islands. Conmercial fishing in the
reserve is set aside exclusively for Connunity rren-bers.

The BIA Southeast Alaska Area Office is responsible for mnagenent
of the fishery reserve. Federal regulations, written especially for
the Annette Islands Reserve, direct the BIA Area Director to set
sport and subsistence fisheries regulations,

... in accordance with the season, gear and bag restrictions
established by rule or regulation for Southeastern Alaska
by the Alaska Board of Fish and Game. Both subsistence and
sport fishing shall also be in accordance with such ordinances
as may be adopted by the Council of Metlakatla Indian Community
and approved by the Secretary of the Interior.

Also, the Comnissioner of Indian Affairs, after consulting with
Conriunity officials,

... is authorized and directed, upon a determination of the
necessity to promote sound conservation practices, to
restrict or close to commercial, subsistence or sport fishing
any portion of the Annette Islands Reserve by notice given
appropriate local publicity. (25 CFR 88.6 (e))

The regulations also authorize the Conrunity to operate fish traps
at any four of eight specified sites within the Reserve. The regu-
lations restrict comTercial fishing (seine, gill net and troll)
to periods when such fishing is allowed in adjacent areas by the
Alaska Board of Fish and Garm.

These regulations establish a conplex managenent system, for both
the BIA and ADFG must consider what the other will do before setting
regulations and season openings for areas under its jurisdiction.
Unfortunately, the relationship aTmng the Connunity, BIA and ADFG
is often adversarial, since much is at stake and the state of knowledge
concerning the fishery resource is limited.

Both commrcial and subsistence fishing are highly ipportant. @bny
Commziity menbers earn their living fishing within the Annette
Islands Fishery Reserve. Also, many fishermen have purchased state
limited entry fisheries pern-Lits to fish in non-reserve waters, or
participate in non-limited off-island fisheries.

102

Subsistence fishing is open to all Conm unity 4nenbers yea round,
except when specific areas are ordered closed by the Community Council
for conservation purposes. Increasing numbers of Community are now
fishing commercially within the reserve raising the possibility of con-
flicts with conservation enhancement and subsistence objectives of the
fishery. Subsistence uses of bottomfish, shellfish, etc., do not
appear to be threatened.

Seafood processing is also unique and important. The Comunity-owned
Annette Island Packing Company has operated since 1924, providing an
important source of income to Community residents. Profits of the
company are also used by the Community Council to provide many public
services.

To preserve and enhance the important values associated with fisheries
and fish processing, the following goal , objectives, policies and
actions will be applied:

GOAL 1: Management of fisheries resources to maintain or improve yield and
provide income over the long-term to individuals and the Community.

OBJECTIVE 1.1. Determine the extent and characteristics of each
commercially harvestable species.

POLICY 1.1.1. The Community will conduct and support research
into the extent and characteristics of stocks of
commercial fish species.

ACTION 1.1.1.1. Create a position of fishery manager under
Annette Natural Resources Center. Fishery
manager will conduct field surveys and other
pertinent research into Annette Island's
fishery stocks for managment purposes, and
will work with the Mayor and the Packing
Company to manage the fisheries. Funding can
come from BIA, EDA, or other federal or
state agencies. One or more technical assis-
tants will also help in the effort.

ACTION 1.1.1.2. If additional staffing is not feasible, or
if staff requires technical assistance,
contract for support from National Marine
Fisheries Service, Alaska Department of
Fish and Game, or outside consultants, to
perform work noted in Action 1.1.1.1.

ACTION 1.1.1.3. Fishery manager will develop and follow study
plan designed to determine:
a) extent of,fish stocks
b) critical habitat needs
c) spawning escapement needed to sustain
stocks.

103

OBJECrIVE 1. 2. Allow adequate spawning escapement to sustain or
improve fish stocks.

POLICY 1.2.1. The Community shall establish harvest guidelines or
catch quotas allowing spawning escapement sufficient
to sustain the stocks at least at the level of
equilibrium yield.

ACTION 1.2.1.1. Implement guidelines through Council-adopted
ordinance and local fisheries enforcement.

ACTION 1.2.1.2. Follow-up research after fishing each year
by local fishery manager or consultant to
determine extent of spawning escapement.

POUCY 1.2.2. Net fishing nea stream mouths shall be regulated
to ensure that escapement is representative of
the stream stock in terms of both species and timing.

ACTICN 1.2.2.1. Fishery manager will collect data on the
species and timing of escapement in inr-or-
tant stream.

ACTION 1.2.2.2. Council has closed stream mouths to conyrercial
net fishing (by ordinance and annual regulations)

OBJECrIVE 1.3. Develop and adopt an equitable method of allocating
the harvestable surplus.

POLICY 1.3.1. The Community shall allocate the fishery harvest
in a mamer that allows a reasonable catch level
to fishermen using all gear types, and to Community-
owned vessels and traps.

AMON 1.3.1.1. once the allowable harvest level of each
species is calculated (in Action 1.1.1.3.),
the Council's Natural Resources Com-nittee,
the staff of the Natural Resources Department,
and outside consultants or agencies (as
needed) develop an allocation formula that
satisfies the criteria of Policy 1.3.1.

AMON 1.3.1.2. Council implements plan through adoption of
ordinance, and enforces through island fishery
patrol.

OBJKTIVE 1.4. Improve and implement enforcement capabilities.

POLICY 1.4.1. Recognizing that effect fishery management requires
implementation of harvest guidelines, the Community
shall strictly enforce harvest levels and allocation
formulas.

104

ACTION 1.4.1.1. Council establishes standards for fishery
patrol procedures.

ACTION 1.4.1.2. If effective enforcement by local personnel
is not feasible, contract with U.S. Fish and
Wildlife Service, Division of Law Enforcement
or BIA or other appropriate agencies to
perform these services.

ACTION 1.4.1.3. Council ordinance establishes penalties for
fishermen violating regulations and guidelines.

OBJECTIVE 1.5. Protect critical fish habitats.

POLICY 1.5.1. The Conuunity shall ensure that critical fish
habitats are not degraded. (These habitats are
described in this report, Chapter 4, and shall be
supplemented by information collected in
Action 1. 1. 1. 3. b. )

ACTION 1.5.1.1. Forester and fishery biologist conduct site-
specific surveys of tinber sale lands, or
other areas subject to earthmoving or major
construction projects.

ACTION 1.5.1.2. Designation by fishery manager, in cooperation
with Annette Island forester, of fishery
protection zone along streams and shorelines,
and develoFment of standards for activities
allowable in this zone.

ACTION 1.5.1.3. Site--specific habitat protection clauses will
be included in contracts for timber harvesting,
road-building, and construction, and in land
or water leases.

ACTION 1.5.1.4. Conymnity's forestry staff will monitor tinber
harvesting operations to ensure contract
compliance.

OBJECTIVE 1.6. Enhance capabilities of habitats to produce fish.

POLICY 1.6.1. In order to increase the size of salmon stocks
around Annette Island, and to take advantage of
natural habitat, the Commmity shall explore and
irnplement measures to enhance salmon spawning
habitat on the island.

105

ACTION 1. 6. 1. 1. Annette Natural Resources Center staff (with
outside support as needed) will inventory
streams and lakes with salmn-producing
potential, analyze obstacles to salmon
production (e.g., log jam, silted streambed,
waterfalls, beaver dams) and develop and
implement program of removing obstacles
where feasible. Armng the activities to
be considered are:

0 Construct deflectors in stream where
analysis indicates that they will expand
available spawning area without harming
existing habitat.

0 Plans for destratification of lakes to
improve water quality and enhance productivity.
0 Working with hatchery staff to plant
coho fry in suitable lakes for rearing.

OBJECTIVE 1.7. Develop a commercial shellfish industry on Annette Island.

POLICY 1.7.1. The Community shall pursue State certification of the
reserve's shellfish beds.

ACTION 1.7.1.1. Council will contact the State DNR and
request certification research.

POLICY 1.7.2. The Comnunity shall explore the extent and char-
acteristics of the shellfish resource on the reserve.

ACTION 1.7.2.1. Annette Natural Resources Center will under-
take test harvests of clams using to determine
characteristics of shellfish beds and productivity
of different combinations of harvesting
equipment.

POLICY 1.7.3. Shellfish enterprise development shall emphasize
private participation and maxin-Lize opportunities
for Com-nunity member training and employment.

ACTION 1.7.3.1. Annette Natural Resources Center will
explore methods of financing equipment and
operating shellfishing enterprises on a
private basis, and will convey this information
to interested fishermen.

OBJECTIVE 1.8. Ensure continued availability of and access to fish
by Conumity members for subsistence use.

POLICY 1.8.1. Community subsistence use of fish resources
shall be accorded equal priority to commercial
fishing.

106

ACTION 1. 8. 1. 1. If sufficient data becomes available on
stream escaperrent and carrying capacity
(in Actions 1.1.1.3 and 1.2.2.1.), and if
Council revises the fisheries ordinance to
permit regulated terminal fisheries, the
ordinance will ensure adequate supply for sub-
sistence use and spawning escapement.

Forest Resources

Large scale logging on Annette Island began in 1967. At that time,
the BIA responded to Conuunity requests and established a position of
Reserve Forester at Metlakatla. Several timber sales were then con-
ducted. In 1976, the Conyminity contracted with the BIA to provide
forestry services, and establish a Forester position in the Annette
Natural Resources Center. The nuTher has since grown to two full-time
Foresters and two Forestry Technicians.

Under BIA regulations, logging must be preceded by the preparation of
a Timber operation Plan which describes planned logging, road construction
and reforestation activities. The BIA prepared an initial Tinber Operating
Plan in 1966, but the Commmity has refused to approve it. As a result,
timber sales have been planned, approved and conducted on a case-by-case
basis.

Since the Reserve Forester position has been under the control of the
Gomanity, staff work has been directed to updating the Tint)er Operating
Plan to a satisfactory state and conpleting surveys, plans and legal
documv-nts needed to conduct future timber sales. In this way, timber
sa-les can be timed to coincide with favorable market conditions and
respond to Community financial needs.

Equally important, local management of the forest resources allows the
development of policies and standards to protect the long-term produc-
tivity of the island's soils, streams and wildlife habitat. Other
mnagenient activities are the establishment of long-range (10 years or
mre timber sale plans coordinated with Comnunity financial planning.
Policies and regulations have recently been developed concerning use of
beach driftwood logs. Comunity staff and officials will also
address, as staff tirre allows, the question of best uses of timber
sale income.

The Annette Hemlock Mill is situated on prim industrial land bordering
Port Chester. Adequate land is available to the east to allow for
expansion or new facilities. There are, however, two major problems
associated with acconx)dating this type of processing.

107

One is the problem of bark and chip disposal. Although in other areas
bark and chips are conmnly processed into byproducts or consumed
as fuel in processing, high transportation costs and fluctuating markets
discourage Southeastern mills from utilizing the bark and chips.
Instead, these materials are disposed of on the island.

A second problem is that log storage in Port Chester may have adverse
effects on Port Chester's water quality. The Community has limited
information of these effects, but has concluded that in-water storage in
Port Chester is perhaps the best alternative that can presently be
pursued.

Goals, objectives, policies and actions designed to address these
issues are listed below.

GOAL 2: Management of forests on a multiple-use, sustained yield basis to
provid e income and employment to the Community.

OBJECTIVE 2.1. Establish a forest inventory system to store, classify
and retrieve forest resource information.

POLICY 2.1.1. The Community shall collect and maintain data on
growth rates, soils and other resource data in
a nkanner compatible with automatic data processing.

AMON 2.1.1.1. Research forester in Natural Resources
Department will work in data collection,
inventory and analysis of forest data.

ACTION 2.1.1.2. Develop computer coding system to store
data, and program to retrieve and display data.

OBJECTIVE 2.2. Revise long@term timber operating plan.

POLICY 2.2.1. The timber operating plan shall incorporate
results of recent management research, new inventory
data, and changing Community preferences.

POLICY 2.2.2. The tinber operating plan shall allow flexibility
in cutting schedules to take advantage of changing
market conditions.

POLICY 2.2.3. The timber operating plan shall incorporate the
BTA trust responsibility to harvest timber on a
sustained yield basis.

POLICY 2.2.4. The timber operating plan shall protect other
non-timber uses of the forest such as fish and
wildlife habitat, water supply, etc.

108

OBJECTIVE 2.3. Exercise greater ComuLmity self-determination over
forest management.

POLICY 2.3.1. The Conmmity shall promote greater public awareness
of the opportunities and limitations of the island's
forest resources.

ACTION 2.3.1.1. To increase awareness armng Metlakatla. students,
the Comnunity's foresters will prepare and
deliver slide presentations, posters, charts,
and other displays to the schools on forest
management on Annette Island.

ACTioN 2.3.1.2. Tb provide the Council with additional informa-
tion the ComTunity forester will conduct on-site
inspections of timber sale areas for Councilmen.

ACTION 2.3.1.3.. Th enhance awareness of the general public,
the forester will prepare articles on forest
management and issues for the Conmmity News.

POLICY 2.3.2. The Commmity shall encourage direct employment of
Commmity mmbers in forest management and tinber
harvesting on Annette Island.

AMON 2.3.2.1. Establish a program of forestry training to
provide students with career and educational
opportunities.

AMON 2. 3. 2. 2. Work with other Indian reservations and
public agencies with similar responsibilities
to exchange services, information and
expertise in training for forestry careers.

ACTION 2.3.2.3. Include employment preference clauses in
timber sale contracts to insure Commmity
members the opportunity to work in tinber
harvesting operations.

POLICY 2.3.3. In order to maximize returns from its tinber sales,
the Conumity shall explore and analyze the feas-
ibility of the following actions:

ACrION 2.3.3.1. Present system of contracting tinber sale
and roadbuilding as one package.

ACTION 2.3.3.2. Contracting the roadbuilding and the logging
as two separate contracts, with the ComuLmity
financing the roadbuilding, in order to attract
additional bidders on timber sale.

109

ACrION 2. 3. 3. 3. The Gommmity building its own roads, and
selling the tinber separately.

ACrICN 2. 3. 3. 4. The Commmity building its own roads, and
harvesting and marketing its own timber.

AMON 2.3.3.5. The Community contracting the timber harvest-
ing, but marketing the timber itself.

OBJECrIVE 2.4. Maintain soil productivity.

POLICY 2.4.1. The Community shall acquire baseline information on
soils of Annette Island.

AMON 2.4.1.1. Conduct a study of the island's soils, to
include at least:
� inventory and mapping of soil types;
� analysis and interpretation of suitabilities
and sensitivities of soil types to specific
uses;
� recomTendations of silvicultural, management
and harvesting practices for each soil type.

POLICY 2.4.2. The CbmTunity shall not permit or contract for
activities which are likely to result in significant
soil erosion, mass movement, or loss of the upper
soil layer.

ACTION 2.4.2.1. Tinber sales will be designed and roads will
be engineered to minimize logging, roadbuilding,
and other soil disturbance on slopes in excess
of 67%.

AMON 2.4.2.2. Contract specifications will require yarding
techniques that minimize the disturbance of
the upper soil layer. All logs shall be
yarded uphill, away from streams, with at
least the leading end of the log elevated.

ACrION 2.4.2.3. The Conmmnity's foresters will monitor
logging operations to ensure contract conpliance.

OBJECrIVE 2.5. Maintain water quality.

POLICY 2.5.1.' The Conmmity shall not permit or contract for
activities which are likely to introduce sediment
into perennial stream and lakes.

ACrION 2.5.1.1. All timber sales will leave an unlogged or
selectively logged streamside protection zone
on both sides of all perennial streams and
their tributaries. The width of these zones
shall be determined by a forester and fishery
biologist to ensure against sedirmntation
into the stream, or blowdown of the timber.

110

POLICY 2.5.2. The Corrartunity shall not permit or contract for
activities which are likely to increase the summer
temperature of streams beyond the range optimal
for salmn habitat.

Standard 2.5.2.1. Streamside protection zones
shall be wide @-rTo-ugh, and sufficient large trees
shall be retained to shade the stream.

Standard 2.5.2.2. No activities or structures
shall be pe=EtE@d which are likely to increase
stream temperatures 4.0 degrees F. (1.8 degrees C.)
above natural temperature, nor shall they exceed
60.0 degrees F. (15.5 degrees C.)

POLICY 2.5.3. Log handling and rafting operations shall be conducted
so as to minin-Lize impact upon water quality.

ACTION 2.5.3.2. The log dumps in Hemlock Bay and Annette Bay
shall be used for tinber logged from the
north half of Annette Island. If new log
dumps are established, they shall met
the following standards

Standard 2.5.3.2. Logs or log bundles shall be
lowered by crane, rather than dumped into the
water.

Standard 2.5.3.3. Log rafts shall be stored in
water having sufficient circulation to prevent
accumulation of leachates. Tidal currents in
rafting areas shall be at least 0.10 mph one hour
after and one hour before high and low tides; or
surface outflow shall be at least 0.07 mph at the
time of high tide. These flow rates shall be
measured during the dry season.

Standard 2.5.3.4. Log booms shall be located
in water deep enough to prevent grounding of
logs at extreme low tide.

Mineral Development

Few commercially valuable minerals are known to be sufficiently abLmdant
on the reserve to make mineral extraction likely in the near future *
Annette Island does, however, contain deposits of barite which could prove
to be commercially feasible. with some- preparation, the Community can
respond knowingly, should interest in exploration and development of
these and other deposits arise.

A related issue in use of the reserve's minerals involves extraction
of rock and gravel. Glaciation and miskegs; have left the island short
on structurally sound soil, and as a result, fill, road-building material
and aggregate must be obtained from rock quarries or beaches, raising
the question of conflicts with other resources.

Goals, objectives, policies, and actions related to mineral extraction
and processing within the reserve are listed below.

GOAL 3: Development of non-renewable mineral resources in a manner that will
maintain the productivity of renewable resources and will provide
long-term economic benefit to the Community.

OBJECTIVE 3.1. Establish a relationship between the Community and a
mineral development firm for the purposes of exploration
and development.

POLICY 3.1.1. Pecognizing that the costs of mineral development
are high, the Commmity will pursue a formal
relationship with a private mineral development
firm.

ACTION 3.1.1.1. Contact private firm to determine their
interest in a formal relationship with the
Comm.mity (see list in PITI, 1977c).

AMON 3.1.1.2. Form, a joint-venture partnership or
corporation with the nu-neral development
firm.

POLICY 3.1.2. In the interests of stimulating the local economy,
the Conmmity shall encourage employment of CbmTunity
members in on-island mineral exploration and develop-
ment.

ACrION 3.1.2.1. Provision in mineral rights lease requiring
corporation to hire Community menbers for
at least half the jobs in on-island work if
Comnunity members wish to become involved.

OBJECTIVE 3.2. Determine potential of knom mineral deposits.

POLICY 3.2.1. The Ccnnunity shall promote efforts to define the
extent of mineral deposits on Annette Island.

ACTIM 3.2.1.1. Council requests continued technical assist-
ance from U.S. Geological Survey and BIA.

ACTION 3.2.1.2. Further exploratory work, engineering, and
feasibility analysis by private mineral
development firm.

112

OBJECTIVE 3.3. Specify extraction methods that will riot impact upon the
water quality or soil productivity of the surrounding areas.

POLICY 3.3.1. Recognizing that the reserve's timber and fish resources
depend on productive soil and adequate water quality,
the Comnmity will ensure that mining operations minimize
their impact upon lakes, stream, or marine waters, or
upon the soils outside the limits of the mining area.

A=oN 3.3.1.1. Before any mining begins, the Annette Natural Resource
Center will delineate the limits of the area needed
for mining (as determined in Actions 3.2.1.1 and
3.2.1.2.) These areas must be at least 400 feet
horizontally from any stream, lake or marine waters,
and must be determined, from engineering studies, to
be on soils which are not subject to slides or other
mass soil movement. The best practicable technology
will be employed in extracting the minerals.

ACTION 3.3.1.2. By controlling interest in any enterprise, or by use
of permits or leases, the Community will specify the
following standards for mining:

STANDARD 3.3.1.2.1. All overburden or mine tailings shall
be retained inside the mining area.

STANDARD 3.3.1.2.2. Roads and other access shall, at a minimum,
follow standards specified for logging roads in the
Commmity's tinber sale contracts.

ACTION 3. 3. 1. 3. The Council will not permit gravel extraction from
beaches until an analysis is completed which projects
the effects of the extracticn upon other resources,
and includes measures to minimize the negative effects.

OBJECTIVE 3.4. Establish a permanent fund with proceeds from the mineral
development.

POLICY 3.4.1.- Because minerals are a non-renewable resource and can
be extracted only once, the Community shall invest at
least one-half of its returns from mineral development
in a permanent fund, to convert the non-renewable re-
sources into a continuing source of funds.

ACTION 3.4.1.1. Council will pass an ordinance establishing a permanent
fund, with no withdrawals to be made from the principle,
and with the interest to be applied to resource develop-
n-pant projects.

POLICY 3.4.2. Because mineral development projects will cause some impacts
to soil, timber and wildlife in the mining area, these
areas will be restored to a productive conditions after
the mining is completed.

113

ACrION 3.4.2.1. A portion of the proceeds from the permanent fund
will be used by the community (through the Annette
Natural Resource Center) to restore, former mining
areas to a productive state.

ACrION 3.4.2.2. If no ownership agreement has been developed, the
Community will require a surety or performance bond
from the mining company to pay for restoration.

ACTION 3.4.2.3. Local workers will be employed in restoration projects,

Land and Water Development

This section describes the objectives, policies and actions of the Community
which relate to coastal development, geophysical hazard areas, energy facilitiest
transportation, and utilities.
COASTAL DEVELOPMENT
The Annette Islands Land Use and Housing Plan presents and overall plan and
program to guide coastal developuent in the commmity. Since buildable land
is quite limited, the plan identifies areas suitable for developnent based
on soils, vegetation, coastal hazards, and proxin-tity to existing utilities
and services. (Since all land is owned in trust for the Community, land own-
ership was not a consideration.) Generally beach uplift areas and areas pre-
viously developed for federal use (Airport, Annette housing area) are consid-
ered prime developable sites. The officially adopted land use plan for the
Conmmity is presented in Chapter 4 of that report. other goals, objectives,
policies, and actions necessary to implement the land use plan, in addition
to other coastal developuent considerations not considered in that plan, are
presented herein.

Among the considerations involved in the development of the Annette Islands
Land Use and Housinq Plan were geophysical hazard areas. Tfi@e -area7s-, -which
are class7i-f
ieT-1in-t-fia7t-p-1an as "Natural Hazard Unit" are managed by general
use guidelines used by the Community in leasing, assignment, or facility
construction decisions. (See Chapter 5 of land use plan.)

TRANSPORTATION
Cne of the trust responsibilities of the Bureau of Indian Affairs is to
provide roads to service development on the reserve. The State of Alaska
provides a floatplane dock and ferry landing. The Annette Airport is
maintained by the Community. Policies and actions for use of the airport
are covered by a master plan, currently in draft form.

UTILITIES
Past analyses have concluded that, although there are no cheap solutions to
energy problem, hydroelectric pader appears to have the greatest potential
for low-cost reliable power. As a result, the Community is proceeding with

114

plans to raise the existing dam at Chester Lake and convert it to hydroelec-
tric use to supplement the Purple Lake power plant.

Beyond this action, the Community might explore other sources of power as
well. Energy conservation, through housing rehabilitation and construction
of new homes, is already underway, but might be developed further.

Drinking water sources, at Chester Lake and Yellow Hill Lake, are both
accessible to the public, but so far no significant water quality problems
have arisen with either source, and capacities appear adequate for present
and projected use. The water system was constructed by the Indian Health
Service and is operated by the Community. Watershed management is controlled
by the CbmTunity and the BIA. The Community does not allow swimming in
either lake.

Goals, objectives, policies and actions related to land and water development
are listed below.
GOAL 4: Land and water development to provide opportunities for the
Community, enhancing the qualities for which an area is developed,
while maintaining the productivity of renewable resources and the
character of the island.
OBJECrIVE 4.1. Develop Metlakatla waterfront to promote water-oriented use
and access, while maintaining the quality of the environment.

POLICY 4.1.1. The Community shall pursue and support projects to increase
public use of the waterfront

ACrION 4.1.1.1. Develop new small boat harbor and support facilities.

AMON 4.1.1.2. Develop and improve public access at vacant waterfront
sites by constructing mini-parks, with tree and shrub
plantings, picnic tables, litter receptacles, and
benches.

ACrION 4. 1. 1. 3. Develop a city park and parking area at floatplane
ramp (see conceptual design in Annette Islands Land
Use and Housing Plan, p. 78)

ACTION 4.1.1.4. Provide street trees and other plantings along
Western Avenue between floatplane dock and longhouse.

POLICY 4.1.2. Development criteria of the land use and housing plan
will be followed in coastal development decisions.

ACTION 4.1.2.1. Council's Planning Committee will review development
proposals for consistency with development criteria
in land use plan.

OBJF=IVE 4.2. Provide new roads to undeveloped areas when needed and
feasible.

POLICY 4.2.1. The Community shall inititate and/or approve

115

construction of new roads to undeveloped areas
only when it is evident that presently accessible
areas are used to their capacity.

POLICY 4.2.2. Development of non-logging roads shall be initiated
by the Conmunity, but construction and maintenance
shall be the responsibili ty of the BIA.

ACTTON 4.2.2.1. When the Caunmity has a demonstrated need
for new roads, the Council passes a resolution
requesting the BIA to construct and maintain
the new road.

POLICY 4.2.3. Road development shall not be initiated unless
sufficient funding is conrdtted by the BIA to
ensure that roads will be maintained and that
recreation facilities will be provided to help
prevent littering, vandalism, etc. (See Objec-
tive 4.3.)

ACTION 4.2.3.1. Conmmity obtains a written comLittment from
the BIA that it will ocoply with Policy 4.2.2.

OBJECVwE 4.3. Provide outdoor recreation facilities on Annette Island
which will satisfy the needs of the Conymmity meubers.

POLICY 4.3.1. The Conrmmity shall strive to maintain a high
quality of recreation experience on Annette Island.

ACNON 4.3.1.1. Maintain inventory of areas used for recrea-
tion purposes, their degree of use and
degradation of the site.

ACrION 4.3.1.2. Formulate strategies and conceptual designs
to maintain, improve and/or control the use
of existing areas used for recreation.

POLICY 4.3.2. The Caummity shall seek opportunities to develop
low-cost, highly durable recreation facilities.

ACHON 4. 3. 2. 1. Develop recreation areas through the use of
local skills and materials.

ACrION 4.3.2.2. Focus the energies of local civic groups to
support and actively be involved in the
development and maintenance of recreation
facilities on the island.

ACHON 4.3.2.3. Utilize vacant lots in Metlakatla, on a teirp-
orary basis, to establish portable playgrounds
with the equipment to be removed if and when
the site is needed for development.

116

CBJEC!rIVE 4.4. Provide energy and other utilities at the lowest
practical cost when needed.

POLICY 4.4.1. The Camunity shall pursue development of electrical
and other utilities using local, renewable sources
whenever possible.

ACTION 4.4.1.1. Pursue development of the Chester Lake hydro-
electric project.

ACTION 4.4.1.2. Analyze, as available funds and staff resources
permit, the potential of sources of hydro,
thermal, wind or other power available to the
community.

AMON 4.4.1.3. Promote energy conservation in the ConnTunity's
homes, and promote awareness of energy conser-
vation needs among residents.

Economic Development

Recent losses in employment due to relocation of federal employment and
uncertain fisheries and forest products activities have made it inperative
that the Conmanity government actively pursue the development of new
employment and income producing activities.

Since 1966, the Camiunity has operated an Economic Development Planning
office. Goals, objectives, policies and actions of the office's activities
are listed below.

GOAL 5: Development of a productive, diversified, stable economy, providing
meaningful employment for Community members.

OBJECrIVE 5. 1. Diversify the island's economy to provide protection
against any one activity or industry exercising undue
impact on the ComuLmity.

POLICY 5.1.1. New or existing business enterprises shall be
encouraged to utilize Conmmity members to fill
job openings wherever possible.

117

ACTION 5.1.1.1. Land or facility leases with enterprises not
owned or controlled by a Comnunity member
shall contain a provision encouraging empioy@
ment of Comuanity meinbers at Annette islands-
based jobs.

POLIdY 5.1.2. ComuLmity shall devote resources (financial, tech-
nical assistance, etc.) to aid Community members
in establishing and maintaining, or expanding
business enterprises.

POLICY 5.1.3. ConTmnity shall promote or otherwise encourage
enterprises with opportunity for off-season employ-
ment and ease of entry to adjust for availability
of conramity labor force.

POLICY 5.1.4. Comunity shall promote private, rather than public,
ownership of enterprises wherever possible, to take
maximLun advantage of initiative of Community members.

POLICY 5.1.5. Enterprises which export or sell most of their pro-
duct to off-island clients shall be encouraged to
diversify to reduce dependence on single markets,
and to smooth the ups and downs of traditionally
cyclical activities.

ACHON 5.1.5.1. Forest Products Activities: The Ccnmiunity
shall explore feasibility (and pursue esta-
blishment) of new forest products activities
on the island. Activities to be examined
include:

� Processing of round logs and cants into
dimensional lumber.
� Kiln drying (using wood chips from saw-
mill for energy).
� Veneer plant (for plywood manufacturing).
� Shake-and shingle manufacturing.
� Log storage

ACTION 5.1.5.2. Manufacturing and Trade Activities. Commmity
shall explore feasibility (and pursue establish-
ment if promising) of new manufacturing and
trade activities on the island. New activities
to be examined or pursued include:

o Mineral development staging.
o Prefabricated building component manu-
facturing.

118

ACTION 5.1.5.3. Fisheries Activities. The Annette Natural Resource
Z@e--nterwill explore the feasibility of (and pur-
sue the establishment of, if promising) new
fisheries activities based on the reserve. Among
the activities to be examined are:
o Expanded harvesting and processing of bottonifish
and shellfish from the Gulf of Alaska or Annette
Islands waters.
o Salmon smokery.

ACTION 5.1.5.4. minerals and Energy Production. Annette Natural
Resource Center will explore the feasibility of
(and, if promising, pursue) mineral and energy
production activities on the reserve. Among the
activities to be examined are:
� Barite mining.
� Electricity generation through use of wind power
or use of wood waste from sawmill.

OBJECTIVE 5.2. Achieve economic development which strikes a reasonable balance
between environmental and economic values.

POLICY 5.2.1. Long-term use of coastal resources shall be preferred over
short-term use in the ComTunity's economic development
program. Where short-term use is either unavoidable or
judged by the Council to meet major Community needs (such
as providing substantial employment) part of the revenues
to the Community shall be reserved for restoration and
enhancement of the resources once the use is completed.

IMPLEMENTATION NEEDS

As the reader may surmise, the Coastal Management Program of the Annette Islands
Reserve is an ambitious attempt by a uniquely situated local government to
comprehensively manage vital natural resources. Many of the management activities
listed above, particularly those of a regular, ongoing nature, have been
provided locally through a combination of local, State and federal funding.

Non-regulatory management activities, such as research and data collection,
compilation of inventories and managment activities for specific resources,
however, have not been funded at a desirable level. Table 9-1,following,
presents current and proposed activities of the Annette Natural Resource Center
and other Comnunity functions related to coastal resource management. Some
of these activities are proposed for funding under Section 306 of the Coastal
Zone Management Act. Briefly, these activities are:

o Institution of fisheries resource management capabilities.
($25,000)
o Initiation of a comprehensive soil survey ($10,000)
o Water quality, streamflow, and precipitation research to establish
managementInformation on important fish spawning and rearing areas,
and potential aquaculture sites. ($35,000)
0 Continuation and expansion of computerized resource data inventory
system (1 staff position, $16,000)

119

Table -9-1

Annette Natural Resources Center
Current and Proposed Resource Management Activities and Funding Level

Other Funds
Met. Ind.
Assoc. 1130611 Community
Staff* Activity Funds and Others
Forestry
2-P Contract timber sale admin. x
2-P Forest redevelopment x

Fisheries

5-P Salmon hatchery - egg collection,
3-P propagation and release - x

Fisheries planning, management
and enforcement
1-P,5-S Salmon fishery - enforcement - x
1-S Herring fishery - planning,
management, enforcement - x
PR Shellfish development and
PSP research - x
PR Fisheries management planning $ 25,000

Other Natural Resources Plannin
and Managemen

4-P Administration x
PR reserve soil survey 10,000 x
PR Mineral strategy development - x
PR Water quality and streamflow
research 35,000
1 +PR Completion of automated resource
inventory system 16,000

Community Planning and
Economic Development

2-13 Program office - x

TOTALS $ 86,000

P - Current number of full time staff S - Current number of seasonal staff
PR - Proposed project
X - Indicates other funds will be used to support activity.

120

CHAPTER10
AREAS WHICH MERIT
SPECIAL ATTENTION

Although all of the Annette Islands Reserve is important in the function-
ing of the freshwater, marine and upland ecosystems which produce the
natural resources, there are several areas which are particularly note-
worthy as locations of resource production and use. These include three
estuaries and their upland drainage basins, where uses range in intensity
frcm light recreation to heavy industry, but which have a high potential
to produce renewable natural resources. These three areas, Canoe Cove,
Taffngas Harbor and Port Chester, and their watersheds, (Figure 20) are
reccmmended as Areas Which Merit Special Attention in order to devote to
them more intensive efforts in resource inventory and management.

Canoe Cove and Watershed

(1) Basis for Designation (under Alaska Coastal Management Act)

(A) "areas of scarce, fragile or vulnerable natural habitat"
Of all the estuaries on Annette Island, the inner portion of Canoe
Cove is the most protected from wave action, and is one of only
a few substantial areas of soft-sediment tideflat with tidal
marsh on the west side of the island. The tideflats and marshes
are vulnerable to disturbance frcrn any vehicle use or construction.
The stream feeding the cove are also vulnerable to disruption
by activities in the uplands.

(B) "areas of high natural productivity or essential habitat for living
resourcesit
The tidal marshes and eelgrass beds in the estuary have a high
primary productivity, and the tideflats appear to be exceptionally
productive of clams. The streams feeding the bay are essential
spawning habitat for pink, chun and coho salmon, and the tideflats
are probably essential feeding habitat for the pink and chum salmon.

(C) "areas of substantial recreational value or opportunity"
Canoe Cove is presently used for recreation by sane Metlakatla
residents. With minor improvements, it could draw additional
recreationists without haiming the natural systems.

121

Figure 20

................. ..... ...... .... .....
...................... ....... .........

.................. ....... ...............
................
............. .................
........................... ....... ..
270
90
...................... ................... ....
.................. ......................
..........................................
........ ......................
...............................
...............................
. ............
............................... ..... :.
...... ...................... ...... . ......
.... ................. ..... ..........
..... .....
... .... .....
. .............
ISO ......

.... ..................

.... .... ... ......

Pt ster
. ..............
and Wate-rshe
..............
..............
...............

0
............ *............
.......... ...............
C=Q*
..............................
..........
......... ...
... ......... .....

. . . ............
.. . .........
... .. ...............
.... ...................

....... ....................
...................
....... ...................
..................
Tamgas Harbor
..... ............................
............................
and 'w"waltershed
... ....... .
.......................
....... ...............
...... ...............
CQ
...............
....... ......................
........ ......................
......... .......... I..........
....................
...................
..... ......................................
Canoe Cov
................... ...............
Cb .........
Watershed
..........

............
.................. X. -X
................
........ ......... . .......
. ............. ......

............... ................ ......
.... .... ................ ......
.......... .. ...
00

0 1 2 3 4 5 NT@S
Pr12-R --

1 .5 0 2 34 5 -W--
Areas Which Merit Special Attentio

(2) Map

CanoeCove and its watershed are niapped in Figures 21 and 23.

(3) Description of the Area

The smallest of the three AMSA's, Canoe Cove is a 415-acre (168
hectare) errbayment on the west side of the Metlakatla Peninsula.
As Figure 21 shows, the cove can be divided into an outer cove
and an inner cove, based on the exposure to the more open waters
of Nichols Passage and Clarence Strait.

The inner cove includes the southern one-fifth of the area of Canoe
Cove. It is composed largely of tideflats and shallow water, and is
protected fromt the open water by a narrow constricted entrance, and
by several small islands an gravel bars which break the force of the
waves at high tide and restrict the circulation of the water. The
inner cove is accessible to hikers by a short trail leading from the
end of Canoe Cove Road.

The outer cove includes the area north of the inner cove, out to a
line running northeasterly frcin Point McArthur to a U-shaped island
in the cove, and then northerly fran that island to the first point
of land. The low tide exposes a much smaller portion of the outer
cove than the inner cove.

Water Conditions

The water conditions in Canoe Cove make possible -the growth and survival
of the population of marine and estuarine organis-m which inhabit or
migrate through the cove. At the time of preparation of this report
only a small amount of quantitative data on water conditions was availa-
ble, from sampling in August, 1978, and January, April and May, 1979.
(Appendix IV ). This discussion is based on those data, along with
observations frcin winter, 1977, and spring, 1978.

The available data do not show any certain deficiencies in the ability
of Canoe Cove's water to support fish and shellfish, but they do
point toward possible problems, the severity of which depends on
circulation and exchange.

The highest temperature recorded to date was 15.0' C on the surface
in the outer cove on a hot day an August, 1978. This temperature is
within the range required for survival by salmon, although not within
the optimum range as listed by Bell (1973). The lowest dissolved
oxygen levels were measured only in January, 1979 at 7 pr-m on the sur-
face and 6 ppm on the bottom of the Outer Cove, and 7 ppm on the sur-
face and 8 ppm on the bottom in the Inner Cove, the 6 ppm needed for
salmn survival.

It is possible that in the summer the water in the inner cove my
undergo changes that would stress salmon. When the tide brings the
wam surface water from the outer cove into the inner cove, over the
sun-heated tideflats, the temperature of the water might exceed the 160 C

723

Area Which Merits Special Attention

.........................................................
FI ...............
gure ............
BATHYMETRY
..............................
...............
... ..............

............... .........

...................... ...............
...............

.....................................
..... ....... ..............................................

............ .........

..........
..........
...........
............
............

.....................................
........................................

.......................................
........................................

.......... ..... .........

.......................................
......................................
................................ I......
...........................
X ............... ....... .
... ........ ..........
...........
......... .............................................
................................ ........
..... ................. ..............................
..............
....... .......
.......................

.... ...................................................................................
........ ......

.................... ... ........
...........

... .................. ................................... ..........
..........

........................ ............ ......
....................................................... N.......
.............. ........
......................................... .

..............................
.............................
....... ..........................
and Watershed

upper limit of salmon tolerance. Not only would the temperature be
dangerously high, but the oxygen would be less soluble in the
wan-ner water. At 180C, for instance, the dissolved oxygen would drop
to no higher than 6 ppm.

Whether such a problEm would be a serious limitation on the cove's
ability to produce fish and shellfish would depend on whether the
circulation patterns of Canoe Cove allow any warm, oxygen-deficient
water to be exchanged with cooler, oxygen-rich outside water.

Circulation in Canoe Cove is controlled largely by two factors. Tidal
action carries seawater from Clarence Strait into and out of the cove
twice daily. In addition, freshwater runoff from the uplands enters
Canoe Cove from three major streams and several smaller streams. As
this freshwater enters the cove it displaces seawater, helping to
flush out the cove into Clarence Strait, and assisting in the mainten-
ance of water quality. In addition, the freshwater outflow promotes
an inflow of nutrients, as described in Chapter 5.

Visual observation at the head of the inner cove indicates that, during
times of substantial upland runoff, the water of lower salinity, being
less dense than the water of higher salinity, flows out in a somewhat
discrete layer on top of the higher salinity water. The layering, or
lack of layering, is important in the circulation of water in the cove,
since unmixed water masses are likely to undergo less exchange with
outside waters. This layering is sometimes maintained (to a lesser
extent) in the outer cove as well, in spite of the greater wave and
current action. Summer sampling (August, 1978) there revealed a shallow
layer of warmer, lower salinity water on the surface, with colder water
of a slightly higher salinity below a meter depth. The shallowness of
this layer of less dense water suggests that tidal currents and waves
generated by north winds probably mix the waters of the outer cove.
The data from January, 1979, taken during a time of north winds, also
show fairly good vertical mixing of water in the outer cove, as does
data from April and May, 1979.

Besides vertical mixing, horizontal mixing of water inside and outside
the cove is important in determining its circulation patterns. The
movEment of water into and out of Canoe Cove was investigated in a
series of float studies (PRPI, 1977a). Results from one ebbing tide
and one flooding tide showed surface water moving between the head and
the mouth of the inner cove in less than half a tide change. At that
time (January, 1977) the outflow of low-salinity surface water did not
prevent tidal water from moving from the mouth to the head of the inner
cove, also at the surface. The narrow entrance is not so constricted
as to prevent water from the head of the inner cove from moving out into
the outer cove. Once in the outer cove, its exchange with seawater from
Clarence Strait or Nichols Passage likely depends on the strength of the
tidal currents. In May, 1979, at a.time of noticeably strong tidal currents,
the waters of Canoe Cove appeared to be nearly identical to those of
Clarence Strait outside.

Further complicating the question of flushing and renewal of the water
in Canoe Cove is the fact that the bottom of the outer cove between
Point McArthur and the islands to the northeast is shallower than it is

125

to the east or to the west (Figure 21). This formation, referred to
as a sill, restricts the circulation of the deeper water on either
side. Thus, while the mouth of Canoe Cove is over 5,800 feet (1768
meters) wide at the surface, the unobstructed channel of greater than
12 feet (4 meters) deep is only 1,450 feet (442 meters) wide, about
me-fourth the width of the mouth at the surface (Figure 22).

Figure 22
Canoe Cove, Cross Section Across Mouth

canoe Cove Vertical Exageration 30X
0- Island Island :sland waterline

4j
2 -
...... . .....
......... ...
..........
...........
-r 3 - .............
...............
... .... .....
4

......... .
. .................
...... ......
.. .. .. .. .. .. . . . . . . . ..
. . . . . . .. . . .. . . . . . . . . . . . . .. . . . . .. . . . . . . . . . . . . . .. . . . . . . .
0 ;@4
South End E@tuary Boundary (section in miles) North End

Until the circulation patterns, and the resultant water quality can be
more fully documented, the inner part of Canoe Cove must not be consid-
ered suitable for intensive aquaculture operations. While the fish and
shellfish using the estuary confirm. its ability to support their popir-
lations at the existing (and unknown) levels, there is enough evidence
to suggest that large number of fish confined in floating pens or
other structures might require more water flow, colder temperatures and
more dissolved oxygen than would be available in -the summer.

Sediment

sediment particles (gravel, sand and silt) leaving primarily large
In -the outer cove, wave act-ion fran open waters scours away the finer

cobbles, angular boulders and exposed bedrock on the beach. In the
spaces between and under the boulders, some gravel and sand has collected,
but elsewhere it is absent in these exposed areas. Also absent or
inconspicuous is organic debris and detritus fran fragmented or dead
plants and animals. This material is either washed caway by the waves
into deeper, quieter water, or quickly consuned by animals.

In the constricted channel between the outer cove and the inner cove
the action of the water is less severe. Cobbles are more praminent
on the beach here than in the outer cove, along with some angular
boulders.

126

Further inside, the inner cove is protected from most strong wave action,
and tidal currents appear to be the main influence in transporting
sediment. Here finer sediment is able to settle out, forming extensive
tideflats. With the exception of a few channels through wtdch the out-
going water flows, the entire inner cove is exposed at MLLW. In the
areas with little scouring action by currents, the tideflats are cm-
posed largely of sand, silt and clay. In other areas, particularly at
the mid-tide elevation, where the current is strongest, the beach is
made up of cobbles and gravel with the finer sediments found only under-
neath, where they cannot be washed away by the currents. There are also
a few bedrock outcrops in the inner covel protruding fram the tideflat
at low tide, and appearing as small islands in the cove at high tide.

The calm water in the inner cove has also allowed the accumulation of
decomposing organic material in the fine sediment. As this material
is broken down by bacteria, the dissolved oxygen becomes insufficient
to suport the aerobic (oxygen-consuning) bacteria, and the decamposition
is then carried on by anerobic (non-oxygen-consuming bacteria). These
bacteria produce the characteristic black color and hydrogen sulfide
(rotten eggs) odor in the sediment. The color and odor of the tideflats
therefore indicate insufficient oxygen to support both aerobic bacteria
and the animal life present there (Green, 1968).

Benthic Habitats

The animals and plants of the benthic, or bottam-dwelling connunity vary
greatly in their structure and behavior with the diverse habitats found
in Canoe Cove. THe type of substrate, determines to a great extent
which organisms can inhabit an area.

The outer cove's beaches characterized largely by solid bedrock, boulders
and cobbles, affords habitat for attached animals, such as sponges,
barnacles, mussels and anemones, and for clinging animals such as sea-
stars, snails, limpets and chitons. These animals, and the rockweed,
kelp and other species of algae present are exposed to rougher water
than are those on the inner cove. By permanently attaching themselves
to a rock, or clinging to the rock and moving very slowly, they can pro-
tect themselves against the wave action.

Motile animals (those which walk or swim) are reprsented in the outer
cove by purple shore crabs, hermit crabs, other small crustaceans and
blennies (--mll eel-like fish). These animals are found in the
spaces under and between the boulders and cobbles, where they are pro-
tected not only agains wave action but against predators as well. While
they are not readily visible to the casual beachwalker, they became
more apparent if one turns over the boulders and cobbles. Buxrowing
animals, such as claim and worms, are sparse here, due to the rocky
substrate which is unsuitable for burrowing. Subtidally, where wave
action in less intense and rich kelp beds enhance the habitat, larger
invertebrates such as octopus, abalone, and rock scallop inhabit the
cove (Chuch Osborne, U.S. Fish and Wildlife Service, personal communi-
cation, February, 1977) along with smaller animals including anemones,
nudibranches, seastars and sea cucumbers, which live in water just below
the NLLW line.

127

In the inner cove, where - the sediment is carposed of smaller cobbles,
gravel, sand and mud, burrowing animals are predominant. Littleneck
and butter clams are ccnmn in the gravel beds, while Macoma clams
inhabit the sand and mud. Polychaete worms (bristleworms) burrow
in the tideflats; as well.

The marine vegetation in the inner cove is dominated by roclweed, which,
although it lacks a solid substrate for attachment, thickly covers vast
areas of the tideflats. At tide levels below NLLW, such as in the tidal
discharge channels, beds of eelgrass grow in the soft sediment. Both
the rockweed and the eelgrass serve as food, shelter and a surface for
attachment for a diversity of animals and plants.

The eelgrass and the animals of the tideflat provide food for migratory
waterfowl, indirectly contributing to hunting in Canoe Cove.

The U.S. Fish and Wildlife Service has found that the inner
coveis extremely rich in Dungeness crabs, and possibly serves as a nur-
sery area for juvenile crabs. Spot shrimp, another ccmnercially valu-
able shellfish species, have been found to use the quiet waters of the
inner cove.

Aside frcm using the eelgrass habitat, attached and clinging species in
the inner cove are limited to two habitats.. They use the rocky substrate
on the few small islands, and the cobbles that line the shoreline at the
mid-tide levels. These animals include periwinkles and limpets on the
cobbles, joined by barnacles andmussels on the larger cobbles, boulders
and bedrock.

Fish

Available information on fish utilizing Canoe Cove is extremely Limited
and conflicting. Sampling by the U.S. Fish and Wildlife Service found
no fish in creeks which they labelled "Canoe Cove Creek i" and "Canoe
Cove Creek II. " The USF&WS sampling effort may not have been sufficient
to document fish use in those stream, or the sampling may not have coin--
cided with the timing of spawning escapement and juvenile outmigration.

Reports fran local residents rate Canoe Cove as valuable to the fishery
resources of the island. The stream flowing into the southeast corner
of the inner cove apparently supports pink salmon, wtiile one feeding
the southwest corner is reported to be an excellent oobo stream. One
fairly successful Metlakatla fisherman reported in 1977 that, during
spawning runs, the cove is "plugged" with salmon. Gillnet Creek,
feeding the outer cove was rated by the USF&WS as good spawning habitat
and is used by pink, chum and ooho salmon.

Other fish likely to use Canoe Cove include flounder and sole feeding on
the burrowing animals of the inner cove during high tide , and sculpins,
rockfisn and possible cod and pollock in the rocky areas of the outer
cove.

128

Watershed

Canoe Cove's 1,498-acre watershed is typical of most of the metlakatla
Peninsula. Underlain by impermeable metamorphic rock, it has developed
the muskeg communities and peat soil characteristic of poorly drained
land in southeast Alaska. Much of the land is covered with sphagnun
moss, with shrubs and herbaceous plants present in lesser coverage.
scrub muskeg, with stunted cedar, hemlock and lodgepole pines is also
ccmmon. Several sizeable but shallow lakes are located to the south
of Canoe Cove. These lakes are bordered by sedge muskeg. Those three
muskeg types provide habitat for birds, small mammals, furbearers and
deer, as discussed in Chapter 7.

The only true forests in the watershed grow on the gravelly beach-
uplift soil near the shoreline. Viewed fran the water, Canoe Cove
appears to have a heavily forested watershed. The forest extends only
a short distance inland, however, and is not extensive enough to be
considered commercial forest land.

Most of the watershed remains in an undeveloped state. The only
exceptions are the unpaved Canoe Cove Road and small portions of the
airport runway and Airport Road. At the lower end of Canoe Cove Road
are the remains of quonset huts used by the military during world
War II. The narrow trail from the road to the shoreline runs through
the poorly-drained peat soil. Even the minimal use it receives has
been more than the soil could support. The result is a muddy, eroded,
potholed path, badly in need of maintenance.

(4) and (5) Ownership, J.ueisdiction Management Status and Use

Canoe Cove, its tidelands, offshore areas to 3000 feet (914 meters) fran
the low tide line and the entire watershed are held in federal trust
status for the Metlakatla Indian Cammmity. Management decisions are
made by the Ccmnunity (described in more detail in Chapter 8), with the
Bureau of Indian Affairs having trust responsibility.

Of the three AMSA's, Canoe Cove is subject to the least intensive use.
Access no doubt limits the frequency and intensity of use, since Canoe
Cove Road ends about one-quarter mile above the cove, and those venturing
down to the cove must follow a winding, muddy trail through muskeg and
forest.

At present, the predominant use of Canoe Cove is recreation and subsis-
tence, with c1mming and crabbing suported hy the abundant shellfish
populations in parts of the cove. Duck and goose hunders use the cove
and have constructed a blind on a small island to facilitate hunting.
Several trappers use the Canoe Cove area as a location for traplines for
furbearers in the winter. Fishermen also use the cove as a safe anchor-
age during stonrty weather and before fishery openings.

(6) Present and Anticipated Conflicts Among Uses

In 1976 the Louisiana-Pacific Corporation proposed to construct a log
storage and handling facility in Canoe Cove as part of a larger project
for timber processing on Annette Island. The project would have changed
129

Area Which Merits Special Attention

. ....... ...

...........................

..................
Figure 23
TOPOGRAPHY
.........................

...............
....... ....

........................
..................

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................
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...............
.......................

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PACIMC 04 PLqNHM6, INC.
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Canoe Cove
................................

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and Watershed

the character of the cove considerably, clearing the shoreline and
installing standing log booms, pilings, extensive rafts, and a new
road to the shoreline. No agreement was reached between the Communi-
ty and Louisiana-Pacific on the lease of land, and the project has
not been constructed; however, the protected character of the cove
will make it attractive as a harbor for other such uses in the
future.

A good deal of evidence was presented, at the time of the Louisiana7-
Pacific proposal, that the log handling facility could have a detri-
mental effect on the water quality and fish and shellfish of the
cove (PRPI, 1977a). In light of the potential for naturally-occuring
water qual 1 ty problems in Canoe Cove, discussed above, maintaining
the estuary's natural productivity will require that any projects
there be approached with caution. It is likely than any large-
scale development involving vehicles, shoreline construction and a
new road to the cove would conflict with the present uses of Canoe
Cove for resource production and light-intensity harvest.

(7) Proposed Management Scheme

The future management and use of Canoe Cove will be based on the
following policies:

Use of the Estuary:

The Ccmuunity will limit those uses, particularly permanent development
or intensive resource utilization, which represent potential adverse
impacts upon the estuary's natural productivity.

Use of the Watershed:

The Community shall limit development of the Canoe Cove watershed to that
which is compatibel with renewable marine resource production.

The uses and activities which will be considered proper and those which
will be consider improper are those which are consistent and inconsis-
tent, respectively, with these policies. These uses are listed on the
following page.

As with other resource management policies on the reserve, this manage-
ment scheme will be implemented by Council and BIA decisions on siting
of roads, facilities, etc.

131

Table 10-1

CANOE COVE ALLOWABLE USES

USES AND ACTIVITIES CANOE COVE
COASTAL DEVELOPMENT -Estuary Watershed

Residenti al not allowable allowable
Commercial not allowable not allowable
Landfill not allowable not allowable
Dredging and Dredge Spoil Disposal not allowable not.allowable
Boat Basins not allowable N/A
Piers allowable N /A
Terminal and Storage Areas allowable allowable
Aquaculture Facilities allowable allowable
Breakwaters not allowable N /A
Bulkheads and Other Shoreline Protection allowable N /A

RECREATION allowable allowable

TRANSPORTATION

Airport N/A existing
Floatplane Facilities allowable allowable
Streets and Roads not allowable allowable

UTILITIES

Hydroelectric Dams N /A N /A
Diesel Generators not allowable allowable
Fuel Offloading and Storage n6t allowable not allowable
Sewage Treatment Facilities N /A not allowable
Treated Sewage Outfalls not allowable not allowable
Water Storage allowable allowable
Utility Lines (water, power, etc.) allowable allowable

FISH AND SEAFOOD PROCESSING
not allowable not allowable

TIMBER HARVESTING N/A not allowable

TIMBER PROCESSING

Manufacturing not allowable allowable
Log Storage existing* allowable
Bark and* Chip Disposal not allowable not allowable

MINING not allowable not allowable

SUBSISTENCE allowable allowable

N/A = Not Applicable

existing = Facility is already located in area, but expansions or
additions unlikely and inconsistent with policy.

132

Tarngas Harbor and Watershed

(1) Basis for Designation (under Alaska Coastal Management Act)

(A ) "areas of ... scenic importance"

Tamgas Harbor provides the viewer from Annette with a spectacular
view of towering mountains and rounded glacial valleys. Local
weather patterns and the northern lights are both enhanced when
frarrang Tamgas Mountain.

(B) "areas of high natural productivity or essential habitat for living
resources It

Tamgas Harbor's stream, particularly Tamgas Creek, are well-known
on the island as important sa1mon producers. The tidelands are
also prodigious in their production of clams and crabs, which are
harvested by local residents, and other benthic organisms which
feed the fish and waterfowl in th@ harbor.
(C) "areas of substantial recreational value or opportunity"
Both Purple Lake and Tanngas Lake in the watershed are accessible
by trail and are well-used for recreation. The waters and beaches
of the harbor itself provide island residents with opportunities
for sports fishing, shellfishing, biking and boating. Its value
for small boating is enhanced by a dock aria a boat ramp at Annette.

(D) "areas where the development of facilities is dependent upon the
utilization of, or access to, coastal waters"
The salmon hatchery being constructed at the mouth of Tamgas Creek,
and the temporary incubation facility now operating at Annette
both depend on utilizing freshwater (for operating)and access to
saltwater for releasing fish.

(E) "areas of unique geologic or topographic significance which are
susceptible to industrial or commercial development"
While the entire Metlakatla Peninsula is a rarity as a vast expanse
of flat land in mountainous southeast Alaska, the Annette area is
particularly significant as developable land. Originally cleared
and filled by the Coast Guard, the area has a good deal of flat
land underlain by gravel, with access to roads, airport and
navigable marine water.

from 6 AAC 80.160 (b) (1) "areas important for subsistenc hunting,
fishing, food gathering and foraging"
The tidelands of Tamgas Harbor, especially Hospital Bay north of
Annette and Point Davison at the south end of the peninsula, are
well used by Metlakatla residents for subsistence gathering of
clams and crab, abalones and seaweed.

(2) Map

Tamgas Harbor and its watershed are mapped in Figures 24, 26 and 27.

133

(3) Description of the Area

At 5,066 acres (2051 hectares), Tangas Harbor (defined here as all the
waters to the north of a line north of Survey Point to Point Davison) is
the largest estuary on Annette Island. The harbor reaches a depth of
56 fathoms (103 meters), but average depths are 20 to 30 fathom (37 to
55 meters) .

There are two smaller embayments that are noteworthy as parts of the
Tamgas Harbor estuary. One, Hospital Bay, is a loosely defined cove
at the mouth of Hospital Creek, north of Annette. The other, the Salt-
chuck, is a long narrow body of water south of Moss Point. Nearly
isolated frcrn the outside, the Saltchuck is uniquely protected fraL
the wind and waves which pound the rest of the harbor during stoms.

Tamgas Harbor's watershed, which covers an area of 14,105 acres (5710
hectares) includes slightly less than half of the Metlakatla Peninsula
on the west. To the east, it includes portions of Purple Mountain,
Bald Ridge, Berry Knoll, Chapeau Mountain, Davison Mountain, and Tamgas
Mountain where, at 3315 feet (1020 meters), the watershed and the island
reach their highest point.

Water Conditions

Tamgas Harbor's water chemistry and circulation characteristic make
possible its production of fish, shellfish, waterfowl, and marine mammals.
These characteristics present both Opportunities and limitations to
develolpment of marine resources. The fOllOWIng discussion is based on
measurements taken in April and August, 1978, and in January, March, April
and May, 1979, and on visual observations throughout the year
(Appendix IV).

With the exception of the Saltchuck, which is discussed later, none of
the water quality data available shows the estuary to present any definite
problem in temperature, dissolved oxygen, or pH for natural fisheries
production or aquaculture development. The water tenperature remains
cold. Never measured above 14.00, even at the surface on a hot sunny
day in August, it was safely below the upper level of tolerance (161C.)
for salmon (Bell, 1973). At the end of an extended period of subfeezing
weather, the runoff from melting snow and ice and the cold air temperature
cooled the water to 4.50Con the surface and 6.00 C. at a depth of 10
meters. While these temperatures are below the optimum range for growth
and survival of salmon, they are probably limited to these short-ten-n
cold spells and are more likely to limit fish growth than their survival.

Neither of the two temperature extremes measured to date is unsuitable for
growth of oysters, although the summer temperatures are probably not
wam enough to permit oyster spawning or survival and setting of larvae.

As might be anticipated in saltwater, the pH (acidity-alkalinity) was
measured at a neutral to slightly alkaline level (7.0 to 7.6). The
buffering effect of seawater tends to make the harbor alkaline; the pH
might be higher were it not for the tannic acid an the muskeg runoff
that enters the harbor.

134

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Area Which Merits. �2ecial Attention
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Within the top 15 meters, the water in the harbor appears to be further
enhanced by fairly good vertical mixing and exchange with outside
waters. Although the copious freshwater runoff from the uplands tends
to form a somewhat discrete layer of low density water floating above
the higher density, higher salinity water, the layering effect is probab-
ly short-tenn. In most of the measumment the distinct layering was
limited to the top few meters, and was more noticeable near the shore than
in the center of the harbor. The most pronounced layering measured (with
salinity of 17.0 o/oo at the surface and 24.0 o/oo at a depth of 1 meter)
was at the Tangas Dock on a flat, calm day at a time of heavy runoff
from snownelt. At the other tunes the salinity and temperatures exhibit-
ed a more continuous graduation from low salinity at the surface to
higher salinity at depth. Tamgas Harbor has an open southern exposure,and
waves generated by the frequent southeast winds probably prevent any
long-term layering of shallow water masses.

Little data is available on the deeper waters of the harbor. one sanple
taken south of bioss Point near the bottom at a depth of 21 meters showed
a distinct difference in temperature, salinity and dissolved oxygen
between the bottom and the waters above 15 meters in depth. This
water was not confined inside the harbor, but it presents the possiblity
that water near the bottom inside the harbor has also formed distinct
masses of high salinity and low oxygen. Inside the. harbor, such water
masses might remain stagnant until the oxygen is nearly consumed. While
there are no deep holes in the harbor to confine high-density water masses,
there is a partial sill extending from Grey Point to Survey Point that
probably restricts somewhat the circulation of water below 20 fathoms
(37 meters) in depth. If deep high-density water does become stagnant and
low in dissolved oxygen, it could inpair the productivity of the deeper
waters.

Another significance of deep water masses is that they are very likely rich
in organic nutrients needed near the surface for primary production by
phytoplankton, macroalgae and eelgrass. Although no water has been
analyzed for nutrients, it is probable that dead marine plants and animals
settle and decompose near the bottom. The resultant inorganic nutrients
accumulate in areas of slow water exchange. If these nutrients mix with
the surface water, they could induce a bloom of production by phytoplankton
followed by an increase in zooplankton, which in turn would be available
as food for juvenile fish. A bloom of phytoplankton could also be used as
food by shellfish. Determination of the extent and timing of nutrient
availability would be valuable in the siting, design and operation of
aquaculture facilities.

Benthic Habitats

As it does elsewhere on Annette Island, the distribution of sediments
in Tamgas Harbor reflects the degree of exposure of the shoreline to
storm waves. In addition, the many stream entering the harbor carry
sediment which is reworked and transported by the waves and currents.

The resulting shoreline supports rich and diverse communities of benthic
organisms, animals and plants living on and in the bottom. Figures 10 and 11
in Chapter 5 show the location of each of three major types of benthic habitat
in Tamgas Harbor.

136

The hard-surfaced habitat, mapped as "Rock" in Figures 10 and 11,
:includes solid bedrock outcroppings and boulders. This habitat
daninates the outer portion of Tamgas Harbor, particularly on the
east side, and on the west side between Grey Point and Point Davison.

Just as the force of the waves created the hard-surfaced habitat by
scouring away any fine sediments, it also creates a community of benthic
organisms adapted to withstand the pounding of the waves. As described
in more detail in Chapter 5, this habitat supports attached organisms
(such as barnacles, mussels, tube worms, anemones, sponges, etc.) and
clinging organisms (such as starfish, chitons, or gumboots, abalones,
snails, etc.)

The fine-sediment habitat (mapped as "Fine") is found largely in coves
protected fran south winds and at stream mouths. Hospital Bay is per-
haps the best example of this habitat. Sheltered by Tent Point and fed
by several streams, this cove has broad sweeping tideflats of mud, sand,
and gravel, with eelgrass beds in much of the lower intertidal zone.

The fine-grained sediment provides no surface for attached or clinging
organisms, as the rocky shoreline does, but instead supports many burrow-
ing organisms, including clams, crustaceanst and polychaete worms.
Dungeness crabs and several species of clams thrive in this habitat,
where they support a subsistence fishery.

The third major,type of benthic habitat is the mixed-coarce sediment
shoreline. Ccnposed of a mixture of cobbles and qravel, (and.mapped as
110oarse"), this habitat is ccnTmn much of the harbor's shoreline north
of Tent Point. Being a mixture of sediments of different sizes, it
provides a rich habitat to both the burrowing organism and the attached
organisms described above.

Fish

At least 12 streams tributary to Tamgas Harbor have been documented
as producing salmon. Pink salmon can be found in nearly all the streams.
Chums are native to five stream and have been introduced into Tamigas
Creek annually since 1977. Cobo sahnon spawn and rear in six streams,
while sockeye spawn and rear in Tamgas Lake.

The harbor is used by king and coho salmon for feeding, and is therefore
a popular bay for trolling.

Yellow Point, on the harbor's east side, has been used by herring as a
spawning ground, although the fish do not appear to use it in large numbers.

SaItchuck Water Conditions

Located near -the southern end of the Metlakatla Peninsula the Saltchuch is
nearly cutoff frcrn Tamgas Harbor, and is well protected frcin ston-n waves
fran all directions. This enclosed condition is an asset in the often
turbulent Southeast Alaska weather, but it has drawbacks in its effects on

137

water quality of the Saltchuck. This analysis is based on data collected
in August, 1978, and is therefore limited in seasonal perspective.

As is common in Southeast Alaskan estuaries, the Saltchuck exhibited a
slight layering of water masses, with the surface water me to two parts
per thousand less saline than the deeper water. This layering is reflected
.in the temperature as well, Much was several degrees warmer at the,sur-
face than on the bottcm.

Contrary to what might be expected fran the acidic muskeg runoff, the pH
of the water was at or near that of freshwater (7.0 on the surface; 7.4 at
13 meters in depth); however, the surface pH was lower (more acidic) than
usual for seawater, which is generally slightly alkaline. This pH level
relfects the influence of the runoff but was within safe limts for most
marine animals and plants.

Circulation in the Saltchuck is less than ideal, however, and appears to
lead to problem with the level of dissolved oxygen. Estuarine circulation
is driven by three major forces: freshwater inflow, wind, and tides.
All have deficiencies in circulating water in the Saltchuck.

The Saltchuck receives runoff fram the surrounding muskeg and forest
freshwater, but does not have nay major tributary streams as the other
bays on the island have. The Saltchuck has a fairly small drainage
basin, and freshwater runoff is probably not a major force in its
water circulation.

As mentioned ea lier winds also have a minimal effect on the Saltchuck.
Not only is it protected form the southeast waves which pound the shoreline
outside, but the tall trees around its shoreline act as a screen, atten-
uating the windis ability to generate waves in the SaItchuck.

Tidal circulation joins the SaItchuck with outside waters by drawing
its water through two very narrow, constricted channels, which can carry
only a limited volume of water. At full ebb or flow, -the tidal current
in these channels is impressively swift, but the channels are very
shallow, and the water that is exchanged is likely fram near the surface.
Even if the current reached 10 knots, however, the channels, which have
a cross-sectional area of no more than 14 square meters when full, could
probably not draw the water dam more than 2 meters (6 feet) in the Salt-
chuck.

The limited surface outf low appears to confine the deeper water in the
Saltchuck for longer periods of time. During that confinement, respiration
of benthic organisms and bacteria consumes dissolved oxygen from the water.
The turbidity of the water does not allow sunlight to penetrate to the
bottan (at 5 to 13 meters deep), so plants cannot photosynthesize and
reoxygenate the water. The result is a seriously low dissolve oxygen level-
between 1 and 2 ppm at a depth of 13 meters near the mouth, and 5 ppm, at
a depth of 5 meters near the head.

These low dissolved oxygen levels would be unsuitable for intensive cul-
ture of fish or shellfish, which would only exacerbate the situation in
deep water. An aquaculture installation floating in the surface water
layer (perhaps down to 3 meters in August) would likely remain out of the
stagnant layers and might be safe frm low dissolved oxygen levels, but

138

surplus food and the metabolic wastes of the animals, would likely
sink to the bottorn and further consume dissolved oxygen in the deeper
water.

An additional phenomenon might play a role in the Saltchuck's circu@-
lation patterns. In the fall, when the air cools below the temperature
of the surface water, it cools the water too. When the surface water
reaches a temperature lower than that of thedeepwater, it may be more
dense, and may sink, forcing the ddep water up to the surface. If
the deep water is low in oxygen at that time, it could be dangerous for
any organisms confined in the Saltchuck. This possibility is specula-
tive, however, since no data has yet been collected there in cold
weather.

Watershed

Taragas Harbor's watershed is perhaps the most diverse on the island, in
ten-as of both habitats and human uses of resources. The habitats range
from the lo@%-lying sodden muskegs of the Metlakatla Peninsula, to the
craggy peak of Tangas Mountain. Higher elevation muskegs carpet a
small amount of land east of the harbor, and forest cover the slopes of
the mountains.

The fresIvater habitats include Tamgas Lakes (Upper and lower) and the
smaller Tent Lake. Numerous muskeg lakes and ponds drain from the
peninsula into the harbor. Among these is Yellow Hill Lake, the largest
muskeg lake on the island, and the water supply for the Annette area.
The harbor is also fed by at least 12 streams draining the muskegs to the
west and the mountains to the east.

(4) *and (5) Ownership, Jurisdiction, Use and Management

As with -the other lands and watiers of the Reserve, Tamgas Harbor and
its watershed are held in trust status by the federal government for
the Metlakatla Indian Community. The Metlakatla Ccmmu-Lity Council has
jurisdiction aver the area, with the Bureau of Indian Affairs exercising
trust responsibility.

The uses of the harbor and watershed are remarkably varied. At the light-
intensity end of the spectrum are the subsistence uses, fishing, shell-
fishing and hunting which are popular here because of the road access
to several points. Commercial trollers use Tamgas Harbor to a limited
extent, but net fishing is prohibited inside the harbor.

A 3-million egg salmon hatchery is operating in the Annette area, using
water from Yellow Hill Lake, and a larger hatchery, with capacity for
10 to 20-million eggs, is under construction at the mouth of Tamgas
Creek.

Another user of the abundant water resources of this watershed is the
Purple Lake Power plant, operated by Metlakatla. Power & Light. Although
this plant does not supply all the enerqy needs of the Comnunity, it
is the major source of electricity on,the island. The hydro power
is supplemented during low flow periods by a diesel generator on the west

139

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..............................
....................................

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side of the harbor. Oil storage tanks for this facility are located
near the shoreline at the head of the bay, and supplied by barge.
Another group of oil storage tanks, adjacent to the Tamgas Dock at
the Annette area, supplies heating oil to the island.

A major housing area is located at Amette. Formerly used by employ-
ees of the Federal Aviation Administration and Western Airlines,
these nine buildings house about 25 families. Several other buildings
are located in this area, including the former Annette School, the
Community bowling alley, an auto maintenance shop, and a number of
abandoned Coast Guard structures.

The other reminder of Coast Guard presence in the watershed is the
Annette Airport, which perches on the drainage divide for the peninsula.
The airport includes two runways, a large hanger, an active station
of the National Weather Service, a gas station, and the former Coast
Guard barracks, which now house the offices for a number of Community
functions.

(6) Conflicts AmongUses and Activities

At the present time, conflicts among uses and activities in Tangas Harbor
and its watershed attract the attention of only a few local residents.
As the resources of the harbor are developed further, however, it can
be expected that more people will become involved in resource use, and that
same activities will become more controversial.

one problem which became apparent several years ago is the offloading and
storage of oil near the shoreline. A 1975 oil spill near the head of the
bay (cleaned up by local and Coast Guard persomel) led to scm concern
about the advisability of operating oil transfer facilities at the inside
of a semi-enclosed body of water. Both the diesel tanks and the heating
oil tanks have leaked oil into the harbor at least once.

Another problem of more recent concern has been the disposal of bark chips
fran the Annette Hemlock Mill. One of the two sites used by the mill is
near Hospital Creek in the watershed, and several Community members are
concerned about the potential for damage to the harbor's fishery resources.

other conflicts are likely to beccrne noticeable when the access road is
constructed to the Tamgas Creek Hatchery. During construction, the earth-
moving and excavation will probably introduce some sediment into Tent
Creek, but this problem should be short-lived. A more long term effect
of the road will result frm the increased access it provides to the east
side of the harbor. Tamgas Lake, now accessible only by boat and primitive
trail, will be opened up with vehicle access to the mouth of the creek,
and an excavated trail,needed to install the hatchery's water intake line.
Intensive public use of the lake may not be compatible with its function
as a water supply for the hatchery.

The future of the Annette area and the airport is uncertain, but the use
of either might have a profound effect upon the character of the watershed.
Both areas have vacant buildings and a good deal of developable land.
Since developable land is a scarce commodity in the region, these areas must
be considered likely sites for future development on the island. Policies

141

concerning the types of uses, and the allowable effects of those uses,
will be important in shaping the future of the watershed, the harbor,
and the Ommunity's resources.

Proposed Management Scheme
The future management of Tamgas Harbor and its watershed will @e based
on the following policies:

Use of the Estuary - - I
The Ccmmrdty shall allow a variety of water-related uses in Tamgas Harbor,
provided that the uses are compatible with'marine resource production,
develogrent and us.

Use of the Watershed

The Commmity shall encourage further uses and develop-nent of presently
and previously developed areas of Tamgas Harbor's watershed, provided that
the uses and activities have no detrimental effect on the productivity
of the harbor.

The uses and activities which will be considered proper and improper are
those which are consistent and inconsistent, respectively, with these
policies. These uses are sun-aarized on the following page.

As with other policies for resource management on the reserve, these will
be implemented by Council and BIA decisions or siting of roads, facilities,
etc.

142

Area Which Me, r -i t.s.....�Recial Attention
............................................... I ..............................
............................................................................
........ ....... . ........
....... .......
....... ..... ..... .
.............. . ........ ............. ....... ........
.............. .....................................................
......................... **''* ............. ....

..............................................
5
.... ........ .......

90 ..........
..............
....................................
...... .....................................................
........................................................
.................................................
. ......... ... ......
......... .
..........

........... Ospital
a

2
..............
..........
5
Amotto a
........... t
Nf
pt

a
Cree

...........

...............

............................
............. .... ............................
.............................

..................

.......... ........
........ ....... TAMGA
.............
......... . .............. ....
Salmon Hatc
........ ...
....... ...... ........
....... ....
2 Dock and Bo
....... .........
............. 3 Housing Are
.... .......... .......
........ .... .........................
. ......... ...............
Power Plant
............
................
....... ....... ............ ... - Oil Storage
.............. ..........
..............................
5
GJ"ey pt Major Subsi
7 Bark Chip D
...... ......................
......................

.................
................
pt
01XIC),
al ........
......................
A
........................
................... ...
Im

.............. ............ ...

0000
HARRIS Tam@
and

Table 10-2
TAMGAS HARBOR A@LOWABLE USES

USES AND ACTIVITIES TAMGAS HARBOR
Estuary Watershed
COASTAL DEVELOPMENT

Residential not allowable allowable
Commercial N /A allowable
Landfill not allowable not allowable
Dredging and Dredge Spoil Disposal not allowable not allowable
Boat Basins allowable N/A
Piers allowable N /A
Terminal and Storage Areas allowable allowable
Aquaculture Facilites allowable allowable
Breakwaters allowable N /A
Bulkheads and Other Shoreline Protection allowable allowable

RECREATION allowable allowable

TRANSPORTATION
Airport N/A existing
Floatplane Facilities allowable allowable
Streets and Roads N /A allowable

UTILITIES
Hydroelectric Dams N /A existing
Diesel Generators N /A existing
Fuel Offloading and Storage existing existing
Sewage Treatment Facilities N /A existing
Treated Sewage Outfalls allowable allowable
Water Storage allowable allowable
Utility Lines (water, power, etc.) allowable allowable

FISH AND SEAFOOD PROCESSING not allowable not allowable

TIMBER HARVESTING N/A not allowable

TIMBER PROCESSING
Manufacturing not allowable allowable
Log Storage not allowable allowable
Bark and Chip Disposal not allowable existing

MINING not allowable allowable

SUBSISTENCE allowable allowable

N/A = Not Applicable

existing = Facility is already rated in area, but expansion of addition
unlikely and inconsistent with policy,

144

Port Chester and Watershed

(1) Basis for Designation: (under Alaska Coastal Management Act)

(A) 1@oreas of historical signifitance, or scenic importance',

Once the site of a seasonal caTip for the Tlingit Indians, Port Chester
was selected in 1887 by Fathex Duncan and the Tsimpshean landing party
as the location for the town of Metlakatla. The waterfall frm
Chester Lake to the east and the towering Purple Mountain to the south
are both scenic landmarks which provide a backdrop for the town. For
the more adventurous, a hike to Chester Lake is rewarded by a panoramic
view of the town nestled in Port Chester, with Nichols Passage and
Clarence Strait beyond, and Gravina. Island and Prince of Wales Island
in the distance.

(B) "areas of high natural productivity or essential habitat for living resources"

The slopes of parts of Port Chester's watershed are highly productive of
timber. At least 10 stream and one lake produce salmon and are essential
ipawning habitat for those salmon.

(1--) "areas of substantial recreational value or opportunity"

The beach along the Western Avenue shoreline and the reefs offshore in
Port Chester are frequently used by Metlakatla residents for picnicking,
clanrdng, etc.

(D) "areas where development of facilities is dependent upon utilization of, or
access to, coastal waters"

The cannery, floatplane docks, sawmill, boat harbor and ferry terminal
are the predaminant water dependent facilities on Port Chester's shore-
line. Siting and re--siting of additional facilities is likely in the
future, and will depend on how much of the Metlakatla waterfront remains
available for development.

(E) "areas of unique geologic ... significance which are susceptible to industrial
or commercial development"

The Sylburn Peninsula-Driest Point area is underlain by developable deposits
of the mineral barite.

(2) Map

Port Chester and its watershed are mapped in Figures 28, 30 and 31.

(3) Description of the Area

Port Chester, defined here as -the waters south and east of a line between
Driest Point and the Metlakatla. Cemetery, along with Japan Bay to the
north of Driest Point, is a 4720-acre (1911-hectare) bay off Nichols
Passage. With the exception of a few shoals, such as near the mouth of

145

Tain Creek, behind Hemlock Island, and around the reefs north of Metlakatla,
most of the bay is very deep. The bottom drops off steeply from the shore-
line to depths averaging 100 to 200 feet (30 to 60 meters) and reaching over
240 feet (73 meters) deep.

Although Port Chester is enclosed by mountains to the east and south, it
is not completely sheltered from. the area's violent southeastern storms. The
nearl@y mountains appear to channel the storms down into the bay, creating
winds and waves more formidable than would be expected in such a harbor.

Water Conditions

The data, taken during the winter and spring of 1979, show the waters of
Port Chester to be exceptionally well mixed, both in the exposed areas
and in the somewhat more protected areas near stream, mouths. The inflowing
fres1water fran Tain Creek and Hemlock Creek was detectable by only a
shallow layer (less than 3 meters) of slightly lower salinity water in
Tain Bay and Hemlock Bay. Even at these locations, the water at 3 meters
and deeper was nearly identical in acmperative, salinity and dissolved
oxygen content to the water in the more exposed parts of Port Chester.
That water, in turn, appears to be influenced more by the massive tidal
flows through Nichols Passage than by the relatively insignificant inflow
from Port Chester's watershed.

The circulation and mixing in Port Chester therefore appear to be mostly the
result of the swift tidal currents of Nichols Passage. Either the currents
cause a flow in the same direction in Port Chester, or they may create a
eddy inside the harbor. Investigations into the current patterns may
answer this question, and provide information which can be used in siting
of any future effluent discharge. In any case, the currents appear to
mix the waters of the bay sufficiently to prevent any but perhaps very
localized water quality problems.

In all measurements, the data collected shows the waters to be within
the requirements for survival and growth of salmon and shellfish, although
the dissolved oxygen was not as high as would be desirable for intensive
salmonid propagation.

Sediments and Shoreline Habitats

The tidal currents and waves in Port Chester are great enough that, in most
places, they scour away the fine sediments, leaving only mixed-coarse
sediments and rocky shores.

The east shoreline of the bay, dropping down steeply from the mountains, is
mostly rocky, providing habitat for attached animals (such as barnacles,
muscles, tube worms and sponges), clinging animals (such as starfish, snails
and gunboots) and algae. Along the shore from downtown Metlakatla. to the
southernmost point in the bay, the beach is composed of mixed-coarse sedi-
ments. Here the mixture of gravel and cobble supports fewer attached and
clinging animals, but allows burrowing animals (such as clams and worms) to
inhabit the beach.

146

Fig
Area Which Merits Special Attention BATI-

..... ............ ....... ...
... ...........................
.............
lb .........

............

0 SCA6&
......................................... .................

...........................

......... .......
..........

10,

rrolt

Molonson
Lake
M tlakatl@a)

Skaters
Lakov Edgecombe
ake,
..........
...........
............
..............
...............
Cho* -'
to
..........
LaCko
............

............. ......
.............. .......
............
...... ........ . . ... .........................................
............
.... .:-:-7!7@ ..................................................
................ ..... ........................

................. ........
.............................. ............ .......
.................................
...... ... ............... .. . ..... ................. ....................
............................................ .............. ...
....................................... ....
.... ......
.................... ............ ......... ......
................... ............ ......................
.............................. ...... ....
....... ........ .....
.................. ............... ........ ....... ............ ............. .......................
............ .. .. ... ......... ........ .....................
............................... ... ............ .............
..................
... ................................................ ......
.... ........ ..... ........ ........
..............
................................... ..................... ...................... ...
Port Chester ........................ . .................... .... ** ....... .......
............ *......... ............ ..............................
.................. ................................................. .. ...........
........ ..... ............. ....... ............
............ ................ ............................................
.. . ............... . ......... . . ............... . .............
and Watershed .......................................
.... ......... ................

The only extensive areas of fine sediment beach are the shoreline'to the
west of Metlakatla, and the northern part of Hemlock Bay. In these areas
the water is calm enough to allow the accumulation of a gravel-sand mixture.
Both of these beaches support burrowers, particularly clams. The beach
near the town is fairly heavily used for gathering clams, cockles and crabs.

Below the intertidal zone, the fine sediment habitat is apparently rwre
widespread. A 1977 diving survey there found a sand and silt bottom with
rock outcyappings and ledges. Both geoducks and horseclams inhabit the
bottom at depths of about 15 to 30 feet (5 to 9 meters), and the horse
clams appear in connercial nuTbers. Other species of commercial value
observed offshore were sea cucumbers and sea urchins.

Fish

Port Chester's watershed includes oneof the two most productive lakes and
one of the most important streams on the island in terms of salmon product-
ion. Trout Lake and creek is used for spawning and rearing by coho and
sockeye salmon. Hemlock Creek supports same of the island's largest runs
of pink and chum salmon. Pink salmon use at least 5 other streams in the
watershed, three of which also support chums. The bay is also used by
king and coho sahmn migrating through Nichols Passage and is therefore a
favorite fishing area for mmy of the island's trollers.

Herring also make. use of Port Chester. Lmmature herring can be found in
the bay throughout most of the year, and adults are present before spawning
in the spring. Hemlock Bay is reported to be a former herring spawning
ground, but does not appear to have been heavily used in recent years.

Watershed

Port Chester's 15,600-acre (6,316-hectare) watershed includes the northern
part of the Metlakatla Peninsula and a good deal of mountainous land. The
largely muskeg peninsula drains into the estuary through several small
streams, while the runoff from the mountains flows through small and large
streams.

Much of the bay's watershed is forested with hemlock, spruce and cedar,
although the Chenango Mountain area was logged within the last several
years. Some of the flat benches and even some steeper terrain is covered
with muskeg, and alpine vegetation grows sparsely around Chester Lake and
Purple Mountain. Because of the extensive areas of high elevation, this
watershed also contains a great deal of bare rock.

Several lakes also occupy substantial areas of the watershed. Trout Lake,
the largest of these, has the distinction of receiving drainage from the
largest sub-basin on the island. Melanson Lake is smaller, but lies higher
in elevation. Still higher, at over 800 feet above sea level is Chester
Lake, the source of Port Chester's cascading waterfall and Metlakatla's drink-
ing water supply. Besides the three streams connecting these lakes with the
bay, Port Chester is fed by at least seven other prennial streams.

148

Area Which Merits Special Attention Fig
TOPO
................. ...............
........................................
..............
............. ...
................
............. ............................................. ...............
.......................... . ..........
.....................
...................................... *.................... .................
............................................... - -
....... .............................
..... ...................
........... ..
.....................
....................................
................... ..........
...........
...... .........
..........
.................
...... ............................
............................ ....................
................. .... I...... .
.................... .....................................
@"60 0
...................
....... ............ ...........
...... ....................

500
................
.................
....................
................

........................
.......................
..........

1 m
....................................................

..................................
.... ........ . .........

.0.
....... ....... ....
00

500

.... ... ..... .
rroijt
40

Mole Is
Lake

C?00
Metlakatia

ob,
.... Skaters
Lak.ev
Edgeeom
........ Lake
"Oct
............ ...
che
.......... ........
..............
\-+ake
............
...................

................. ............ .. ..................... .. ....
.................. . .... .. ............
..............................

. ...............

....... ........................ .................................. ...
........... .....................
................ ....... * .........
.................. *.,.,.,."................................@...................................-..........................@ ......................
................................
............ .................
... ...............
Port Chester ..................... I..........................
..... ......................... .....
................................... ...... ....................
.................. ................... ............
..........
........ ........... ...........
....... ......................... ........ ..........................
.......................
.. .. . ................ ........................................... .......
and Watershed ..................... .......... I..... .....................................
...........

(4) and (5) Ownership, Jurisdiction, Management and Use

As is the case with the rest of the reserve, Port Chester and its watershed
are held in federal trust status for the Metlakatla Indian Cmuu-iity.
Management of the lands and waters is by decisions of the Community Council,
with the Bureau of Indian Affairs having final trust responsibility.

Both the estuary and the watershed are among the most intensively used
areas of the reserve. Over 90% of the residents of the reserve live in
the town of Metlakatla,. all within a quarter-mile of Port Chester's shore-
line. Most of the commercial, institutional and industrial activity on
the island is also carried on in the town.

outside the town, the watershed's uses are also remarkably varied. A major
timber sale was logged on Chenango Mountain early in the 19701s. A sale
in the Trout Lake drainage was recently contracted.and logging is scheduled
to begin in 1979 or 1980. These areas have been, and will be, accessed by
logging roads. Chester Lake, accessible only by trail, supplies the town's
drinking water and has been proposed as a site for a hydroelectric dam.

The Metlakatla shoreline is the site of the most intensive uses of the
estuary. The Community-cwned Annette Island Packing Company has operated a
cannery here for over 50 years, and more recently has operated a cold storage
plant as well. The sawmill, owned by the Community and leased to the
Louisiana Pacific Corporation, occupies several acres of uplands, and uses
a portion of the bay for log rafting. Marine-oriented transportation is
another important use of Port Chester's shoreline, including two floatplane
docks, a small boat harbor, an oil dock, a barge ramp and a ferry terminal,
as well as mooring and loading facilities for oceangoing log ships.

These industrial uses of Port Chester have not precluded the light intensity
uses. The town's Western Avenue beach is used for subsistence gathering
of clams, cockles and crabs. The reefs offshore are favorite sites for
picnicking, and occasionally for catching octopus. Hemlock Bay, too, is used
for shellfish gathering. Trollers fish for salmon in Port Chester, and other
Community members catch bottomfish from the docks.

To sunnarize, this estuary and its watershed support a diversity of uses:
high-intensity and low-intensity, consuTptive and non7consumptive. If
managed carefully, it should have the capability to support expanded devel-
ogrent without precluding -the subsistence uses.

(6) Present and Anticipated Conflicts Among Uses

Port Chester's water characteristics are apparently good enough to minimize
many of t-he"development vs. subsistence" conflicts which are acm-non in other
parts of Southeast Alaska. The conflicts which can be anticipated here are
likely to be focused in the more sensitive areas of the uplands, the streams
and the inner portions of the smaller embayments.

The Trout Lake timber sale has aroused the concern of some, particularly fisher-
ment, who fear that the logging and accompanying roadbuilding will be detrimental
to fish production. The logging will also bring about an aesthetic impact by
clearcutting a slope in full view of the town.

150

The view of Driest Point, too, may be marred if the barite deposit there is
mined. No definite plans to mine it have been developed, but any barite ex-
traction would likely involve open-pit mining. In addition to the aesthetic
impact there is the danger of sedimentation into two bays (Hemlock Bay and
Sylburn Harbor-Japan Bay) which serve as rearing and feeding areas for pink
and chum salmon fry. The sheltered nature of these small bays allows them to
produce benthic organism suitable for consumption by the salmon fz@y, but it
might also allow sediment from mining operations to accumulate in excessive
quantities and bury the salmon's food supply. Although saw aesthetic impact
might be unavoidable, strict design standards could minimize the effect on
the town's view. Performance standards in mining contracts or leases can
also be used to minimize the effect upon water quality and fisheries.

Activities related to timber processing are also causing concern among
local residents. Bark chips, by-products of the sawmill, have been deposited
in the muskeg near Skater's Lake since 1977, and leachates from that material
may be harming water quality both in the lake and in its outlet stream. The
problem will be mitigated somewhat by Louisiana Pacific's decision to remove
new chips to Ketchikan, but the deposits accumulated over two years remain,
and will likely leach into the stream for same time after dumping ceases.
Removal of this accumulation for use as fuel in Ketchikan is one possible
solution under investigation.

Log rafting is the other activity which might conflict with fish production.
The logs rafted near the saumll probably do not cause any but the most
localized prcblEm. Logs were stored in Hemlock Bay during the Chenango Mountain
logging, and the site is a likely one for rafting after logging begins in the
Trout Lake drainage. Log rafting and dumping have been docunented as having
negative effects on water quality, fish, and benthic marine life. Although
it might be unfeasible to prohibit log dumping and rafting in Hemlock Bay,
some performance standards might help minimize its impact.

Other conflicts in this area revolve around Chester Lake. The town's water
supply is untreated, and is open and vulnerable to contamination in several
locations. Apparently no problems have resulted from this vulnerability,
but excessive public use of the Chester Lake area might conflict with the
maintenance of clean water in the future.

Finally, the proposed hydroelectric dcm at Chester Lake will interfere with
the flow of the waterfall, certainly in the short-term during construction
and raising of the lake, and possibly during the long@term as well. Balanced
against the loss of the aesthetic resource is the increased dependence upon
oil to supply power for the Community. M-dle neither alternative is a
pleasant prospect, the hydroelectric power is a renewable resource, and one
which can increase the Community's self-sufficiency.

(7) Proposed Management Scheme

The future management and use of Port Chester will be based on the following
policies:
Use of the Estuary
The Community will encourage shoreline development to locate on Port Chester
and will give priority to those activities requiring waterfront access,
provided that they do not impair the long@tem potential of the bay for pro-
duction of fish, shellfish and waterfowl.
151

Fi
('Area Which Merits Special Attention PORT CHEST
................... ......
....... ..........
................
cm Timber Sa
..........................
.................. ........ ......
'Ss-lb rV'1'4 mineral
........ ........
......... ....
........ ......................................................... TjrV Deposits
......................... .. ........
......................... ......
................. Experimen
...... ... . Fly
...... DA
......................
..............
..................
Forest TIL'
.... ........ ..........
..........

Subsisten
Shellfish
lb

0 SCA61 M
...........

...... ........ .....

......................
............

....... ...... ........
...........
..... .....

rro.,

alone
Lek*
Q@z
akatla
0 z,
S
Skaterarn.4
Lake Ed ecombe
B.D. F
....... ake

Lake
........................... ........
.............. ... ....... .... .....
.....................
...................
..... ........ ......
............ .....
........ .............
.......................
................ ...................................................
..............................
..... *................. ........ ....... ........
.............
... .........................................................
.............. .... ...............
....................... ........
........................ .. ........
............ ...
............................................
.................
.............. ................ .............................
...................................................................................................................................................... ............
............... ........ ................. ........ ................ ................
...................
.................. ............. ...........
........ ...... ........ ..............
............... . ..........
.......... ....... ......... ... ........ ........
..... ......... ....... ...............
. .....................................................................................................................
... ........... .......I............. .........
........ ...... .....
....... ....... .... ......... ..........
... ..... .. ..... .....
...............
............
Port Chester
...... ....

............... ............ ...............
...... ...... ...... .............. .............. .............
and W-- atershed ...................
................ ................

Use of the Watershed:

The Cmmunity will encourage residential, corrmercial and industrial develop-
ment to locate within the limits of Metlakatla, and will permit resource
development in other areas of the watershed, provided that the best practic-
able technology is used to minin-Lize dwage to renewable resources.

As with other policies for resource management on the reserve, these will be
implEmented by Council and BIA decisions on siting of roads.and facilities,
and on timber sales, land assignments and leases.

153

Table -10- 3
PORT CHESTER ALLOWABLE USES

USES AND ACTIVITIES PORT -CHESTER
Estuary Watershed

COASTAL DEVELOPMENT

Residentia I not allowable allowable
Commercial water-dependent allowable
Landfill not allowable allowable
Dredging and Dredge Spoil Disposal allowable allowable
Boat Basins allowable N/A
Piers allowable N/A
Terminal and Storage Areas allowable allowable
Aquaculture Facilities allowable allowable
Breakwaters allowable N/A
Bulkheads and Other Shoreline Pro-
tection allowable allowable

RECREATION allowable allowable

TRANSPORTATION
Airport N/A N/A
Floatplane Facilities allowable allowable
Streets and Roads N/A allowable

UTILITIES
Hydroelectric Dams N /A allowable
Diesel Generators N /A allowable
Fuel Offloading and Storage allowable allowable
Sewage Treatment Facilities N /A allowable
Treated Sewage Outfalls allowable allowable
Water Storage allowable allowable
Utility Lines (water, power, etc.) allowable allowable

FISH AND SEAFOOD PROCESSING allowable allowable

TIMBER HARVESTING N /A allowable

TIMBER PROCESSING
Manufacturing N /A allowable
Log Storage allowable allowable
Bark and Chip Disposal not a llowable allowable

MINING not allowable allowable

SUBSISTENCE allowable allowable

N/A = Not Applicable

water dependent = Facilities should be allowed on overwater structures
only when they depend on access to water.
154

REFERENCES CITED

Alaska Department of Fish and Game. 1978. Biophysical Boundaries for
Alaska's Coastal Zone. Report prepared for Alaska Coastal ManagErnent
Program. Juneau.

Annette Natural Resources Center. 1979. Timber Operating Plan for the
Annette Islands Reservation. Metlakatla, Alaska.

Berg, Henry C. 1972. Geologic Map of Annette Island, Alaska USGS, Misc.
Geologic Investigations, Map 1-684 (with report).

Blankenbeckler, Dennis. 1978. Hydroacoustic Surveys of Herring Populations
in Southeast Alaska. Alaska Department of Fish & Game, Technical Data
Report #38.

Bloom, Arthur M. 1978. Sitka Blacktailed Deer Winter Range in the Kadashan
Bay Area, Southeast Alaska. Journal of Wildlife Management. Vol. 42, No. 1.
pp. 108-112.

Darr, David R. 1977. Potential Impacts of Easing Log Export Restriction on
Tongass National Forest. Pacific Nort-hwest Forest and Range Experiment
Station, U.S. Department of Agriculture, Forest Service. Portland, Oregon.

Everhart, W. Harry, Alfred W. Eipper and William D. Youngs. 1975. Princi-
ples of Fishery Science. Cornell University Press. Ithaca.

Franklin, Jerry F. and C.T. Dyrness. 1973. Natural Vegetation of Oregon
and Washington. U.S.D.A. Forest Service General Technical Report, PNW-8.
Portland.

Gass, Charles R., and others. 1967. Soil Management Report for the Hollis
Area. South Tongass National Forest, U.S. Forest Service, Alaska Region.

Glass, Ronald J. 1978. An Assessment of the Demand-Supply Situation for
Southeast Alaska Tinber. United States Department of Agriculture, Forest
Service. In cooperation with Institute of Social and Economic Research,
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157

MINUTES OF PUBLIC HEARING

on
ANNETTE ISLANDS RESERVE
COASTAL MANAGEMENT PROGRAM

June 14, 1979

Metlakatla Municipal Building

Present at the Meeting were:

Councilman Richard Johnson, Chairman
Councilman Leo Guthrie
Councilman Harris Atkinson
John Leask
Fred Bolton

Staff members of the Metlakatla Indian Community:
Greg Argel, Director of Natural Resources
John Peeler, Annette Island Forester
Ray RaLonde, Director of the Aquaculture Technician Program
Larry Crump, Social Worker.

Agency Personnel:
Mary Jo Waits, Department of Community and Regional Affairs'
Forrest Blau, Alaska Department of Fish and Game.

Consultants:
Hap Leon, Pacific Rim Planners, Inc.
and Cathy Rose.

Councilman Richard Johnson opened th-6 hearing at 7:15 P.M.

Mary Jo Waits gave a brief introduction to the Federal and State Coastal
Management Programs.

Hap Leon introduced the local Annette Islands Reserve Coastal Management Program
and opened discussion of the first goal of fishery management.

Forest Blau pointed out that it was not clear to him who carried out actions
in implementing the program.

Richard Johnson explained that the Metlakatla Community Council is responsible
for all actions, contracts etc. and acts through the Mayors office aftdthe Annette
Natural Resource Center.

John Leask commented on fisheries habitat enhancement. He pointed out that the
island's natural streams could be alot more productive if logs, culverts, etc
were removed. He suggested these measures might be more productive than hatch*
ery construction and operation.

Ray RaLonde suggested that any action interfering with watershed or water move-
ment should be checked out first with the fishery manager on Annette Island.

158

John Leask agreed with him, cited actions connected with logging on Prince
of Wales Island and the damage those have caused to streams and to fish
production.

Ray RaLonde suggested crab should be added to objective 1.7. He was concerned
about damage to egg-bearing female crabs by beach harvesting. John Leask
pointed out that he didn't think that regulations would help in this matter
since people have harvested crab on the beaches for years.
Richard Johnson said that there hadn't been a commercial fishery on the island
for a long time and that he wouldn't want a commercial crab fishery. Ray
RaLonde emphasized the need for data to recognize changes in the resource,
particularly the crab resource, for which there is no data.

Richard Johnson pointed out that a few years ago crab pots were made illegal
because stocks were low, He said that similar action was taken when the
subsistence fishery for sockeye was closed on Tain Creek when the socks were
low there. Also the herring roe fishery was closed in 1978. He explained that
he was glad to see a Coastal Zone Management Program because the Community
needs basic data to avoid depleting the stock. He pointed out that this is the
first step, but it was a major step, in obtaining this data.

Forrest Blau asked whether the Community had a policy regarding culverts, roads
etc. to allow free fish passage.

Greg Argel, John Peeler and Richard Johnson all mentioned that the Community
has such a policy.

Richard Johnson asked whether if culverts were repaired or replaced,
streams could be restocked with Coho, referring specifically to the stream
flowing out near the sawmill,. Ray RaLonde mentioned that is possible to trans-
plant eyed eggs, but that it was important to check out the stream for all
possible reasons for the decline in the fish (not just faulty culverts, or
road building) .

Hap Leon asked whether there were any problems with allocating the fish catch
among gear types.

John Leask said he thought allocation was a problem with herring, particularly
since seines take a great deal of young herring which are not valuable in the
roe fishery. He suggested that even tests sets should be done with gillnets
only,not with seines.

Richard Johnson mentioned that we have learned with the roe fishery that we have
to be careful in manageing a fishery, and that it would be wise to have a fishery
manager on the island.

The meeting took a short break before returning to the subject of forestry.

Hap Leon reviewed the objectives and the policies under Goal 2 Forest Resources.

Richard Johnson asked whether the Community had overcut timber on Annette Island.
John Peeler pointed out that quite a bit more has been taken and could be taken
under the sustained yield program. John also reviewed some of the principles
of the sustained yield and discussed with Richard Johnson and John Leask some
of the assumptions of sustained yield at Annette Island.

159

Ray RaLonde asked whether there should be standards for dumping wood waste.
Hap Leon said that the program would have included one, but Louisiana-Pacific
said that they would haul wood chips to Ketchikan, so dumping became a moot
point. John Leask requested that there be studies on the effects of wood
waste dumping, and mentioned that the fishermen are concerned about the effect of
wood waste on the streams. Greg Argel asked whether Louisiana-Pacific had
made a committment to take the wood chips to Ketchikan. Richard Johnson agreed
that they had, but suggested that there be a standard for wood waste dumping
anyway, to make sure its covered.

John Leask asked whether wood chips could be used for energy, rather than wasted.
Richard Johnson agreed they could, and pointed out that in Ketchikan it was
economically possible but with the volumes produced in Metlakatla it didn't
appear feasible right now. He mentioned that it might be possible in the future
to reclaim the bark chips from the present dumps, and he requested that PRPI
as consultants propose alternative solutions to the problem of dumping bark
chips and discuss the effects of those solutions.

Hap Leon introduced the Mineral Development section. He discussed the obiectives
of the oroqram for mineral development. Harris Atkinson mentioned that a
study from a Anchorage geologist said that Annette Island doesn't have much in
the way of commercially valuable minerals.

Richard Johnson stated that standards should be set up in advance anyway,even
if there were no known reserves of minerals on Annette Island. There was no
further discussion of mineral development.

Hap Leon introduced the section of land and water development on Annette Island.
And discussed some of the objectives and policies for land and water development.

Ray RaLonde asked whether it was a community policy towards removing dilapidated
buildings, referring specifically to buildings left by the Coast Guard and the
Army in the south part of the Metlakatla Peninsula. Richard Johnson said the
Community was pursuing the Coast Guard and other agencies to remove these structures.

The subject turned to the area of Economic Development. Ray RaLonde suggested
that shellfish aquaculture be added to action 5.1.5.3 under Economic Development.
He also suggested that training be added to economic development enterprises to
encourage on-island personnel to be trained for new enterprises. He emphasized
that this training should be aimed at the local schools.

In general discussion the group agreed that there should be a policy for re-
forestation and that the timber (BIA) operating manual should be referred to
for standards for log and dumps and other forest related policies.

Cathy Rose gave a brief description of her work and research on the studies of the
wildlife habitats on Annette Island.

Leo Guthrie asked if the plan should address drinking water. Richard Johnson
mentioned that drinking water is addressed in the Tribal Specific Health Plan,
which has specific standards for drinking water.

Richard Johnson ajourned the meeting at approximately 9:30.
160

The following appendices are available
from the Annette Natural Resource Center:

Appendix A - Estuarine Water Condition Data

Appendix B - Wildlife Resource and Habitat Inventory
of Annette Islands Reserve

161

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