Port of Skagway and Skagway River area meriting special attention plans, part of the Skagway Coastal Management Program : public hearing draft

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

PORT OF SKAGWAY
and
SKAGWAY RIVER

AREA MERITING SPECIAL ATTENTION PLANS

part of the Skagway Coastal
Management Program

HT
393
.A42
S112
1990 Public Hearing Draft
July 1990

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The Port of Skagway on a five ship day in 1989.
Cover photo by Barbara Kalen of Dedrna2slyhoto Shop in Skagway. I
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CITY OF SKAGWAY

GATEWAY TO THE GOLD RUSH OF **98"

P. 0. i3OX 415 SKAGWAY. ALASKA 99840

(PHONE) 907-983-2297

(FAX) 907-983-2151

The City of Skagway invites you to read and comment upon
this Public Hearing Draft of the Port of Skagway and Skagway
River Area Meriting Special Attention Plans. These Plans
were prepared as part of the Skagway Coastal Management
Program.

Your comments are important to us. Please make your comments
in writing to:

City of Skagway
Tom Healy, City Manager
P.O. Box 415
Skagway, Alaska 99840

Send, a copylto:,

Joaqlin,Estus
'Stat&-of@ Alaska
Dlvision of Governmental Coordination
P.O. Box,, AW
Juneau, Alaska 9,9811-0165

The. review period closes September 20, 1990. Please-submit
your comments on or by that date.

The Skagway City Council will hold a public hearing to take
comments on. these,AMSA Plans on September 6, 1990 at 7:00
p.nr. at: the- Skagway City Hall.

If you have any questions, please call Tom Healy in Skagway
at 98a-2297 or Barbara Sheinberg, the City's planning
consultant, in Juneau at 586-1840.

Thank you.

OCLC: 22351470 Rec stat: c
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$ 6 245 00 Port of Skagway and Skagway River : lb area meriting special
attention plans, part of the Skagway Coastal Management Program : public
hearing draft. %
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$ 8 300 82 p. : Ib M., plans ; Ic 28 cm. %
$ 9 500 Cover title. %
$ 10 500 "JULY 1990.11 %
$ 11 500 Part of illustrative material contained in two folded pockets
interspersed with text. %
$ 12 650 0 Coastal zone management Iz Alaska Iz Skagway. %
$ 13 650 0 Harbors Iz Alaska Iz Skagway. %
$ 14 651 0 Skagway River (Alaska) %
$ 15 710 2 Skagway Coastal Management Program. %

include teaching children about fishing, biology and science and
providing a public area for fishing and fish viewing.

The Skagway City Schools operate the hatchery under Scientific-
Educational Permit #85-133. The project began with pink salmon because
their shorter life history provides returns in just two years. The first
return provided a 200,000 pink salmon egg-take, a sport fish catch of
well over 500 fish, natural spawning and many fish. Carcasses from the
hatchery egg-take were made available and some provided fertilizer for
Skagway's notable gardens. Subsequent returns dwarfed the first year.
The hatchery later expanded to include coho and king salmon.

In 1989 the Jerry Myers Hatchery (formerly called the Pullen Creek
Hatchery) Program was named Alaska State Vocational Education Program
of the year. The hatchery is now licensed to raise 200,000 pinks, 50,000
coho and 200,000 king salmon. In the spring of 1989 the ADFG
designated the hatchery as the king salmon facility for Lynn Canal. The
hatchery is rearing fish for remote fry release and a smolt release at
the facility.

In 1990 the Jerry Myers Hatchery was dedicated and renamed the Jerry
Myers Hatchery to honor the man so instrumental in the founding and
operation of this very successful hatchery.

Page 23

PAGE REPLACEMENTS

I n 1987 the first soil testing for possible lead contamination occurred.
Positive results led to a full scale testing and treatment program by the
Alaska Departments of Environmental Conservation (ADEC) and Health and
Human Services (H&SS), the U.S. Environmental Protection Agency (EPA)
and the responsible parties. Lead contamination has been found in the
soil in parts of the town, at the ore terminal, and in some marine
sediments and marine organisms.

Soil testing was conducted in 1988 and 1989. it showed localized lead
contamination in the immediate vicinity of the ore terminal, along the
railroad tracks and along State Street. The clean up involves removal of
the contaminated soil and either treatment at a wash plant in town or is
shipped back to the mine site. Contaminated material treated in town is
separated by size - the gravel and sand is washed and a sludge is left
behind. The sand and gravel are tested to ensure lead is lower than
1000 parts per million, (the high end of the 500-1000 ppm level
recommended by the EPA for residential soils). The contaminated sludge
is then trucked back to the Faro, mine for treatment.

Blood samples were collected from the local population in 1988 and 1989.
The testing of these samples indicated that no public health hazard
exists. A cautionary lead level in the blood established by the Center
for Disease Control is 2500 micrograms per liter. No 'children had a level
higher than 15 mg/dl. only one adult worker at the ore terminal had a
1W level higher than 21 mg/dl. The conclusion from the final 1989 H&SS
report was that, "Based on results of all the testing and findings, the
community of Skagway does not have a serious health problem from lead.
The contribution to the body burden of lead from the ore is minimal.
Risk from exposure to lead ore can not said to be zero, but the
contribution to the body burden of lead among Skagway residents is so
low as to constitute no basis for public health concern."

A program to.test for lead contamination of marine sediments and marine
organisms in the vicinity of the ore terminal began in 1989. A report
from the ADEC contractors explaining test results is due out in the
summer of 1990. Reportedly some sediments and marine organisms, such
as mussels, are contaminated. The problem has not yet been analyzed in
enough detail to determine the least environmentally damaging method to
deal with this type of contamination.

Hatchery and Fish Enhancement

Skagway residents worked with the Alaska Department of Fish and Game
(ADFG) Division of Fisheries Rehabilitation, Enhancement and Development
(FRED) to create a small salmon hatchery and sport fishery in Pullen
Creek in 1980. A $30,000 legislative grant, donated property and
equipment by WPYR, and volunteer efforts of many of the residents
facilitated the actual hatchery construction in 1982. Hatchery goals

Page 22

ACKNOWLEDGMENTS

Many thanks are due to the following individuals. Without their help, the AMSA
Plans could not have been written.

The Mayor, City Council and City Manager contributed a great deal of their
valuable time. These Plans reflect their insights and guidance. Lorene Gordon,
Diane Nore, Laurie Sica and Jerry O'Farrell Fuqua answered many questions and
provided important information.

CITY COUNCIL

Stan Selmer, Mayor
Casey McBride Alan See
Ed Fairbanks John Mielke
John Tronrud Boyd Worley

CITY ADMINISTRATION

Thomas Healy, City Manager
Jerry O'Farrell Fuqua, Tourism Director
Grant Lawson, Public Works Director
Lorene Gordon, City Clerk
Diane Nore, City Treasurer
Laurie Sica, Assistant Clerk

The following property owners and local citizens. discussed issues and trends in
the AMSA areas: Paul Taylor of White Pass and Yukon Route Railroad, Jerry
Myers of the Jerry Myers Hatchery, Dave Hunz of H&H Enterprises, Irene
Henderikson, Phyllis Brown and Mitch Ericksen.

The following agency staff contributed time and help: Joa lin Estus of the Alaska
Division of Governmental Coordination; Bill Rolfsen, %aska Department of
Community and Regional Affairs; Marnie Chapman and Susan Braley, Alaska
Department of Environmental Conservation; Randy Ericksen, Janet Hall, Ron
Josephson and Rob Bosworth, Alaska Department of Fish and Game; Andy
Peckovitz, Nan Musselwhite, Ted Deats, Rita Romans and Mark Stroude, Alaska
Department of Natural Resources: Mike McKinnon, Mark Knorr, Andy Hughes,
and John Jordan, Alaska Department of Transportation and Public Facilities; A[
Shattuck and Harlan LeGare, U.S. Army Corps of Engineers; and Jim Perrin,
Federal Aviation Administration.

Drafting and much of the compilation for the Skagway River maps were provided
by Dave Miller of Miller Engineering. Scott Gorell completed graphic and layout
work on the River maps and completed the drafting, graphics and layout for the
Port AMSA maps. The River maps were reproduced at Triad North Technical and
the Port maps were printed at Northern Printing. The AMSA plans were printed at
Capital Copy.

Apologies are offered to any who helped with these Plans whose names I may
have inadvertently omitted. Barbara Sheinberg
Planning Consultant

PORT OF SKAGWAY
and SKAGWAY RIVER
AMSA PIJWS

Table of Contents

Title Page

BACKGROUND ................................................. 1
INTRODUCTION ............................................... 4
Alaska and Skagway Coastal Management Program .........4
Skagway AMSA Planning Objectives ...................... 4
Goals for the Port AMSA Plan .......................... 5
Goals for the Skagway River AMSA ...................... 6
AMSA BOUNDARIES ............................................ 7
Port of Skagway AMSA ................................. 7
Skagway River AMSA .................................... 7
LAND OWNERSHIP ............................................. 8
Port of Skagway AMSA .................................. 8
Introduction ..................................... 8
City Owned Land ................................. 8
City Leased Land ................................. 8
Privately Owned Land ............................. 9
State Owned Land ................................. 9
WPYR Railroad Right-of-Way ....................... 9
Skagway River AMSA ................................... 11
Introduction.
River
Adjacent Uplands Ownership ...................... 12
PORT OF SKAGWAY AMSA - RESOURCE INVENTORY ................. 14
Introduction ......................................... 14
Physical and Biologic Environment .................... 14
General Setting ................................. 14
Geology ......................................... 14
Bathymetry ...................................... 15
Hydrology ....................................... 15
Fish, Birds and their Habitat ................... 17
Human Environment. 18
Role of Port
Trans-shipment Use of Port ...................... 18
Air, Land and Water Quality ..................... 21
Hatchery and Fish Enhancement ................... 22
PORT OF SKAGWAY AMSA - RESOURCE ANALYSIS AND POLICIES ..... 24
introduction ......................................... 24
Waterfront Development ............................... 24
Fisheries ............................................ 31
Habitat .............................................. 32
Air, Land and Water Quality .......................... 33
Transportation ....................................... 34
Recreation ........................................... 36
SKAGWAY RIVER AMSA - RESOURCE INVENTORY ................... 39
Introduction ......................................... 39
Physical and Biologic Environment .................... 39

General Setting ................................. 39
Geology and Soils ............................... 39
Hydrology ....................................... 40
Skagway River Drainage ..................... 40
Groundwater ................................ 41
River Hydraulic Capacity and Flooding ........... 42
Other Geophysical Hazards ....................... 45
Fish, Birds and their Habitat ................... 45
Vegetation ...................................... 46
Human Environment .................................... 46
Material Extraction ............................. 46
Fish Enhancement ................................ 47
Air, Land and Water Quality ..................... 47
Air Quality ................................ 47
Water Quality .............................. 47
Solid Waste ................................ 48
Transportation .................................. 48
Introduction ............................... 48
Airport .................................... 48
Railroad ................................... 49
Road ....................................... 49
Recreation ...................................... 50
Subsistence ..................................... 51
Petroleum Storage and Transfer Facilities ....... 51
SKAGWAY RIVER AMSA - RESOURCE ANALYSIS AND POLICIES ....... 53
Introduction ......................................... 53
Shoreline Development ................................ 53
Hazardous Areas ...................................... 57
Habitat .............................................. 58
Air, Land and Water Quality .......................... 59
Mining and Gravel Extraction ......................... 63
Transportation ....................................... 66
Recreation ........................................... 69
AMSA PLAN IMPT NTATION .................................. 71
Introduction ......................................... 71
Subject Uses ......................................... 72
Proper and Improper Uses ............................. 73
Permitting for Activities in the AMSAs ............... 73
Consistency Review Process ........................... 76
Introduction .................................... 76
State and Federal Consistency Review Process .... 76
City of Skagway Consistency Review Process ...... 77
Other Implementation Mechanisms ...................... 77
PUBLIC PARTICIPATION ...................................... 79
BIBLIOGRAPHY .............................................. 80
APPENDIX A - DEFINITIONS .................................. 82

LIST OF FIGURES AND TABLES

TITLE PAGE

Figures

Figure 1 Vicinity Map ......... o ....................... 2

Figure 2 Skagway Location Map ............ o ............ 3

Figure 3 AMSA Location Map ............................ 6

Figure 4 Port of Skagway AMSA - Land Ownership ....... 10

Figure 5 Skagway River AMSA - Land ownership .... o .... 13

Figure 6 Port of Skagway - Bathymetry ................ 16

Figure 7 Port of Skagway AMSA - Existing and Future
Land/Water Uses, ............. o .............. 25

Figure 8 Skagway River AMSA - Existing and Future
Land Uses .................. ................. 54

Tables

Table 1 Approximate Tidal Range at Skagway ........... 15

Table 2 Waterfowl and Other Birds in Skagway ......... 18

Table 3 Port Of Skagway Use .......................... 20

Table 4 Vessel Activity at the Port of Skagway ....... 21

Table 5 Drainage Characteristics of the
Skagway River ................................ 40

Table 6 Location of City Wells ....................... 41

Table 7 Skagway River Discharge Rate ................. 43

Table 8 Major Skagway River Floods at the
23rd Avenue Bridge ........................... 45

Table 9 Common Sources for Contaminants found
in Skagway Wells ............................. 61

BACKGROUND

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Looking south down the Skagway River from just above the
23rd Avenue highway bridge. The White Pass and Yukon Route
railroad yard is in the foreground. photo by Barbara Kalen
of Dechw 's Photo Shop

BACKGROUND

=y,Alaska is located at the head of Lynn Canal in Southeast. Alaska at
5 027'30"N and longitude 135018'45"W (Figure 1). It is approximately 90
miles north of Juneau, Alaska and 1000 miles north of Seattle, Washington.
Skagway is bordered by Canada on the north and east and by the Haines
Borough on the south and west. Skagway is a first class city with an estimated
443 square miles of land. The City sits on the east bank of the Skagway River
(Figure 2).

In the late 1800s Skagway, Alaska was the Gateway to the Klondike Gold Rush.
It was a rowdy frontier port controlled by a gang of organized criminals and
shootings were common. The town boasted over 70 saloons. Civilization arrived
in May 1898 when the White Pass and Yukon Route began constructing a
railroad from tidewater through the Skagway River Valley and the White Pass to
the town of Whitehorse in the Yukon. The railroad was completed in 1900, but by
then the Gold Rush was over.

Since 1900, Skagway has served primarily as a port and railroad town. Visitors
first arrived in 1898. he tourist industry was small until the 1920s but then prew
steadily u.ntil it became the major economic force that it is today. Regular State
ferry service to Skagway began in 1963 and the Klondike Highway to Carcross in
the Yukon was completed during the summer of 1978.

Today, the City of Skagway is again bustling. Many varied uses compete for
space in the Port of Skagway and along the Skagway River. In 1989 some
200,000 tourists arrived on 418 ships. In addition, there were 560,000 tons of
lead/zinc ore on 24 vessels, 70,800 tons of freight and 26 million gallons of fuel
on 77 barges, and some 100,000 salmo fry that passed through the Port. The
Skagway River banks are home to the C y's airport, privately owned oil storage
tanks, the former and present City landfil ,the State highway, a heavily used
railroad, and a campground as well as the City of Skagway itself. In addition,
salmon swim up and spawn in the River and gravel and sand are extracted from
the Rivers bottom. Because of these many varied uses that compete for the
limited space and resources in both the Port and along the Skagway River, the
City has developed management plans under the Alaska Coastal Management
Program for the Port of Skagway and Skagway River.
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FIGURE 1 - VICINITY MAP

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FIGURE 2 - SKAGWAY LOCATION MAP

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CONTOUR INTERVAL 100 FEET
NATIONAL GEODETIC VERTICAL DATUM OF 1929
APPROXIMATE MEAN DEPTH CURVES IN FEET-DATUM IS MEAN LOWER LOW WATER
DECLINATION, 1949 SHORELINE SHOWN REPRESENTS THE APPROXIMATE LINE OF MEAN HIGH WATER
T14 E AVERAGE RANGE OF TIDE IS APPROXIMATELY 14 FEET

Page 3

INTRODUCTION

Aerial view of the Port of Skagway, Skagway River mouth and townsite (June 1990).
photo by Barbara Sheinbe rg

INTRODUCTION

ALASKA AND SKAGWAY COASTAL MANAGEMENT PROGRAM

The Port of Skag@vay and Skagwa' River management plans have been
prepared with funding from and under the guidelines of the Alaska Coastal
Management Program (ACMP). Plan development is authorized by the Area
Meriting Special Attention (AMSA) part of the ACMP. Both the ACMP and the
AMSA Planning process are explained in more detail below.

The federal Coastal Zone Management Act, passed in 1972, created the nation's
coastal management program. The ACMP began in 1977 with the passage of the
Alaska Coastal Management Act. Alaska State Statutes AS 46.40 and 44.19
provide the authority for the program. Alaska Administrative Codes 6 AAC 50, 80
and 85 contain the regulations that govern the program.

The ACMP created several coastal districts around the State. Each coastal
district is allowed to develop a Coastal Management Plan (CMP) to guide
resource development and protection in the area. After a coastal district's CMP
has been approved by the local, State and federal governments, roposed
activities within that district must be consistent with the CMP policies. @hus, the
coastal management planning process offers a way for local citizens to influence
how the area where they live will develop.

The City of Skagway is a coastal district authorized by the ACMP. The City of
Skagway developed a Skagway Coastal Management Plan (SCMP) that was
approved by the local, State and federal government and took effect in 1983.
Minor revisions to the SCMP were recently completed and an updated SCMP will
be printed during the summer of 1990. Development activities in the area must
now be consistent with the policies in the SCMP. Local, State and federal permits
for proposed projects are not granted unless the City concurs that the proposed
project is consistent with desired future development for the area as identified in
the SCMP policies.

SKAGWAY AMSA PLANNING OBJECTIVES

The ACMP allows a district to develop an Area Meriting Special Attention (AMSA)
plan when there are resources sensitive to change, when there are conflicting or
incompatible resource uses, or when there are values important to the general
public. Alaska Statute AS 46.210(1) defines AMSA Plans as:

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"A detailed geographic area within the coastal area which is sensitive to
change or alteration and which, because of plans or commitments or
because a claim on the resources within the area delineated would
preclude subsequent use of the resources to a conflicting or incompatible
use, warrants special management attention, or which because of its value
to the general public, should be identified for current or future planning,
protection, or acquisition."

In both the Port of Skagway and the Skagway River there are numerous
potentially conflicting land and water uses, that require management plans per
AS 46.40.210. This same statute lists special values or areas that are appropriate
for AMSA planning. The relevant values for the Skagway River and Port of
Skagway are noted. The Port is an area where development is dependent upon
using or access to coastal waters [AS 46.40.210 (1)(D)]. The Skagway River is
subject to significant flood hazards. Both areas have sections important for
recreation values [AS 46.40.210 (1)(C)] and sections of scenic importance [AS
46.40.210 (1)(A)].

GOALS FOR THE PORT OF SKAGWAY AMSA

Skagway's deep sea Port bustles with activity, especially in the summer. An area
approximately 2200 by 1500 feet serves an industrial dock, staging areas, two
ferry/cruise ship docks, a small boat harbor, a helipad, a recreational vehicle
park, a cargo and cruise ship wharf, and a creek/greenbelt/fish viewing area. In
1989 some 200,000 tourists arrived on 418 ships. In addition, 560,000 tons of
lead/zinc ore, 70,800 tons of freight, 26 million gallons of fuel, 100 barges and ore
vessels and some 100,000 salmon fry passed through the Port.

This very limited land and water area has to accommodate these many different
uses. The Skagway Port AMSA Plan protects the limited Port waterfront area for
those uses that are directly dependent upon, or directly related to the water, a
waterfront location, or both. It allows special consideration to the development,
growth and appearance of Skagway's waterfront, the city's most heavily utilized
area. Attention is also given to maintaining safety, public access and an attractive
appearance.

The Port of Skagway AMSA is designed to allow the City to take a more active
role in planning and managing the City's most heavily'used area, the Port. The
Port AIVISA's goals are to:
� Reserve area for water-dependent and water-related uses
� Maintain and strengthen the Port's industrial nature while protecting
public health, safety and welfare
Maintain and enhance the Port's appearance and public access

Page 5

Establish policies that will promote compatibility between the
various adjacent uses.

GOALS FOR THE SKAGWAY RIVER AMSA

The Skagway River drains a portion of the vast Coast Mountains in British
Columbia and the Yukon, crosses the U.S.-Canada border, meanders about
twenty miles and finally spills into Taiya Inlet in Alaska. Over the years, many
have walked the Skagway River Valley from tidewater, across the White Pass,
into the Yukon's interior lakes. Today there are many different activities occurring
adjacent to and in the Skagway River. The City's airport, privately owned oil
storage tanks, the City's former landfill, the State highway, a heavily used
railroad, a campground and the City of Skagway itself are all on the River banks.
Salmon swim up and spawn in the River and gravel and sand are extracted from
its bottom. A foot bridge near the River's mouth is the only foot access from town
to the heavily visited Yakutania Point Park.

These myriad activities and issues caused the City of Skagway to designate the
lower reach of the Skagway River an AMSA under the ACMP. The Skagway
River AMSA Plan covers approximately the last four miles of the River. It be ns
at the Rivers mouth and runs north to just past 'Liarsville'. Land immediagtiely
adjacent to the River is included within the AMSA because activities on these
lands can affect the River.

AMSA Plans clarify land ownership, resolve land use conflicts and establish goals
and policies. These factors generally lead to quicker permit review and issuance.
The Skagway River AMSA Plan discusses liver and upland land ownership, the
physical and biological environment and human use of the River, the regulatory
scheme governing activities along the River, uses and activities in the River and
policies to guide future River use.

The Skagway River AMSA plan was developed to provide a rational management
plan with guidelines for the varied uses and activities that occur in and adjacent to
the River. The Plan's goals are to:

* Clarify river and adjacent land ownership and management
* Explain regulatory requirements for projects In or near the River

* Resolve conflicts

Establish management goals and coordinate management

Address floodplain control and floodplain management

Page 6

AMSA BOUNDARIES

gown&--,

The 23rd Avenue highway bridge crosses the Skagway River. The northern edge of the
Skagway townsite and the White Pass and Yukon Route railroad shop can be seen on
the far riverbank. photo by Barbara Sheinberg
7t -@@ WN-t-

AIVISA BOUNDARIES

PORT OF SKAGWAY AMSA

The boundary established for the Port of Skalway AMSA was selected to include
all land in the Port area. The area was carefully selected to be large enough to
accommodate public access and recreation as well as the transition to non-water-
dependent uses in a comprehensive manner. The AMSA boundary includes
lands immediately adjacent to the water area that must be used for water-
dependent and water-related uses, lands that will serve as a buffer between the
"working" waterfront and the historic and business district, and a nearby portion of
uplands where uses do not have to be water-dependent or related. Figures 3, 4
and 5 all show the location of the Port of Skagway AMSA boundary.

The AMSA boundary coincides with Alaska Tidelands Survey (ATS) No. 4, with
these exceptions:
1) The portion of ATS No. 4 where the mouth of the Skagway River is
located is within the Skagway River AMSA rather than the Port AMSA.
2) The Port AMSA boundary swings out about 20-100 feet from the ATS
No. 4 bound@ry in the vicinity of Congress Way. At this locale the AMSA
boundary coincides with the White Pass and Yukon Route (WPYR)
railroad tracks.
3) The Port AMSA boundary extends about 10-200 feet beyond ATS No. 4
out into Taiya Inlet.

SKAGWAY RIVER AMSA

The boundary for the Skagway River AMSA was selected to include the portion of
the River most subject to conflicting and competing uses. This includes the rivers
mouth (the western-most portion of ATS No. 4) and continues north to that part of
the River that is adjacent to the northern end of U.S. Survey 3312, Tract A. The
total distance along the River is approximately 3.8 miles. Figures 3, 6 and 7 show
the location of the Skagway River AMSA boundary.

Most of the surveyed and subdivided land adjacent to the River on its west bank
is included within the AMSA since activities on these lands could impact the
River. The eastern boundary of the AMSA is the east side of the airport runway to
16th Avenue, the boundary continues in a northerly direction toward the 23rd
Avenue highway bridge. At this point the boundary turns east to include the 23rd
Avenue highway bridge and then follows the current WPYR railroad tracks north.

Page 7

LAND OWNERSHIP

Pullen Creek and pedestrian-recreation area (background) with upland staging areas
(foreground) at the Port. photo by Barbara Sheinberg

LAND OWNERSHIP

PORT OF SKAGWAY

Introduction

The Port of Skagway is an area of approximately 100 acres of filled gravel
material that lies between the mouth of the Skagway River and the steep
mountain embankment bordering the east side of town. Port lands are either
owned by the City and leased to private parties or the State, are owned and
controlled by the City, or are owned by private parties or the State. Figure 4
shows land ownership in the Port of Skagway AMSA.

It isi rtant to remember when reviewing Figure 4 that it is almost impossible to
combTinpeo a survey (made on the ground) and an aerial photo (a icture of the
earth's curved surface shot from an oblique angle in the air@ Unless an
orthophoto is prepared removing an aerial photo's distortion, it is very difficult to
match the photo and survey. Consequently, the survey information, upon which
the land ownership data is based, and the aerial photo in Figure 4 are not an
exact match.

City Owned Land

The City is the major Port landowner. Much of this property however, has been
leased to other parties. The City owns the 16 acre small boat harbor and provides
a part-time harbor master to manage it. The City owns the Pullen Creek Shoreline
Park and the recreational vehicle (RV) park. The RV ParWs operation is leased to
a private party. The City owns the freight transfer bridge by the State ferry
terminal and several acres of uplands adjacent to the state ferry terminal and the
small boat harbor. The City also owns several blocks and partial blocks south of
1 st Avenue where the City's sewage plant is located.

City Leased Land

In March 1968 the City signed a 55 year lease with the White Pass and Yukon
Route (WPYR) Railroad for their use of seventy acres of the waterfront. The
WPYR has constructed an ore terminal, ship basin, industrial/tour ship dock, oil
tanks and a dock for cruise ship mooring that was just completed in June 1990.
The WPYR is presently transferring the part of this leased area that contains the

Page 8

ore terminal to Curragh Resources (or a subsidiary titled Selawik) for use of area.
The Alaska Industrial Development Authority (AIDEA) may also be involved in
this lease transfer.

Another large parcel was leased to the State Department of Transportation and
Public Facilities (DOTPF) in 1962 for the State ferry terminal. This lease is valid
as long as the property is used for a ferry terminal, after which it reverts back to
the City. The DOTPF operates and maintains the ferry terminal and dock at this
site. In 1978 the City entered into a joint agreement with the DOTPF, to share use
of the floating dock and to allow the City to construct a transfer bridge for freight.

Privately Owned Land

The WPYR owns a small parcel adjacent to the pedestrian corridor leading to the
State ferry dock. Temsco Helicopters currently has a lease with WPYR to use this
area as a helipad. The WPYR also owns the seven acre cargo and cruise ship
dock at the south end of Congress Way.

Malcolm Moe owns a small parcel within Pullen Creek Park, that the City may
wish to acquire. Some of the blocks and partial blocks south of 1st Avenue are
privately owned.

State Owned Land

The State may own some DOTPF managed land southeast of the airport runway
in Block 41. City records show this as "tidelands". However, the tidelands were to
have been surveyed as part of ATS No. 4 and transferred to the City. No
assessments have been made on this land or taxes paid. Title research is
necessary to confirm land ownership in this area.

WPYR Railroad Right-of-Way

Land ownership on the eastern part of the AMSA is not clear, between ATS No. 4
and the WPYR railroad tracks. No ownership is designated for this area on Figure
4. In a 1909 right-of-way plat for the WPYR, the federal government had given
the railroad a right-of-way that measured 100 feet on either side of the railroad
track centerline. In 1914 a court case was filed to clarify the location of railroad
right-of-way and certain city lots. Later lawsuits involved the power company and
the Mill Lot and Moore Lot. When Westours acquired the site for the Westmark
hotel, the title established a 50 foot railroad right-of-way on either side of the
tracks in this area. Land ownership in this area is further confused by Congress
Way. Congress Way was reportedly originally constructed during the World War
11. It is not clear what the right-of-way relationship and land ownership situation is
for that part of Congress Way around Pullen Park. Another problem has to do

Page 9

with the ATS Survey No 4 conducted in January of 1968. When ATS No. 4 was
surveyed it was tied into a monument on Yakutania Point rather than the
townsite. This further confused land ownership in this part of town because the
surveyed relationship between ATS No 4, Congress Way, the railroad right-of-
way and the townsite is not clear. Both legal and title research are needed to
clarify land ownership in this area.

SKAGWAY RIVER AMSA

Introduction

Principles governing river and adjacent upland ownership are explained in detail
below. Using these principles together with plat research and an estimate of the
Dresent line of ordinary high water, a map was developed (Figure 5) showing
Hiver and adjacent upland ownership in the Skagway River AMSA.

River Ownership

Ownership is often confusing in river areas. The State of Alaska owns the water,
and usually the riverbed beneath the water, in navigable waterways. The
Skaj@vay River is a navigable waterway. In the AMSA area, the State owns both
the River and the riverbed beneath everywhere except in U.S. Survey 176. In
U.S. Survey 176, the State owns the water, but the adjacent landowner owns the
riverbed beneath.

The landowner owns the uplands adjacent to the water. However, it is often
unclear where river water and State ownership really begin and end. The line -of
ordinary high water (OHW) (sometimes called a meander line on surveyed plats)
is the line between the uplands (private ownership) and the river water (State
ownership).

When an individual buys property adjacent to a river, the line of OHW shown on
the plat at the time of purchase legally establishes where private and State
ownership begin and end. However, as the river moves naturally and gradually
through time, the line of OHW moves. Thus, the line of ownership between the
State and the adjacent landowner is not constant. In fact, title to land adjacent to
rivers sometimes carries a clause stating that the title is subject to any rights of
the public and governmental bodies to any land or water below the line of
ordinary high water. These concepts are explained more clearly below. The
details are important because a comparison of the estimated present line of OHW
with its location when property was surveyed and purchased, shows that it has
moved in several places in the AMSA.

Page 11

If a river moves over what was once uplands, the State can simply "assert"
ownership, based on the present line of OHW. The State has this right because
of the strength of the public trust doctrine - the idea that property rights to
important environmental resources such as water, reside in the public and that
the government and its agencies simply act as trustees for the public. After the
State asserts ownership, an individual who disagrees may challenge the State's
assertion by filing a lawsuit. If this occurred, the burden would be on the State to
prove that the line of OHW is where the State asserts, and that the change
occurred gradually and naturally through time. If, as a result of court proceedings,
the State's assertion of ownership was affirmed, the State could then acquire
quiet title to the water and bed beneath.

If an area that was once beneath river water and thus owned by the State, has
naturally and gradually risen or "accreted" above water level, then the adjacent
upland owner may try and acquire fee simple title to it. The adjacent upland
owner must have the new line of ordinary high water surveyed to show that the
change has occurred gradually and naturally. The upland owner may then bring
Z
uiet title action against the state to acquire fee simple title to the land. The
rden of proof is on the State to show that the land had not accreted.

Areas within the AMSA where the State may have the right to assert ownership
include portions of U.S. Survey 1394, 176, 1805, and 994. Areas within the
AMSA where the adjacent upland owner may have the right to new land through
accretion include Lots 21-27 of U.S. Survey 3312.

Similar principles apply to islands in a river. If a river island has been created
through gradual and natural accretion, a "partition line" is established and it
belongs to the State. If the island was once part of the uplands but the river cut in
and isolated the new island from the uplands, then the island may still be owned
by the adjacent upland owner.

Adjacent Upland Ownership

Uplands adjacent to the Skagwa
of I River are both publicly and privately owned.
Public owners include the City kagway, State of Alaska, State of Alaska lands
that have been selected by the City as part of their entitlement under the
Municipal Selection Act (AS 29.18), and the U.S. Forest Service as part of the
Tongass National Forest. The large private land owners in the AMSA include the
White Pass and Yukon Route Railroad, Hunz and Hunz Enterprises, Artic
Insulation, Rosemary Lillegraven and the Catholic Church.

The State owns the airport and land adjacent to it, property near Liarsville and
Lots in U.S. Survey 3312, Tract A, and manages Dyea Road and the U.S. portion
of the Klondike (Skagway-Carcross) Highway.

Page 12

PORT OF SKAGWAY AMSA
RESOURCE INVENTORY

The ore terminal at the Port with upland staging area in the foreground. photo by Barbara
Sheinberg

PORT OF SKAGWAY AMSA
RESOURCE INVENTORY

INTRODUCTION

All coastal district management plans and AMSA plans are required to have a
resource inventory. The purpose of the resource inventory is to review the
physical, biological and socio-economic features and resources of the area. A
thorough inventory of the area's resources provides the background and context
for analyzing the use and management of those resources.

The Skagway Coastal Management Plan (SCMP) provides a detailed inventory of
the hysical, biologic and human resources in the area. This Port of Skagway
AMAn focuses on the Port area and provides additional resource inventory
information specifically about the Port.

PHYSICAL and BIOLOGIC ENVIRONMENT

General Setting

The Port of Skagway is an area of about 100 acres of fill that lies between the
mouth of the Skagway River and the steep mountain embankment bordering the
east side of town. The waterfront is in Taiya Inlet, which drains into Lynn Canal.

Geology

Skagway is located within the Coast Mountains that stretch from California to the
Alaskan Peninsula. The Coast Range is a broad belt of interconnected mountains
formed by volcanos and glaciers. The most recent glacial activity is estimated to
have ended between 12,000 and 13,000 years ago. As the,dgelaciers retreated
deep bays and channels, such as Taiya Inlet, and steep s d valleys were
carved. Taiya Inlet is a narrow fiord, only two miles wide at its breadth.

The intertidal area by the Port is composed of deltaic deposits (sandy gravel,
gravelly sand, shell fragments, sand and silt). This is covered by alluvial river
deposits and by man-made fill.

Page 14

Bathymetry

The bathymetry of the Talya inlet is unique: it is more than three times the depth
of other estuaries of Lynn Canal. Depths range from 200 feet to more than 1400
feet. Because of its depth the inlet has a lower deep water temperatures than any
other area inlet. In addition, its deep water oxygen values are higher due to an
underwater sill located at the southern end of the inlet that separates Taiya Inlet
waters from the Pacific Ocean waters.

The average bottom depth off the Port and Skagway River areas is about 84 feet,
increasing to between 120-140 feet by one quarter of a mile offshore. Local
bathymetry of the Port area is illustrated on Figure 6, which shows that at
ap mately 100 feet off the small boat harbor breakwater the bottom is 20 feet
beforwoxtihe mean low low water (MLLW) line. At about 120 feet, by the uplands
staging area between the two WPYR docks, the bottom is 40 feet below the
IVILLW.

The extreme tidal range at Skagway is approximately 25 feet. The tidal range is
illustrated in Table 1 below.

TABLE 1 - APPROXIMATE TIDAL RANGE AT SKAGWAY
(from the Skagway Coastal Management Program document)

Feet
Extreme High Water 20.6
Mean High Water 15.7
Mean Tide Level 8.7
Mean Low Water 0.0
Extreme Low Water -4.6
Total Tidal Range 16.8

Hydrology

Port waters are part of Taiya Inlet. Taiya Inlet runs north - south for 17 miles from
the mouths of the Taiya and Skagway Rivers to Tailya Point, 'where it joins with
Chilkoot Inlet. Taiya Inlet is an estuary of Lynn Canal. It is classified as an estuary
because of the dilution of seawater with freshwater from land drainage and runott.
Taiya Inlet has very low salinity levels because of this freshwater dilution.

Page 15

FIGURE 6 - BATHYMETRY OF THE SKAGWAY PORT

SKAGWA RIVER

ALA A Y

MAIN sr.

11-1.1lowd
T@
to

0
20-
SrAm sr.
C3 0

--40 -
- -30- - - - - - - - - - -
A,

04 WAY

- - - - - - - - - - - - -

(ALA""A "'A"

Lor 4

-F

L 0 r WAY
Llo.r 0.1y PASSENGER W-W, GENERAL CARGO WHARF
(W")
0c)

SITE PLAN
Port of Skog%cy as existing, 1987 0 90 00 wo AGO I-

Page 16

Fish, Birds and their Habitat

Marine life in the Port area and Taiya Inlet has not been extensively studied. The
nearest surveys of primary, invertebrate, and vertebrate marine life were made in
Berners Bay and AUKe Bay, south of Taiya Inlet in Lynn Canal.

The intertidal and subtidal zones of Taiya Inlet contain invertebrates and
vertebrates which contribute to its overall productivity, including clams, cockles,
and mussels. Fishery resources in upper Taiya Inlet do not support a commercial
fishery and only support a modest subsistence and sport fishery. The success
and popularity of the sport fishery has been growing recently though. This is due
to events such as a sports fisherman catching a 50 pound king salmon early in
the summer of 1990. Offshore the tanner crab and pink shrimp are the most
abundant of those species, but they are generally not present in commercial
quantities. There is a limited commercial tanner fishery in Lower Taiya Inlet and
Nahku Bay that is managed by the Alaska Department of Fish and Game
(ADFG).

The most valuable finfish species present in Taiya Inlet include: Dolly Varden,
steelhead, true cod, rockfish, flounder, sole, halibut, coho salmon, chum salmon,
humpback salmon, and possibly chinook salmon. Salmon spawning occurs in
freshwater rivers and creeks. Efforts are underway to increase the salmon
species through hatchery enhancement. Discussion of proposed enhancement
efforts that do not involve hatcheries are found in the " Fisheries" section of the
Resource Analysis. Minor salmon smolt migrations and adult salmon returns
occur in the Taiya Inlet between June 1 - August 31. Local residents sport fish for
limited hooligan, dolly varden', salmon, halibut, crab and shrimp.

Larger marine mammals found in Taiya Inlet include seals, sea lions, whales, and
porpoises. There are no major concentrations or rookeries.

The tideflats, stream banks and channels, and wetlands form important feeding
and resting areas for waterfowl and other birds. The exposed tideflats around the
Port contain the following types of vegetation: beach ryegrass, bluejoint, beach
pea, goosetongue, reed bent grass, fescue grass, beach lovage and sedges. The
major migratory route for waterfowl and seabirds is south of the area in Lynn
Canal and the Chilkat Valley. However, some birds, listed below, do feed in the
area.

Page 17

TABLE 2 - WATERFOWL AND OTHER BIRDS IN SKAGWAY

(updated version of a table from the Skagway Coastal
Management Program document)

Mallards Green Winged Teals Widgeons
Pintails Shovelers Canadian Geese
Goldeneyes Buffleheads Scoters
Scaup Mergansers Harlequins
Oldsquaws Gulls Cormorants
Murres Sandpipers Plovers
Blue Grouse Rufous Hummingbirds Stellar Jays
Ruffed Grouse Ravens Ptarmigan
Magpies Crossbills Chickadees
Juncos Bald Eagles Blue Herons

HUMAN ENVIRONMENT

Role of the Port

Skagway's economy is directly linked to its strategic location at the northern
terminus of Southeast Alaska!s "inside passage". Its deep water, ice-free port
serves as the tidewater trans-shipment point into Interior Alaska and the vast
Canadian Yukon Territory. The Port of Skagway has served an important function
in the economies of both Alaska and the Yukon since the Klondike Gold Rush in
the 1890s. During the past decade, the Port evolved as an important terminus for
both cruise ship operators and the Alaska State Ferry System. The year round
opening of the highway link between the cities of Whitehorse and Skagway. in
early 1986 changed regional transportation patterns and opened up new
opportunities for the Port to be used for inbound freight and outbound product
shipment.

Trans-shipment Use of the Port

The Port of Skagway is the most heavily used part of town. The trans-shipment
industry is singly the most important sector within the Skagway economy. The
flow of people and goods, products and resources to and through the City drives
the local economy.

Skagway is one of the few Alaskan cities that enjoy all three major types of
transportation infrastructure within its community: land, sea and air. Given its

Page 18

geographic location at the head of Southeast Alaska Inside Passage, the City
has, from its beginnings as a major staging area for the gold rush at the turn OT
the century, defined its very existence as an international transportation hub. At
the present time, the community is connected with the interior by hard-surface
road, open year-round to unrestricted traffic. Its airport provides air linkage with
other southeast communities, including the international airport in Juneau.
Skagway's waterfront provides the linkage between several types of water
transportation systems and the road system, resulting in the potential.for the
lowest costs for the shipment of goods and materials between southern Canada,
Puget Sound and the Pacific Rim to the south and interior Alaska and northwest
Canada to the north.

Trans-shipment use through the Port of Skagway is summarized on Tables 3 and
4.

Mae-

Close-up of the Port area (June 1990). An Alaska State ferry is in dock. photo by Barbara
Sheinberg

Page 19

TABLE 3 - PORT OF SKAGWAY USE

1970/71 19761 1986/87 1989

General Freight2 60,000 30,000 45,0004
25, 0003 25,622

Concentrates

-New Imperial mines 25,000
-United Keno Hill 95,000 15,000
-Faro Mine 425,000 500,000 560,0005

Asbestos - Cassier 60,000

- Clinton 60,000

Petroleum Products 136,000 102,000 82,5406

TOTALS (tons) 861,000 800,000 577,000 713,162

1 No Tonnage breakdown available.
2 General freight handled by WPYR vessels including loose unitized or
containerized cargo. In 1986/87, approximately 2500 containers were
handled inbound and outbound through the Port by WPYR.
3 General freight including loose, unitized and containerized cargo
handled by others (mainly Alaska Marine Lines) using the floating ferry
dock and city transfer bridge. About 1,250 containers were used for this
movement. From Sept/86 to July/87 some 5000 tons of petroleum products
were also handled over the transfer bridge.
4 This includes freight and petroleum products shipped through the
Port by WPYR, Alaska Marine Lines and via the State ferry.
5 The 1990 estimate for ore to be shipped through the Port is 650,000
tons.

6 The total of 82,540 tons is equal to 26,000,000 gallons. This
includes 22 million gal. delivered to Canada, 3 million gal. used in
Skagway for the State ferry and 1 million gal. used locally in the City.

Data from 1970-1987 is from the 1988 Reid-Crowther report. Data for
1989 was obtained by this Plan's author.

Page 20

TABLE 4 - VESSEL ACTIVITY AT THE PORT OF SKAGWAY

Type of Vessel 1975 1986/87 1989

Barges (WPYR) 50 25* 25

(non WPYR) 25 52

Ore concentrate vessels 26 18** 24

Petroleum barges 20

Cruise Ships 100 265 153

Alaska State Ferries 246 246 265

TOTAL VESSELS 442 579 519

One vessel presently calls at Skagway that is partially converted
to carry bulk liquids. WPYR commissioned a second, similarly converted
vessel, in March 1988.

Larger ore carriers are now calling at Skagway compared to 1975.

All petroleum products came into the Port on the WPYR vessel Frank
H. Brown. Thus, petroleum and general freight barges are now combined.

Data from 1975-1987 is from the 1988 Reid-Crowther report. Data for
1989 was obtained by this Plan's author.

Air, Land and Water Quality

Land and water quality have recently received much attention in the Skagway
area. Lead/zinc ore was transported from the Faro mine in the Yukon to Skagway
by railway from.1967 to 1982. Since 1985, the ore has been shipped via truck.
The trucks arrive in Skagway and travel down State Street to the port
approximately every 30 minutes 24 hours a day 362 days a year. Ore is
transported as a lead/zinc "concentrate"; a product with the consistency of gritty
talcum powder containing up to 62 percent lead, primarily as lead sulfide (galena,
PbS). The ore is stored in a large warehouse on the dock and loaded onto ships
for transport to oversees ore smelters. The empty ships arrive about every 14
days and are loaded over a two or three day period and then depart. Reportedly,
it was a common occurrence in the past, for workers at the warehouse to sweep
ore off the dock into the harbor. Also, many residents observed windblown ore
spread around the warehouse site and off into the adjacent south part of town.

Page 21

Departments of Environmental Conservation (ADEC) and Health and Human
Services (H&S,'13), the U.S. Environmental Protection Agency (EPA) and the
responsible parties. Lead contamination has been found in the soil in parts of the
town, at the ore terminal, and in some marine sediments and marine organisms.

Soil testing was conducted in 1988 and 1989. It showed localized lead
contamination in the immediate vicinity of the ore terminal, along the railroad
tracks and along State Street. The clean up involves removal of the contaminated
soil and either treatment at a wash plant in town or is shipped back to the mine
site. Contaminated material treated in town is separated by size - the gravel and
sand is washed and a sludge is left behind. The sand and gravel are tested to
ensure lead is lower than 1000 parts per million, (the high end of the 500-1000
ppm level recommended by the EPA for residential soils). The contaminated
sludge is then trucked back to the Faro mine for treatment.

Blood samples were collected from the local population in 1988 and 1989. The
testing of these samples indicated that no public health hazard exists. A
cautionary lead level in the blood established by the Center for Disease Control is
2500 micrograms per liter. No children had a level higher than 15 mg/dl. Only one
adult worker at the ore terminal had a level higher than 21 mg/dI. The conclusion
from the final 1989 H&SS report was that, "Based on results of all the testing and
findim the community of Skagway does not have a serious health problem from
lead. e contribution to the body burden of lead from the ore is minimal. Risk
from exposure to lead ore can not said to be zero, but the contribution to the body
burden of lead among Skagway residents is so low as to constitute no basis for
public health concern."

A program to test for lead contamination of marine sediments and marine
organisms in the vicinity of the ore terminal began in 1989. A report from 's
contractors explaining test results is due out in the summer of 1990. Reportedly
some sediments and marine organisms, such as mussels, are contaminated. The
problem has not yet been analyzed in enough detail to determine the least
environmentally damaging method to deal with this type of contamination.

Hatchery and Fish Enhancement

Skagway residents worked with the Alaska Department of Fish and Game
N
ADFG) Division of Fisheries Rehabilitation, Enhancement and Development
ED) to create a small salmon hatchery and sport fishery in Pullen Creek in
1980. A $30,000 legislative grant, donated property and equipment b@WPYR,
and volunteer efforts of many of the residents facilitated the actual atchery
construction in 1982. Hatchery goals include teaching children about fishing,
biology and science and providing a public area for fishing and fish viewing.

Page 22

PORT OF SKAGWAY AMSA
RESOURCE ANALYSIS and POLICIES

at
77 ql;

1w. i

The Pullen Creek and Recreational Vehicle Park in the Port area. photo by Barbara
Kalen of Dedman's Photo Shop

PORT OF SKAGWAY AIVISA
RESOURCE ANALYSIS and POLICIES

INTRODUCTION

All coastal district management plans are required to have a resource analysis. In
the resource analysis section, the uses and activities that occur in the area are
analyzed, with special attention to existing and tential conflicts. The resource
analysis section of this plan reviews the uses an%oactivities in the Port area and
assesses current and anticipated use conflicts for Port resources. A thorough
analysis of uses and issues naturally leads to a discussion of the policies that will
be applies to resolve these conflicts and guide resource management. Thus, the
Port AMSA Plan's enforceable policies follow each issue analysis.

Because the following resources or uses of the ACMP are not significant within
the Port of Skagway AMSA, policies have not been developed for them: energy
facilities, timber harvest and processing, mining, geophysical hazards,
subsistence, and historic, prehistoric and archaeological resources. In the event
that a project was proposed that related to one of these issues, the relevant
policies from the Skagway Coastal Management Program would be used.

The policies developed in this Port of Skagway. AMSA Plan replace both the
ACMP State standard (unless the state standard is specifically adopted) and the
policies found in the SCMP. This Port AMSA Plan contains a detailed inventory
and analysis of the resources, uses and activities in the AMSA area. As a result,
the City now has very specific policies to be applied within the AMSA boundary.
Management of existing and future land and water use is discussed in this
section and shown in Figure 7.

A. WATERFRONT DEVELOPMENT

Analysis

Most of Skagway's primary economic activity accrues from its Port. The City's
economic future is closely tied to this facility. The Port of Skagway is the busiest
and most heavily trafficked part of town. Visitors arrive on cruise ships and ferry
boats. Freight, petroleum supplies and ore shipments cross the industrial docks.
Commercial, sport and recreational fishing occur in the area. These varied uses
share the Port's limited space. Ideally different users should be separated from
one another for safety and aesthetic reasons. However, land use patterns have

Page 24

not developed ideally, due in part to the reality that economically, most docking
facilities cannot be built for a single purpose.

A management plan for the Port of Skagway which includes an Existing and
Future Land and Water Use map (Figure 7) has been developed based upon an
analysis of current and predicted future Port land use, space requirements for
docks and upland staging facilities, a review of natural resources and constraints
of the area and on public sentiment. The Plan's goals and policies and the map
shown in Figure 7 will be used to guide future development and investment in the
Port area. Because of limited working waterfront space, the Plan requires that
Port land be reserved for water-dependent and water-related industrial and
marine related commercial uses. Logical areas for differing port uses are
designated thereby making land availability predictable for the general public,
developers and investors. The Plan's land use designations and policies also
seek to consolidate facilities where possible and enhance the compatibility
between uses in the crowded Port area.

The Plan specifies that approximately seventy-five percent of the Port be devoted
to marine industrial and marine transportation uses. Both actual dock space as
well as upland staging areas to be used for these purposes are shown in Figure
7. The only non-water dependent or water-related existing use in the area is a
helipad. The Plan recommends that the helipad eventually be relocated. Public
access to the waterfront is allowed, but only When public health and safety can be
protected. Since the area is readily accessible to both residents and tourists, the
visual impact of both buildings and operations- must be considered during
development and operation. As an example, new dark brown metal sheeting for
the ore terminal is soon to be installed. This color will make the terminal more
compatible and in harmony with the natural surroundings. Special attention to
access and visual impact will be given to sections that are devoted to transporting
people, for example the State ferry terminal and cruise ship docks. In addition,
visual barriers and noise buffers between the industrial area and the designated
Westrian areas of the Port receive special attention. The boundary and buffer
etween the Skagway River and Port AMSAs should be improved where possible
to segregate industrial use and impacts from river habitat and environment.

The small boat harbor and the areas immediately north and east are designated
for expanded small boat uses and for marine and fish related commercial
development. Small boat haul-out, seafood processing, ice machines, boat repair
and fishing suppl stores are logical uses for these areas. Immediately west and
north of the smalrboat harbor is an area designated for a potential floating dock
and marine-related uplands staging for both the potential new floating dock and
the City's existing freight transfer bridge. The transition between industrial related
uses and fish and marine commercial uses will occur somewhere in the upland
area north of the small boat harbor. Several areas possible for dredge and fill or
piling and king (Figure 7) will create more usable uplands to accommodate both
types of growth. Waterfront access and improved pedestrian amenities make
good sense for this area since both travelers and residents are often drawn to the
charm of boat-harbors.

Page 26

The Pullen Creek Shoreline Park (itself a 1983 AMSA) is part of a larger
pedestrian- recreation Port oriented area. This area includes the pedestrian
corridor to the ferry terminal and a proposed 25-50 foot wide pedestrian walkwa
along the eastern part of the present RV Park and a portion of the present smar,
boat storage/parking area along Congress Way. The plan calls for the eventual
relocation of the RV Park since it is not a water-dependent or water-related use.
Public access to Pullen Creek, its spillway and the shoreline are also
emphasized. A proposed new k area on the east side of the small boat harbor
that is slated for marine and fish businesses is designated for pedestrian
enhancements. In addition, the WPYR cargo dock is designated for pedestrian
enhancements. All of these pedestrian-recreation areas are to receive amenities
such as windbreaks, banners, benches, picnic shelters and areas, interpretive
displays, bike paths, flowers, trees and other landscaping.

The portion of Pullen Creek that is within the AMSA boundary is protected by a
50 foot wide strip on either side of the creek where development is prohibited. A
pedestrian path and amenities are allowed here provided that there will be no
adverse impact to Pullen Creek and its hatchery and fish passage uses. The new
50 foot buffer requirement means all or a portion of the city's access road next to
the RV Park will be relocated because it is presently within this 50 foot buffer.
Possible new access routes to the staging area are shown in Figure 7.

A priority at Pullen Creek is the popular and successful hatchery program. Pullen
Creek water quality and quantity must be suitable for hatchery use. The only type
of development permitted in this area other than recreational or pedestrian related
use is a new hatchery facility, and only if the design of the facility is in keeping
with the nature of the area.

Both the Pullen Creek area and the larger recreation-pedestrian area described in
the paragraphs above are logical targets for amenities that will be required of
waterfront developers by the City's zoning ordinance at 19.06.090.

Policies

A-1 Water-DeDendent and Water-Related Activities.
In planning for and approving development plans in the Port of Skagway AMSA,
the City, State and federal agencies shall give priority in the following order to:
a) water-dependent uses and activities;
b) water-related uses and activities; and,
c) uses and activities which are neither water-dependent nor water-related
for which there is no feasible or prudent inland alternative to meet the
public need for the use of activity.

A-2 Miti-gation.
All land and water uses and activities in the Port of Skagway AMSA shall be
conducted with appropriate planning and implementation to mitigate potentially

Page 27

adverse effects on the following resources or values of local, State or national
importance:
a air and water quality;
b@ fish populations and their habitats by Pullen Creek and the mouth
of the Skagway River;
c) use of the small boat harbor,
d) commercial fishing activities;
d) recreational resources;

The public and private costs of mitigation relative to the public and private
benefits to be gained will be considered, in the implementation of this policy.
Mitigation shall include and be considered in the following order of preference:
a) avoidthe loss altogether by not taking a cettain action or parts of an
action;
b) when the loss cannot be avoided, minimize the loss by limiting the
degree or magnitude of the action and its implementation;
c) when the loss of resources and/or associated activities of local, State or
national concern cannot be minimized, restore or rehabilitate the
resource to its pre-disturbance condition, to the extent feasible and
prudent; and
d) where the loss of important habitat or activities of local, State or national
concern is substantial and irreversible and can not be avoided, minimized,
restored or replaced, compensate for the loss by replacing, enhancing, or
N
roviding substitute resources or environments. Compensation may be in-
d or out-of-kind and off-site or on-site.

A-3 Multiple Use. ile and prudent, piers, docks, cargo handling, fuel and other
To the extent feasit
storage), parking and other accessory facilities shall be designed and used to
minimize the need for duplicative facilities.

A-4 Consolidation of Facilities.
To the extent feasible and prudent, facilities and activities shall be located
adjacent to similarly used facilities and areas.

A-5 Compatibility.
To the extent feasible and prudent, activities on and uses of Port of Skagway
lands and waters shall be compatible with adjacent land and water uses and
comply with designations on the AMSA Existing and Future Land and Water Uses
map at Figure 3. Compatibility shall be given priority attention when industrial
uses locate adjacent to or share facilities with docks used by tourists and the
recreational portions of the AMSA. Compatibility may be achieved by visual and
sound buffering and screening.

A-6 Navic
iational Obstruction.
Uses and activities in coastal waters shall meet the following requirements:
a) Structures and buoys placed in navigable waters shall be visibly marked
and placed in a manner to minimize navigational hazards or obstructions.
b) To the extent feasible and prudent, all temporary and permanent
developments, structures and facilities in marine and estuarine waters

Page 28

shall be sited, constructed, operated, and maintained in a manner that
does not create a hazard or obstruction to marine transportation or
commercial fishing operations.
c) No one use shall effectively exclude other appropriate uses from
significant portions of navigable waters.

A-7 Dredge and Fill Reguirements.
Projects that require dredging or filling in productive waterfront habitats will be
located, designed, constructed, and maintained to:
a) avoid or mitigate significant impacts or destruction of important fish
habitat;
b) avoid or mitigate significant interference with fish migration, spawning
and rearing;
c) limit the extent of direct disturbance to as small an area as possible;
d) minimize turbidity and waterbome sediment transported away from the
dredge or fill site; and
e) maintain circulation and drainage patterns in the area of the fill.

A-8 Disposal of Dredge Materials.
Dredged materials disposed of in shoreline landfills shall, to the extent feasible
and prudent, not cause significant alteration of important habitats or significant
adverse impacts to shoreline processes. If impacts can not be avoided, they shall
be minimized or mitigated. Upland disposal sites for dredge materials shall be
contained and stabilized to prevent erosion and leaching into adjacent waters.
Offshore disposal of dredge materials shall avoid important habitats and be
conducted in compliance with State and federal water quality regulations.

A-9 Visual Impact.
Because the small Port area is very busy and accommodates industry, local
residents and tourists, industrial users shall, to the extent feasible and prudent,
avoid negative aesthetic and noise impacts from their facilities and activities.
Buffering between adjacent uses is encouraged.

ADDITIONAL WATERFRONT DEVELOPMENT POLICIES FOR
THE PULLEN CREEK AREA

A-10 Allowed Uses.
The Pullen Creek area and designated surrounding areas as depicted on the
AMSA Existing and Future Land and Water Uses map at Figure 3, shall be
reserved for fish hatchery, recreation and pedestrian-related uses. These uses
shall be protected from encroachment or interference by incompatible uses.
These uses shall be enhanced by the provision of amenities such as landscaping,
walkways, bikepaths and bike racks, windscreens, water and fish viewing areas,
sportfishing areas, picnic areas and interpretative displays. Public access to the
Pullen Creek area and the waterfront shall be emphasized to accommodate
sightseeing, fish viewing and sportfishing where appropriate.

Page 29

A-11 Bufferina Affect of Area.
The buffer effect of Pullen Creek and the surrounding area serve as a buffer
between the industrial waterfront and the City's Historic District shall be
maintained and enhanced.

A-1 2 Pullen Creek Setback.
There shall be a fifty foot (50') wide buffer strip protected from development,
measured from the centerline of Pullen Creek, on either side of the Pullen Greek

ADDITIONAL WATERFRONT DEVELOPMENT POLICIES FOR
THE SMALL BOAT HARBOR AREA

A-13 Allowable Uses.
The small boat harbor and designated surrounding area depicted on the AMSA
xisfing and Future Land and Water Uses map at Figure 3, shall be reserved for
oati and fishing uses, including marine and fish related commercial
usi esses. These uses shall be protected from encroachment or interference by
incompatible uses. Uses include, but are not limited to, a small boat haul-out,
businesses such as boat rentals, boat repair, marine service stations and marine
equipment. Pedestrian-related amenities and public access to this area will be
enhanced to accommodate sightseeing and sportfishing where appropriate.

To the extent feasible and prudent, uses that jeopardize the existence or safe
operation of small boats shall be prohibited. Any physical or operational loss of
the small boat harbor shall be mitigated.

A-14 Avoid Conflict with Small Boat Harbor Uses.
The industrial waterfront zone shall be managed to avoid or minimize conflict with
the development and operation of the small boat harbor and marine and boat
related commercial activities.

A-15 Shoreline Access.
Marine and fish related shoreline business shall, to the extent feasible and
prudent, provide shoreline access for their customers and the general public.

A-16 Visual Impact.
Marine and fish related shoreline business shall not detract from the scenic
qualities of the shoreline, shall be compatible in design with its surroundings and
shall not significantly block scenic vistas.
E
b n
b n

Page 30

B. FISHERIES

Analysis

The Jerry Myers Hatchery is a very popular and successful program. The
resource inventory section provides details of the development and growth of the
hatchery. The hatchery is now licensed for pink, coho, king and king salmon. In
1989 it was designated the king salmon facility for Lynn Canal. The Jerry Myers
Hatchery is a priority use of Pullen Creek and the associated recreation and
pedestrian area. It is outgrowing its present facility and a new hatchery building
adjacent to the Pullen Creek Park is a possibility. If the design of the building is
appropriate and tourist use of the facility is considered, this is a permitted use in
this area. The Pullen Creek fish are a major tourist attraction. The Pullen Creek
trails, benches, bridges and picnic areas provide the most comfortable and best
spawning salmon viewing in southeast Alaska.

The Jerry Myers Hatchery also has the potential to generate revenue. A pink
salmon weighs about four to six pounds and is worth about 27 cent a pound or
$1.20 to $1.50 each. Two females and one male can produce 3000 fertilized eggs
valued at one cent for each egg or about $30 worth of eggs. The students can
harvest 200,000 eggs in three days with a value of $2000 on the hatchery market.

The success of the Jerry Myers Hatchery and - the nearby at Burro Greek
Hatchery has raised the possibility of a commercial fishery in upper Taiya Inlet.
The Northern Southeast Regional Aquaculture Association and commercial
fisherman want a portion of the State's fish tax money to fund enhancement
projects in the Lynn Canal area. In June of 1990 the ADFG proposed a release of
10 million chum salmon fry in Skagway waters near the small boat harbor.
However, local residents have expressed concern about a commercial fishery
there. They do not want a commercial fishery to negatively impact their sport fish
enhancement efforts or sport fishing. There is concern that a commercial salmon
opening in Taiya Inlet would net all salmon species, including the popular sport
fish raised by the hatcheries.

Policies

B-1 Maintaining Jerry Myers HatcheM.
Maintenance and enhancement of the Jerry Myers Hatchery and its fisheries shall
be given high priority in reviewing any proposal that might impact the fisheries
habitat, migratory routes, recreational fish harvest, or the ability of the Jerry Myers
Hatchery to operate.

Page 31

B-2 Protection of Water for Jerry Myers Hatchm.
Other land and water uses shall not degrade water quality or quantity below
required needs for the Jerry Myers Hatchery.

B-3 Visual Impact
Aquaculture develop'ment and fisheries enhancement shall be located, designed
and operated so that aesthetic values of local shorelines are maintained to the
extent feasible and prudent.

B-4 Disposal of Fish Wastes.
Fisheries enhancement and aquaculture practices, including disposal of wastes,
viscera or fish scrap, shall be conducted so that State water quality and liner
control standards are not violated.

B-5 Pullen Creek Spillway.
The Pullen Creek spillway shall be improved so that fish do not have a 16 foot
drop onto rocks when they enter salt water. Sportfishing opportunities around the
spillway shall be improved. To the extent feasible and prudent, opportunities to
rear fish in saltwater at the base of Pullen Creek shall not be jeopardized.

C. HABITAT

Analysis

Development has been ongoing in the Port area since the 1890s. Today, many
portions are intensely developed. Nevertheless, future development must protect
and maintain habitat values and biologic productivity. Development projects in the
Port area must not interfere with the operation of the Jerry Myers Hatchery and
area fish migration. The need for a critical habitat study of the Skagway River
area is discussed in detail in the Skagway River AMSA Plan. To the extent that
critical habitat are identified around the mouth of the river, particular attention will
need to be given to any project proposals on the west side of the Port AMSA,
adjacent to the rivers mouth. The buffering effect of this area between the river
and the Port's industrial activity should be enhanced.

Policies

C-1 State Standard.
The Alaska Coastal Management Program Habitat Standard (6 AAC 80.130) is
adopted as part of the Port of Skagway AMSA Plan. The shoreline, tidelands and
subtidal area of the Port waterfront and the portion of Pullen Creek that is within
the AMSA boundary are subject to coastal management program standards.

Page 32

C-2 Fish Passne.
Development activities, facilities, and structures shall be designed, sited,
constructed and operated in a manner that does not impede or interfere with
timely access to spawning streams by adult anadromous fish or movements of
juvenile anadromous fish.

D. AIR, LAND AND WATER QUALITY

Analysis

Skagway residents want a clean and safe environment for their children. Air, land
and water quality standards acceptable to the regulatory agencies and the
community must be maintained. Nowhere has this concern been more evident
than with the water and soil pollution discovered along the truck and railroad
routes and at the ore terminal in the Port.

The City intends to assure that facilities meet air, land and water quality criteria.
The Port's industrial users must design and operate their facilities in an
environmentally safe manner. Ongoing monitoring of possible violations by State
and federal regulatory agencies is encouraged. Residents want adequate
separation between petroleum product tanks and Port or river waters. Oil
pipelines must be maintained to ensure that no leaks occur. Water quality
standards in marine waters and the Pullen Creek area must be maintained.

Development must proceed with caution and safeguards taken to ensure
environmental standards are maintained and the public health protected. As an
example, when the WPYR's new dock was built in early 1990, pile driving was
carefully monitored to ensure that no turbidity occurred that could have stirred u
lead contaminated sediments. As part of the ore terminal lease transfer Currag@
Resources will make a number of improvements to the facility. Reportedly the
driveway area will be paved to make ore dust removal easier and a new efficient
system for ore transfer within the terminal will be installed that decreases the
spread of ore dust by using a crane instead of a forklift. Safeguards such as
these are encouraged by Plan policies.

Policies

D-1 Air, Land and Water Qualily.
Notwithstanding any other provisions of this chapter, the statutes pertaining to
and the regulations and procedures of the Alaska Department of Environmental
Conservation with respect to the protection of air, land and water quality are
incorporated into the Port of Skagway AMSA Plan. Water quality shall not be

Page 33

lowered below State standards on a long-term basis by development or any
activity.

D-2 Waste-Water Discharae.
All permits, leases or plans of operation for projects shall require siting, design,
construction, and operation to provide reasonable assurance that waste water
discharges will meet water quality standards. Where appropriate, such measures
shall include, but are not limited to, dikes, catch basins or settling ponds,
interceptor drains, planted buffers or other suitable devices.

Q-3 Development Considerations.
Development shall incorporate facilities for proper storage, disposal and handling
of petroleum products and fuel, solid waste, waste oil, sewage and refuse in
accordance with State and federal regulations. Discharge of untreated sewage
from boats is prohibited.

D-4 Hazardous Materials.
�torage, transportation, cleanup, and disposal of hazardous materials (as defined
in the Hazardous Materials Transportation Act) shall comply with federal, State
and local regulations. The City shall be notified of the quantity, and mode and
schedule of transportation or storage, when the quantity of material meets or
exceeds the threshold quantity set under the Emergency Planning and
Community Right To Know Act.

D-5 Storage of Petroleum and Petroleum Products.
To the extent feasible and prudent, new facilities for the storage, processin or
treatment of 5000 gallons or more of petroleum or petroleum products shail'be
sited a minimum of 1500 feet from domestic water supplies and a minimum of
200 feet from any surface waters. Impermeable berms or basins capable of
retaining 110 percent of the tank capacity (or capacity of the largest tank where
multiple tanks are separately valved) plus 12 inches of freeboard shall be
required to minimize the potential for inadvertent pollution.

D-6 SDIII Containment and Cleanup Eguipment.
Any petroleum transport, storage, and refueling operation of 2000 gallons or more
shall maintain and have access to oil spill containment and cleanup equipme nt
located in Skagway. Personnel trained in the use and maintenance of this
equipment shall be available in Skagway.

D-7 Environmental Protection Technology.
To the extent feasible and prudent, equipment and procedures using the most
advanced and effective technology for limiting emissions and effluent, and for the
storage, handling, cleanup, and disposal of oil and hazardous materials shall be
required for industrial, energy, and transportation facilities.

Page 34

D-8 Cumulative Impacts.
The cumulative effects of new major development on the ambient air and water
%
uality of the City of Skagway will be considered in the review of proposed
velopment projects.

E. TRANSPORTATION

Analysis

Transportation in the Port area has been and will continue to be vital to the city's
economic future. The Port area serves freight, cruise, and ore ships, State ferries,
day cruise boats, and small recreational and fishing boats. Tourists come to and
leave the Port area by boat, railroad, automobile, bus, airplane and helicopter.
General cargo and freight, fuel, mining supplies and ore are shipped through the
Port. The trans-shipment section of the resource inventory provides numbers and
volumes for these various transportation uses.

Port transportation facilities must be improved to ensure Skagway's role as a
gateway port to interior Alaska and Canada. Water-dependent and water-related
transportation of all kinds is a priority use in the Port. Adequate space for uplands
staging to support this use is also required. Continued improvement in ferry
service and scheduling is desirable, including development of fast shuttle ferries.

Policies

E-1 Stream Crossings.
Bridges and culverts shall be designed, constructed and maintained - in
accordance with fisheries conservation practices that minimize habitat
disturbance and allow unimpeded fish passage. Roads and trails shall only cross
anadromous streams when necessary to provide access as deemed necessary
by the City. Phasing of construction shall be done to avoid critical migration
periods for salmon and other anadromous species.

E-2 Road and Railroad Location and Maintenance.
Roads and railroads within the AMSA shall, to the extent feasible and prudent, be
cited to minimize disruptions to adjacent uses, shall be constructed and
maintained to minimize blowing dust and other hazards, and to maximize public
safety.

Page 35

ADDITIONAL TRANSPORTATION POLICIES FOR THE
PULLEN CREEK AREA

E-3 Amenities.
The vehicle and pedestrian access route to the Alaska Marine Highway Terminal
shall be enhanced with increased landscaping, benches, windbreaks, a bike path
and racks and other recreation and pedestrian- re I ated amenities.

ADDITIONAL TRANSPORTATION POLICIES FOR
PORTIONS OF CONGRESS WAY

E-4 Amenities.
The portion of Congress Way that is within the small boat harbor-marine
commercial area shall be enhanced with increased landsca ing, benches,
windbreaks, a bike path and racks and other recreation and p%estrian-related
amenities.

F. RECREATION

Analysis

Recent development proposals in the Port area have been quite divisive as local
residents struggle to reach a consensus on the right mix of economic
development and quality of life. The Port of Skagway AMSA boundary was
deliberately selected to be large enough that both of these important concerns
could be logically accommodated as part of a comprehensive Port plan.

The Pullen Creek Shoreline Park (a 1983 AMSA) is part of a larger pedestrian-
recreation oriented space in the Port. This larger area includes the pedestrian
corridor to the ferry terminal, the east part of the RV park when it is relocated, a
proposed 25-50 foot wide pedestrian walkway along the eastern part of the
present RV Park and small boat storage/parking area along Congress Way, and
%
edestrian improvements to the WPYR cargo dock. The Plan calls for the RV
rk to eventually be relocated as it is not a water-dependent or water-related
use. In addition, an area on the east side of the small boat harbor is slated for
piling and king to create space for marine and fish related businesses. This new
marine business area and all the pedestrian- recreation oriented locations
described above will be enhanced with amenities such as windbreaks, banners,
benches, picnic shelters and areas, interpretive displays, bike paths, flowers,
trees and other landscaping. Public access to Pullen Creek, its spillway and the
shoreline are also emphasized in this pedestrian-recreation oriented area.

FE Page 36
0

Development is prohibited in a portion of Pullen Creek within the AMSA boundary
surrounded by a 50 foot wide strip on either side of the creek. A pedestrian path
and amenities however are allowed, provided that there is no adverse impact to
Pullen Creek, its hatchery and fish passage uses. The new 50 foot buffer
requirement means some portion or all of the city's access road next to the RV
Park will be relocated. The Plan designates possible new access routes through
staging area in Figure 7.)

Small recreational and fishing boat use are very important to the local residents.
These uses are also one sector of the economy that has room for expansion. The
recreational and commercial use of the small boat harbor is recognized and
slated for growth.

Policies

F-1 Designation of Recreation and Public-Oriented Areas.
The Pullen Creek area, portions of Congress Way, and the small boat harbor
within the Port of Skagway AMSA are designated as recreation areas (see AMSA
Existing and Future Land Use map at Figure 3). These three areas are off-site
ta et locations for "5% amenities-enhancement funds" collected under the City
ofrikagway waterfront zoning ordinance 19.08.060.

F-2 Protection of Pullen Creek Area Values.
Use of the Pullen Creek area is restricted to fish hatchery, recreation, and
pedestrian-related amenities. Public access to the Pullen Creek shoreline for
sightseeing, fish-viewing, sportfishing and other recreational pursuits are
encouraged.

F-3 Protection of Congress Way Area Values.
Opportunities for public use and access to the shoreline and small boat harbor
around Congress Way shall be enhanced. Amenities such as landscaping., broad
sidewalks, benches, windbreaks, a bike path and racks, interpretative displays,
banners and other recreation and pedestrian-related features shall be
established.

F-4 Protection of Small Boat Harbor Values.
Recreational and commercial fishing use of the small boat harbor area are
generally compatible and will be maintained and enhanced. Water dependent and
related commercial business is encouraged in adjacent designated uplands and
he proposed new k area on the east side of the harbor. Public access, visual and
edestrian-related amenities are also encouraged in these areas to the extent
easible and prudent.
p
f

Page 37

F-5 Recreational Development Design.
Recreational developments shall be located, designed, constructed and managed
to minimize adverse effects on other appropriate shoreline uses, whether existing
or officially planned, and to provide safe, healthy conditions for recreationists.

F-6 Scenic Views.
Recreational and access developments shall blend into the surroundings,
preserve or enhance scenic views and vistas, and improve the aesthetic value of
the area.

A&L -0,

. ........ .

The small boat harbor in the Port. photo by Bathara sheinberg

Page 38

SKAGWAY RIVER AMSA
RESOURCE INVENTORY

@,,,,E@ . . . . .. . . . . . .

Looking north up the Skagway River from the foot bridge. photo by Barbara Sheinberg

SKAGWAY RIVER AMSA
RESOURCE INVENTORY

INTRODUCTION

The Skagway Coastal Management Plan (SCMP) provides a detailed inventory of
the physical, biologic and human resources in the area. This Skagway River
AMSA focuses specifically on the River area and provides some supplemental
information.

PHYSICAL and BIOLOGIC ENVIRONMENT

General Setting

Rugged mountains, steep walled valleys with glacial rivers, numerous glaciers
and ice fields characterize the geography of the area. The Skagway River and the
Taiya River are the two major rivers that drain into Talya Inlet.

The Skagway River is a braided stream with an overall average gradient of 192
feet per mile and an average gradient of about 40 feet per mile in the AMSA area.
The River valley is for the most part a canyon intersected by tributary valleys. The
River drains an area of approximately 145 square miles, consisting mainly of
steep, partly timbered, mountainous terrain.

Geology and Soils

The townsite of Skagway and Skagway River are located on igneous and
metamorphic bedrock. In the Skagway River floodplain this bedrock is covered by
an approximately 600 foot thick layer of sediments on top of the bedrock. These
sediments include approximately 150 feet of alluvial, deltaic and marine deposits
that overlie 450 feet of compact glacial deposits. The glacial deposits are

Page 39

composed of cobble and boulder sized rubble sandy gravel and silt. The
groundwater table is encountered between five akd ten feet below the surface.
Sediments below the groundwater table are saturated. Along the River the top
surface deposits consist of glacial drift in some places, floodplain deposits and
alluvial deposits - gravel, sand, some cobbles and silt. The sorted glacial drift
material is good road surfacing material.

The nature of the Skagway River subsurface is described in more detail in
material site drilling and testing. Refer to the "Materials Extraction" section of the
Resource Inventory chapter for more information.

Hydrology

Skagway River Drainage

The Skagway River drains a vast area that begins in the Coast Range Mountains
in the Yukon Territory. Important Skagway River drainage characteristics are
summarized in the table below.

TABLE 5 - DRAINAGE CHARACTERISTIC OF THE SKAGWAY RIVER
(an updated version of a table from the Skagway Coastal Management
Program document)

Length: 19 miles
Drainage Area Appr. 145 square miles
Mean Elevation: 3900 feet
Average Slope: 192 feet per mile
Average slope in AMSA area: 40 feet per mile
Water temperature: 33-49 degrees F
major tributaries: East Fork, White Pass
Major Glaciers: Laughton, Denver, South
Major Lakes: Summit, Goat
Average Discharge: 500 cubic feet second
(low flow of 50 cfs
in April- and high
flows of 1270 cfa in
Jrune-Aug)

Page 40

Groundwater

Skagway's current drinking water supply comes from three wells located at 15th
Avenue that tap a groundwater aquifer in alluvium deposits formed by the
Skagway River. The location of these wells is shown below (from the June 1990
Skagway Water Quality Planning Study report by James Montgomery Engineers
Inc.).

TABLE 6 - LOCATION OF CITY WELLS
(from the June 1990 James M. Montgomery report)

AVE.-

F-AVE, I

E:3
3: .0 16th AVE.]
JUa z
WELL#3

15th
METER S

-ELNELL# I
@ L F AVE.1
WELL#2 WITH.
EMERGENCY GENSET

VE.

E--7 E-AVE,
E-12th E

E @_AVE.

AVE.1
9 t =h]
IE= 1-C 5
E@R

F
JW E02 w
LL#
EMERCEN

L LOCATIONS
CITY WEL

Page 41

City well No.1 is 80 feet deep, well No. 2 is 75 feet deep and well No. 3 is 120
feet deep. The City began using these wells as its groundwater source in 1966.
Areas not served by City water rely on private wells that withdraw water generally
from the upper 25 feet of sediments. Water from the Skagway River and its
tributary streams enter alluvial deposits to recharge the floodplain aquifer.
Additional surface water enters the aquifer as precipitation runoff that percolates
downward into the aquifer. Most of the surface water accumulating on paved
surfaces and buildings either_percolates into the aquifer, is carried away in City
storm drains or evaporates. Uroundwater entering the floodplain aquifer moves
southeasterly through the aquifer toward the inlet.

River Hydraulic Capacity and Flooding

The hydraulic capacity of the Skagway River is of great local concern. The City of
Skagway has grown up along the riverbank - the original townsite, City airport
and new school are immediately adjacent to its banks. As river waters rise during
storms, the possibility of flooding becomes a major concern. To assure that the
flooding potential does not increase, development along the River must not
decrease the carrying capacity of the River. Data on the Skagway Rivers water
discharge rate is shown in Table 7 on the next page.

Page 42

TABLE 7 - SKAGWAY RIVER DISCHARGE RATE
(from the June 1990 James M. Montgomery report)

JAN FEB MAR APR MAY JUN JULY AUG SEPT OCT NOV DEC
4000 1 1 1 1. I I i I = 100
- - - - - - I- - - --- - - - - --- 80
1 70
2000 F_ -.:- 60
-50
-40

0 1000 - - - - - - - -
800 - - L L L

600 - -
L L L
CL
400 - - r - r - -_to
8
7
200 L L L 6
.0
5
4
100 - - 1- 3
80 - - - -
2
60

40 1.0

20
0.5

0.3
10

Mean Maximum Discharge
From U.S. Geological Survey
Mean Discharge Open File report, Water Resources
Minimum Mean Discharge Skagway, Alaska, 1975

Discharge of
Skagway River
1964-1973

Flooding from the Skagway River may result from heavy rains, rapid snow melt,
earthquakes, or the sudden breakout of a glacier-damned lake. Floods usually
occur in the autumn after heavy rains and the accumulated snow has melted. In
addition, human activity such as control or diversion of waterways or
development in the floodpla]n can magnify flooding problems.

Page 43

The Skagway River hydraulic capacity and potential for flooding was first
addressed by the U.S. Army Corps of Engineers (Corps) in 1940 when a study
that resulted in construction of a 1.5 mile dike was completed. That dike extends
upstream from the River mouth. It was constructed as part of a harbor navigation
project. It is believed the dike can contain a 28,000 cubic feet per second (cfs)
peak discharge flood.

Another flood control project to reconstruct and extend the existing breakwater
and dikes on the east bank of the River was authorized in 1946. This project was
also intended to reconstruct the existing dike at the former tuberculosis
sanatorium site. However, this project was never funded.

The Corps, the WPYR Railroad, the State Department of Transportation and
Public Facilities (DOTPF) and private property owners have at various times built
dikes further upstream, north of the 23rd Avenue highway bridge. These dikes
date back to the 1940s. Some were built legally and others were not.

The City's primary protection against flooding is the original Corps dike built in
1940. The location of the dike is illustrated in Figure 8. The dike has been
breached several times and significant portions have eroded. At the time it was
constructed, the design life was most likely predicted to be 25 years. This means
there is dail wear and tear on a structure that is probably to 25 years past its
design life. 9bviously, this is of great concern to the residents of Skagway.

The Corps completed a new survey of the condition of existing dikes and flood
control measures in April of 1990. The City of Skagway has asked the Corps to
initiate a reconnaissance study in order to complete a new hydraulic capacity
analysis of the River. The new analysis will form the basis of a vision concerning
a new flood control project.

Table 8 summarizes data from major Skagway River floods. The U.S. Geologic
Survey's (USGS) river gauging station was removed from the Skagway River in
September of 1985 due to lack of funding. (The cost to maintain a river station is
approximately $20,000. Half of this cost is usually paid by the USGS.)

Page 44

TABLE 8 - MAJOR SKAGWAY RIVER FLOODS AT 23rd AVENUE BRIDGE

Peak flow State*
Date Cubic feet/sec Feet-MSL Remarks

October 1901 35,000 64.4 Assumed equiv.to
1943 flood
September 1919 15,000 61.4
September 1927 15,000 61.4
October 1936 15,400 61.7
October 1943 35,000 64.4 Flood of record
October 1944 30,000 63.4
October 1949 ------- ---- Data not avail.
September 1967 13,000 62.5

* Average elevation of stream invert is 58.0 feet Mean Sea
Level (MSL)

This table is from a January 1975 U.S. Army Corps of
Engineers report.

Other Geophysical Hazards

The Skagway area is subject to earthquakes, landslides, erosion, aggradation,
and slow geostatic uplift (rebound) of the land resulting from bearing the weight of
past glaciers.

Fish, Birds and their Habitat

The ADFG classifies the Skagway River as an anadromous water. This means it
provides for the spawning, rearing or migration of fish that spawn in freshwater
and spend part of their lifecycle in salt water. The River has a minor autumn run
of chums and coho salmon. In the AMSA area, the Skagway River is meandering
and periodically floods. This can negatively impact habitat. Flood control efforts
and lasting effects caused by the gold rush stampede on and around the River
have also altered habitat conditions. As a result of these factors, the River has
minimal fishing potential.

Recent conversations with Southeast Alaska ADFG personnel R. Ericksen, J.
Schempf) indicate that the most critical Skagway River habitat Zr anadromous
fish in the summer is the smaller feeder streams that feature alders and other

Page 45

overhangin vegetation. In winter, the juvenile coho salmon and dolly varden
move out o?the side _ , aams and into the deeper holes of the Skagway River that
do not freeze through. This type of overwintering habitat is critical from October
through April or May. In general, areas of the Skagway River that are high, dry
and frozen during the winter are not critical habitat areas.

There have not been any recent inventory efforts in the area for fish resources
since 1980. However, recent observations have shown that locations with
important overwintering or spawning habitat and with enhancement potential
include:

1) a stream located opposite the airport near U.S. Survey 3312, Lots 27
and 28, that doesn't freeze through in the winter (R. Ericksen, J. Tronrud),
2) a stream in an old ditch that crosses portions of U.S. Surveys 176 and
1805 where rearing coho were observed (J. Myers/R. Ericksen),
3) a creek by Liarsville where a culvert should be removed and replaced
with a larger one to facilitate fish movement (R. Ericksen), and,
4) a pond immediately downstream from the Gold Rush Cemetery where
flooding buried a culvert a few years ago that is used by rearing fish (R.
Ericksen).

The tideflats, stream banks and channels, and wetlands form important feeding
and resting areas for waterfowl and other birds. The major migratory route for
waterfowl and seabirds is south of the area in Lynn Canal and the Chilkat Valley
However, some birds, listed in Table 2 do feed in the area.

Vegetation

Skagway is located within the coastal spruce/hemlock forest that extends
throughout Southeast Alaska. Most of the area forest is considered non-
commercial quality. Skagway lost part of its virgin forest to fire shortly after the
gold rush era. Along the Skagway River, there are sparse cottonwood and alder
trees that are a maximum 24" in diameter. There is also scattered willow brush.

HUMAN ENVIRONMENT

Material Extraction

Sand and gravel resources in the Skagway area come from the Skagway River
floodplain, talus slopes, glacial moraines and beach deposits. The Skagway River
floodplain provides an easily developed source for the City's material needs. Four

Page 46

material sites in the AMSA area that have been used recently are illustrated in
Figure 8. Three are sources from the River floodplain and one from a talus slope.

Drilling at Material Site 3 (Figure 8) on the east side of the river occurred in
October of 1984. At that time the depth of the water table varied from 3.0 to 8.5
feet. Seasonal fluctuation of the water table is to be expected. The drilling
showed that the riverbed generally consists of river deposited sand and gravels
with 16" to 26" boulders. Material passing from the #200 screen on samples
tested ranged from 1 to 4 percent. The average depth of organic soil is
approximately 8", but varies in depth from 0-12".

Fish Enhancement

There are no hatcheries in the Skagway River or within the AMSA boundary.
However, a variety of fish habitat enhancement efforts do exist. Various culverts
have been placed and maintained to aid fish passage. Also, the mining plan for
Material Site 3 (Figure 8) calls for the creation of fish rearing ponds as part of the
reclamation process. Rearing and other fish enhancement activities can happen
here and at the sites described in the 'Fish, Birds and their Habitats' Section of
this Resource Inventory chapter.

Air, Land and Water Quality

Air Quality

Skagway is located within a Class 11 Airshed defined by the ADEC as aenerally
free from pollution but with some industrial use occurring. The narrow Skagway
River Valley is the area most impacted by industrial activities. Activities within and
near the Skagway River AMSA that have the potential to impact AMSA air quality
include: air pollution from ore particulate dust, train emissions, emissions from
other industrial users, wood smoke emissions and burning at the landfill site.
Contaminated lead ore dust has polluted some soil, marine sediments and
organisms. This subject is fully dealt with in the Port of Skagway AMSA. Except
for ore dust, most other emissions are considered minor due to prevalent strong
blowing winds in the area.

Water Quality

The City's drinking water is provided by an aquifer beneath the Skagway River
that is tapped at 15th Avenue. Skagway's water quality is considered good.
However, recent City of Skagway and ADEC testing for impurities discovered low
levels of seven volatile organic chemicals. Although the final maximum
contamination levels (MCL) considered a health risk by the U.S. Environmental

Page 47

Protection Agency (EPA) are still evolving, it appears that two of the seven that
are present in Skagway's wells could on occasion exceed those standards. So far
only tetrachloroethylene (which has not been shown to be carcinogenic) has
actually exceeded its anticipated MCIL, but trichloroethylene (which has been
identified as a low risk carcinogen) has come very close. The A has
recommended that the City continue to monitor its water supply.

Solid Waste

The City's current solid waste site is within the AMSA boundary. The city collects
garbage, burns it and then buries it with cover material. The current site is in
violation of regulations and is considered an eyesore by residents. A regulations
do not allow landfills to be burned and buried at the same location. Only
communities with populations of less than 800 are allowed to open burn their
garbage. The present landfill is near capacity and its operating permit expires
ember 31, 1990.

Transportation

Introduction

The Skagway River Valley is the predominant transportation corridor for this area.
Various transportation related uses include:
1) The City airport, located on flat land adjacent to the Skagway River
mouth.
2) The WPYR Railroad shop yard, adjacent to the River and just north of
the 23rd Avenue highway bridge.
3) The WPYR railroad which follows the River valley in the north part of the
AMSA.

4) A 4" diameter oil pipeline, adjacent to the railroad and River in parts of
the AMSA.

5) The State owned Klondike (Slk@qway-Carcross) Highway, adjacent to
the River in the north part of the AMSA.

Airport

Skagway airport, built along the banks of the Skagway River, is owned and
maintained by the State. The airport runway is located on fill behind the dike,
almost parallel with Alaska Street. The present runway is too close to some
residences. The distance from the centerline of the runway to the edge of the City

Page 48

is only about 2000 feet. The runway centerline is about 300-500 feet from Alaska
Street. The building restriction line is currently 160 feet from the runway
centerline. About a dozen homes are within 300 feet of the runway centerline.
Some parts of these homes are currently within the building restriction line.

The air transport industry is dependent upon tourism for about 80 percent of its
business. Air operations increased more than 30 percent from 1986 to 1987.
Some of this increase could be due to better reporting. During the summer
months, traffic level at the Skagway airport is quite heavy - primarily due to "fly-
cruise" and "flight-seeing" clients from cruise ships and the Alaska Marine ferry.
Traffic is so heavy that current facilities can not safely accommodate it. This
safety concern has prompted improvements to be proposed for airport. The first
step, a planning study, was completed in 1989 by TAMS Consultants, Inc.
working for the State DOTPF.

Skagway needs to continue to improve the airport's operations and safety.

Railroad

Local rail transportation is now solely dependent on the tourist industry. The
WPYR railroad seasonal tourist excursions began in 1988. The industry
9
enerated 36,000 passengers that year and just over 77,000 passengers in 1989.
kagway wishes to encourage the rail industry- to improve and expand its
services.

Roads

Road transportation within the AMSA is provided by the State of Alaska and the
City of Skagway. The State maintains the Klondike CSkagway-Carcros Highway
from the U.S. border to the ferry terminal, and Dyea Road. The Itate also
maintains the road built by the U.S. Army Corps of Engineers many years ago
from Liarsville to the old tuberculosis sanitarium. The State maintains it since it
provides access to State owned lands along the River and access to River dikes
for maintenance. The WPYR maintains a private road across their railroad shop
yard. This road is the only access for the public to the Ried Falls area and the
Gold Rush Cemetery and for the State to its Material Site 3 (Figure 8).

The Klondike (Skagway-Carcross) Highway was completed in 1978. The 112 mile
road connects Skagway with Whitehorse, Yukon and the Alaska Hi hway No. 1
(Alcan). Approximately 14 miles of the highway are within the US. border.
Between 1979 and 1986 the highway was maintained only during the summer.
After rn repair work during 1985 and 1986, the road was opened for use in the
winter. Ve0arr round usage was made possible by an agreement between the State
and the Yukon Government and has enabled ore from the Faro mine in the

Page 49

Yukon to be trucked to the Port of Skagway for shipment. Ore is trucked year
round thereby assuring year round road maintenance.

Highway use shows steady increase from 1979 to 1989. During this time period
the number of vehicles using the highway increased 8 to 10 percent a year. In
1989 there were approximately 40,700 vehicles traveling the road with a total of
just over 99,700 passengers. These figures include 2319 buses (both through
buses and Skagway-Carcross-Skagway trips) that carried 23,488 passengers
and 12,611 ore trucks.

Recreation

The areas most in demand for recreation are naturally !hose close to town. The
area along the shoreline and waterfront and in the river valleys is especially
desirable. Recreational use of the Skagway River is important both to residents
and tourists. The Skagway River waters are to be kept open for all users. No one
use will preclude any others, including recreation. The State does not provide any
recreational facilities for using the River.

The State Department of Natural Resources (DNR), Division of Parks and
Outdoor Recreation (DPOR) formerly managed a campsite west of the River at
Liarsville. They dismantled the limited facilities and discontinued services when a
material sales site was established at the same location. This site was a local
favorite for picnicking and cookouts. Just south of this site there is a small
privately owned and operated campsite.

State owned land just west of the River at Reid Falls/Gold Rush Cemetery is a
popular tourist destination. It is accessible by foot or vehicle. However, access is
via privately owned WPYR land and the public must cross the heavily used
railroad tracks several times creating a public safety problem. The WPYR is
currently relocating this segment of railroad so that visitors will no longer have to
cross the railroad tracks several times and to eliminate the need for trains to
move through the area at reduced speeds.

City owned and managed Yakutania Point Park is located along the west bank of
the River mouth. A small foot bridge across the River provides pedestrian access
to this Park and a jogging trail and exercise course. This is another very popular
area for local residents and day visitors.

The Klondike Highway from the 23rd Avenue highway bridge to Liarsville is
heavily trafficked by pedestrians for sightseeing, jogging, bike-riding and access
to the River for picnicking and camping. This same corridor is also heavily used
for industrial truck traffic and thousands of tourist vehicles and buses each year.

Page 50

Another important recreation is the simple pleasure of sightseeing to the
magnificent vistas of the area. Dyea Road offers spectacular views of =wn,
Port, River, Long Bay and Taiya Inlet.

Subsistence

Few people in Skagway are totally dependent upon harvesting food from the sea
or land. However, many people supplement their family diet with fish, game and
berries. They also supplement their fuel supply with wood.

Subsistence use was recently documented by Kruse and Frazier, in their study
Tongass Resource Use Cooperative Study, September 1988. The study
compared Skagway subsistence habits to 29 other communities in Southeast
Alaska. According to the survey, Skagway residents harvest fewer pounds of
edible subsistence resources than any other community in the study. Skagway
residents harvested between 31-72 pounds per capita, compared to Edna Bay,
the highest subsistence harvesters at 475-560 pounds per capita.

The survey showed that fishing for salmon, finfish, and other invertebrates (crab,
shrimp) is more important to Skagway residents than hunting for deer and other
mammals. Fishing may be more popular because of the successful salmon
enhancement efforts of the Jerry Myers and Burro Creek hatcheries.

The lower reach of the Skagway River in the AMSA area is generally not used for
subsistence.

Petroleum Storage and Transfer Facilities

Energy related facilities along the Skagway River include petroleum product tanks
and pipelines for transfer. Approximately 26 million gallons of fuel passed through
the Port in 1989. The fuel is either shipped to Canada, used by the State ferries
or consumed locally. About 85 ercent of the fuel is transferred by the WPYR to
Whitehorse in the Yukon Ter tory. The fuel is generally piped off ships into
storage tanks located either at t e Port or along the Skagway River. All fuel tanks
are located within either the Port or River AMSA. Some of these storage tanks
were built in the 1940s and require careful maintenance. Fuel is later trucked or
piped through the company's four inch diameter pipeline to Whitehorse. The
du pipeline parallels the railroad corridor located along the Skagway River valley.

Petroleum product tanks are also located at the H&H construction yard adjacent
to the River.
p
ri
h

Page 51

The movement, transfer, and storage of fuel requires vigilance during handling to
prevent spills and leaks. T his is especially important along the Skagway River
where the tanks are located in the River floodplain and above the City's drinking
wells.

ne,
1;;.Ni;

pry,-

Oil tanks next to the ore terminal at the Port. photo by Barbara Sheinberg

Page 52

SKAGWAY RIVER AMSA
RESOURCE ANALYSIS and POLICIES

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

The foot bridge crosses the lower reach of the Skagway River to provide foot access to
Yakutania Point Park and popular jogging trails. photo by Barbara Sheinberg

SKAGWAY RIVER AMSA
RESOURCE ANALYSIS and POLICIES

INTRODUCTION

All coastal district management plans are required to have a resource analysis. In
the resource analysis section, the uses and activities that occur in the area are
analyzed, with special attention to existing and potential conflicts. The resource
analysis section of this plan reviews the uses and activities in and alon the
Skagway River and assesses current and anticipated use conflicts for hver
resources. A thorough analysis of uses and issues naturally leads to a discussion
of the policies that will be applies to resolve these conflicts and guide resource
management. Thus, the Skagway River AMSA Plan's enforceable policies follow
each issue analysis.

Because the following resources or uses of the Alaska Coastal Management
Program (ACMP) are not significant within the Skagway River AMSA, policies
have not been developed for them: energy facilities, timber harvest and
F
rocessing, subsistence, and historic, prehistoric and archaeological resources.
n the event that a pro'ect was proposed that related to one of these issues, the
relevant policies from t9e Skagway Coastal Management Program (SCMP) would
be used.

The policies developed in this Skagway River AMSA Plan replace both the ACMP
State standard (unless the State standard is specifically adopted) and the policies
found in the SCMP. This River AMSA Plan contains a detailed inventory and
analysis of the resources, uses and activities in the AMSA area. As a result, the
City now has very specific policies to be applied within the AMSA boundary.
Management of existing and future land and water use is discussed in this
section and shown in Figure 8.

A. SHORELINE DEVELOPMENT

Analysis

Land ownership and topographic constraints have dictated the pattern of land
development in Skagway. The most intensively used area is the approximately
130 block townsite located at the mouth of the Skagway River. Most of the area
outside the core townsite is too steep for development, except for low density

Page 53

residential, dispersed recreation, and resource development. This outlying area is
not serviced by city water and sewer.

The relatively flat land located within the Talya and Skagway River valleys is the
most suitable for development. Of these two river valleys, the Skagway is the
most accessible. The State highway, the City airport and the WPYR Railroad are
located along this flat river valley. The area north of the 23rd Avenue highway
bridge is the most likely for future development. It is the only section of town other
than the Port that is suitable for heavy industrial development. There is currently
a mix of residential, industrial and dispersed recreational uses in this area.
Several physical limitations at this location need to be addressed prior to more
intensive use. The area is subject to floodipg and has a high water table which
may preclude the use of septic systems. It is north of the city's water supply and
ground water contamination must be avoided. In addition to these considerations,
there are important public recreation, access and scenic values to be considered.

Planning for development along the Skagway River must take into account the
natural constraints of the land and river and must also balance the competing
uses for this important land. The management called for in this Resource
Analysis Chapter, the policies set forth, and the Land Use (Figure 8) all work
together to illustrate the community vision for the lower reach of the Skagway
River.

Policies

A-1 Water-Dependent and Water-Related Activities.
In planning for and approving development plans in the Skagway River AMSA,
the City, State and federal agencies shall give priority in the following order to:
a) water-dependent uses and activities;
b) water-related uses and activities;
c) uses and activities which are neither water-dependent nor water-related
for which there is no feasible or prudent upland alternative to meet the
A public need for the use of activity; and
d) uses and activities which are neither water-dependent nor water-related
for which there are upland alternatives. Permitting of such uses and
activities will be evaluated on a case-by-case basis to insure that a future
significant potential water-dependent or water-related use for that site is
not preempted.

A-2 Mitigation.
All land and water uses and activities in the Skagway River AMSA shall be
conducted with appropriate planning and implementation to mitigate potentially
adverse effects on the following resources or values of local, State or national
importance:
a) air and water quality;
b) fish populations and their habitats; and
c) the river's hydraulic capacity.

Page 55

The public and private costs of mitigation relative to the public and private
benefits to be gained will be considered, in the implementation of this policy.
Mitigation shall include and be considered in the following order of preference:
a) avoidthe loss altogether by not taking a certain action or parts of an
action;
b) when the loss cannot be avoided, minimize the loss by limiting the
degree or magnitude of the action and its implementation;
c) when the loss of resources and/or associated activities of local, State or
national concern cannot be minimized, restore or rehabilitate the
resource to its pre-disturbance condition, to the extent feasible and
prudent; and
d) where the loss of important habitat or activities of local, State or national
concern is substantial and irreversible and can not be avoided, minimized,
restored or replaced, compensate for the loss by replacing, enhancing, or
providing substitute resources or environments. Compensation may be in-
Kind or out-of-kind and off-site or on-site.

A-3 Design and Siting Criteria.
Development shall be sited, constructed and operated to reduce the impact of
flooding and other geophysical risks, to allow for natural drainage and to minimize
damage to life and property. To the extent feasible and prudent, development
within the Skagway River floodway is prohibited. Development within the 100
year floodplain must conform to the City's floodplain management guidelines
(SCC Title 15, Chapter 12.) Those areas protected by dikes and other flood
control devices, can be developed if density, siting, setback and structural
requirements reflect the physical opportunities and constraints of the site (e.g.,
flooding and a high groundwater table).

A-4 Dredge and Fill Reguirements.
Projects that require dredging or filling in productive Skagway River habitat shall
be located, designed, constructed, and maintained to:
a) avoid or minimize significant impacts or destruction of important fish
habitat;
b) avoid or minimize significant interference with fish migration, spawning
and rearing;
c) limit the extent of direct disturbance to as small an area as possible;
d) minimize turbidity and waterborne sediment transported away from the
dredge or fill site; and E
e) provide for adequate circulation and drainage in the area around the fill

A-5 Disposal of Dredge Materials.
Dredged materials disposed of in shoreline landfills shall, to the extent feasible
and prudent, not cause significant alteration of important habitats, degradation of
water quality or significant adverse impacts to shoreline processes. If impacts can
not be avoided, they shall be minimized. Upland disposal sites for dredge
materials shall be contained and stabilized to prevent erosion and leaching into
the river waters.

Page 56

B. HAZARDOUS AREAS

Analysis

Most of the land within the AMSA is subject to a variety of geophysical hazards.
These hazards include floodl ng, erosion and aggradation, slow land uplift as a
result of glacial retreat, landslides and earthquakes. Development must include
the appropriate safeguards to protect structures against these natural hazards.

The City of Skagway has grown along the banks of the Skagway River.
Consequently, flooding is the hazard that occurs most frequently and is of
greatest concern to City residents. Erosion and aggradation occur, as a result of
both the natural swing of a meandering braided stream and from human actions
such as dike and bridge construction. Erosion and aggradation contribute to
flooding potential. The Resource Inventory chapter of this Plan describes the
history of flooding and flood control measures undertaken along the River.

Important locations for flood control include the 23rd Avenue highway bridge and
property to the north. There is growing concern that erosion will eventually affect
the highway brid e supports. Concern is also focused on the WPYR railroad shop
area where the Erps surveys predict that flood flows will overtop the dike. Other
critical flood control areas are south of the bridge and along the airport runway.
Here, the dike was removed in one section, lowered in others, and neglected
along its entire length to the extent that vegetative growth now threatens stability
and accessibility during a flood.

The responsibility for dike maintenance has been debated for years. The Corps
claims the City is responsible, the City says responsibility rests with either the
State who owns the watercourse the property owners who abut the River, or the
Corps who is re onsible for flood control projects. In any case, the Corps
recommends the S@ity increase maintenance, stockpile material for use during a
flood, survey the dikes, return the dikes to design grade, and clear the vegetation.
As discussed in this Plan's Resource Inventory chapter, the Corps has just
completed a condition survey of the dike in April 1990.

City flood control focus' on floodway and floodplain management by restricting
building location and requiring specific design measures during construction. The
City must continue to ensure that the public be informed about flooding hazards,
restrict development in the active floodway and require safeguards for building
development in the floodplain. These measures will assure the City's goal to
minimize loss of life and property. The City must also provide for up-to-date
analyses of the Rivers hydraulic capacity in order to facilitate planning and flood
prevention efforts. Finally, flood control devices must be maintained and new
flood control measures added where appropriate.

Page 57

Proposed major projects may be required to analyze the project's impacts on
River hydraulics to ensure that there is no increase in the rivers flood water
carrying capacity. Projects may also be required to propose specific design or
mitigation measures to protect life and property from flood threat and protect the
integrity of the River.

Policies

B-1 Hydraulic Capacity Considerations.
Major projects within the 100 year floodplain of the Skagway River may be
required, as deemed appropriate by the City, State or federal agencies, to
complete a detailed investigation of the project's impact on the rivers flooding
potential and hydraulic cap@city. Measures may be required to assure that the
rivers. hydraulic capacity is not decreased. When appropriate, design or
mitigation measures will be sensitive to and seek to enhance fish habitat and
offer suitable sites for material sale.

B-2 Erosion.
Development and resource extraction activities shall be sited and conducted to
minimize accelerated river erosion that could contribute to increased flood
potential. To the extent feasible and prudent, development activities shall retain
existing vegetative cover in erosion-prone areas. In cases where development
necessitates removal of vegetation, erosion shall be minimized through
revegetation or other appropriate control measures.

B-3 Flood Control Efforts.
Priority attention for flood control efforts will be given to completing a an up-to-
date Skagway River hydraulic capacity analysis, completing new hydraulic
capaci%uanalyses as needed, and improving flood control efforts throughout the
AMSA tparticularly at areas identified as critical in recent U.S. Army Corps of
Engineers surveys. These critical areas include low areas near the runway, and
the areas upstream and downstream of the 23rd Avenue Highway Bridge.

C. HABITAT

Analysis

The Skagway River is an ADFG catalogued anadromous stream. River
management efforts are hindered by the lack of conclusive information on critical
river habitats. A formal research study and detailed evaluation is badly needed to
identify critical anadromous fish spawning, overwintering and other important
habitat areas. As development pressures mount this information will become
more and more critical for decisi on- makers. Information on critical habitat will
permit effective habitat and sportfishery enhancement programs and projects to

Page 58

be designed, thus assuring protection of critical habitat areas. Just as important,
the study will identify less important areas where both public and private sector
gravel extraction and other development efforts could occur with minimal impact
to fish habitat or populations.

The lack of habitat information will become an increasing problem as
development projects adjacent to the Skagway River banks continue to occur.
For example, demand for development in the flat accessible part of town north of
the 23rd Avenue highway bridge and adjacent to the Skagway River will continue
to occur; expansion of the airport is needed for safety reasons, and residents
prefer it be exp@nded toward the River; flood control efforts will continue along
the Skagway River banks; the Skagway River has gravel resources that will
continue to be exploited; the foot bridge to Yakutania Point Park needs a regular
maintenance program at its present or a possible relocated site. The lack of
detailed habitat information is already the cause of unacceptable delays in
Skagway River project evaluation and permitting.

Policies

C-1 State Standard.
The Alaska Coastal Management Program Habitat Standard (6 AAC 80.130) is
adopted as part of the Skagway River AMSA Plan. The river shoreline and
adjacent wetlands and uplands within the AMSA boundary are subject to coastal
management program standards.

C-2 River Channel Stability.
Development or resource extraction activities in or adjacent to the river shall, to
the extent feasible and prudent, create a more stable river channel and enhance
fish habitat.

C-3 Fish Passage.
Development activities, facilities, and structures shall be designed, sited,
constructed and operated in a manner that does not impede or interfere with
timely access to spawning streams by adult anadromous fish or movements of
juvenile anadromous fish.

D. AIR, LAND AND WATER QUALITY

Analysis

The Cit is facing a current solid waste/landfill problem. The existing landfill site,
almost rull, has operating permits that expire December 31, 1990 and is presently
in violation of ADEC standards. The present landfill location is shown in Figure 8.

Page 59

440WWRecently, the City has studied alternative landfill sites along the Klondike
Highway and Dyea Road where easy public access already exists.

Landfill sites along the Klondike Highway have drawbacks including: potential
flooding, high water table, and potential groundwater contamination. Flooding
along the Klondike Highway can result in a serious health hazard caused by
contamination. Additionally a high water table could preclude approval of a site
since a landfill must have a minimum of two feet separation from the water table.
Also, a land-spreading site must have a six foot vertical separation. A serious
source of groundwater and river pollution may be caused by the sites along the
highw@y and river that are above the City's water supply. For these reasons, site
selection has been narrowed to a location off Dyea Road, outside the Skagway
River AMSA boundary. The City is beginning design and permitting work during
the summer of 1990.

The City is involved in an extensive testing and clean-up program for the ore dust
contamination problem. This project is discussed fully in the Port of Skagway
AMSA Plan.

The City obtains its drinking water from wells on 15th Avenue that tap an aquifer
below the Skagway River. The Resource Inventory chapter of this AMSA
provides detailed information on recently discovered contamination by organic
compounds. The City of Skagway and the ADEC must continue to work together
to determine the source of this contamination. The seven organic compounds and
common sources for each are listed in Table 9.

If the source can be identified, the City should work with ADEC to ensure cleanup
of the contaminant source or sources is accomplished to the extent technically
and practically feasible. Even if the source cannot be identified, the City should
work with ADEC to determine the extent of the contamination "plume". Monitoring
of City wells should continue to document levels and trends of contamination.
This would also allow the City and ADEC to track the success of any cleanup
efforts and determine if any specific actions are needed to deal with public health
issues. At this time it has not been definitively determined whether MCL levels
are actually being exceeded nor if a public health problem exists. If local
residents are concerned however, activated charcoal filters can be installed in
homes or businesses to filter out organic compounds. Careful monitoring of
developments upstream from City wells is essential to protect the quality of the
City's water supply.

It is not anticipated that municipal water or sewage service will be extended north
of the 23rd Avenue highway bridge in the future. Consequently, care must be
taken that development there has adequate on-site sewage systems and that the
quality of rural drinking water is protected.

Skagway residents want a clean safe environment for their children. Air, land and
water quality standards that are acceptable to the regulatory agencies and the
community must be maintained by management of the industrial and solid waste

Page 60

facilities. The City's drinking water quality has to be protected. Ongoing activities
that may contribute to air or water quality violations must be monitored. In
addition, adequate separation is needed between petroleum product tanks and
the River to prevent spills from contaminating the River and the City's drinking
water.

TABLE 9 - COMMON SOURCES FOR CONTAMINANTS FOUND IN SKAGWAY WELLS

Degreaser Dry Precision
Compound Indust. for Cleaning Instrum. Refri- Drying
Detected Solvent Metal Solvent Cleaning gerant Agent

trans
1,2-dichloro-
ethylene

1,1-dichloro-
ethane

cis
1,2 dichloro-
ethylene

tetrachloro-
ethylene

toulene

1,1,1-trich-
loroethane

trichloro-
ethylene

This table is from the June 1990 Skagway Water Quality Planning Study
report by James Montgomery Engineers Inc.

Policies

D-1 Air, Land and Water Oual
Notwithstanding any other provisions of this chapter, the statutes pe@rtaining to
and the regulations and procedures of the Alaska Department of Environmental
Conservation with respect to the protection of air, land and water quality are
incorporated into the Skagway River AIVISA Plan. Water quality shall not be
lowered below State standards on a long-term basis by development or any
activity.

Q-2 Drinking Water Protection.
The portion of Skagway River floodway and wetlands north of 15th Avenue (the
southernmost City well) shall be managed to assure adequate water flow, nutrient

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and oxygen levels and to avoid adverse effects on natural drainage patterns and
the destruction of important habitat and the discharge of toxic substances.

D-2 Waste-Water Discharge.
All permits, leases or plans of operation for projects shall require siting, design,
construction, and operation to provide reasonable assurance that waste water
discharges will meet water quality standards. Where appr@priate, such measures
shall include, but are not limited to, dikes, catch basins or settling ponds,
interceptor drains, planted buffers or other suitable devices.

D-4 Hazardous Materials.
Storage, transportation, cleanup, and disposal of hazardous materials (as defined
in the Hazardous Materials Transportation Act) shall comply with federal, State
and local regulations. The City shall be notified of the quantity, and mode and
schedule of transportation or storage, when the quantity of material meets or
exceeds the threshold quantity set under the Emergency Planning and
Community Right To Know Act.

D-5 Storage of Petroleum and Petroleum Products.
To the extent feasible and prudent, new facilities for the storage, processing, or
treatment of 5000 gallons or more of petroleum or petroleum products shall be
sited a minimum of 1500 feet from domestic water supplies and a minimum of
200 feet from any surface waters. impermeable berms or basins capable of
retaining 110 percent of the tank capacity (or capacity of the largest tank where
multiple tanks are separately valved) plus 12 inches of freeboard shall be
required to minimize the potential for inadvertent pollution.

D-6 Spill Containment and Cleanup Eguipment.
Any petroleum transport, storage, and refueling operation of 2000 gallons or more
shall maintain and have access to oil spill containment and cleanup equipment
located in Skagway. Personnel trained in the use and maintenance of this
equipment shall be available in Skagway.

Q-7 Environmental Protection Technology.
To the extent feasible and prudent, equipment and procedures using the most
advanced and effective technology for limiting emissions and effluent, and for the
storage, handling, cleanup, and disposal of oil and hazardous materials shall be
required for industrial, energy, and transportation facilities.

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D-8 Cumulative Impacts.
The cumulative effects of new major development on the ambient air and water
%
uality of the City of Skagway will be considered in the review of proposed
velopment projects.

E. MINING AND GRAVEL EXTRACTION

Analysis

Skagway has limited natural resources available for development. Consequently,
while the City wants to minimize any negative impact, it wants and needs to
develop what resources it does have. One of the best resources available is high
quality rock, gravel and sand, from the Skagway River floodplain and talus
slopes. Four material extraction sites within the AMSA have recently been used
(Figure 8). The State currently owns the four sites, but the City has recently
selected Material Sites 2 and 3 (Figure 8) as part of their municipal entitlement.
Material Sites 1, 3 and 4 are in the River floodplain while Site 2 is a talus slope.

The City also recognizes that, while desiring to develop its natural resources,
disruptions in the Skagway Rivers natural flow and habitat must be minimized.
Thus, the City finds that material extraction from the River floodplain sites should
be limited to Material Site 3. Sand and gravel extraction can help maintain or
improve the rivers hydraulic capacity and decrease flooding potential if the
extraction is done with planning and care. If extraction is limited to one site at a
time, active mining areas can be managed better and breaching and flooding can
be prevented. Exhausted extraction areas can be managed and rehabilitated for
salmon enhancement. These goals can be reached by limiting gravel extraction
to one site at a time and by fully utilizing the material from one site before moving
to the new one. The City believes exceptions to this policy within the AMSA
should be rare and carefully reviewed to assure the exception is justified. This
means that future gravel extraction (and contracts issued by the State DNR)
within the AMSA would be limited to Material Site 3 for sand and gravel and Site
2 for larger sized rock until those resources were exhausted. An exception would
be made if access became a problem. This is a possibility since at the present
time, access to Sites 2 and 3 are across private property. (See the Transportation
Section of this Plan's Resource Analysis chapter for a full analysis of this issue).
An exception would also be merited if a comprehensive plan or new project
addressing the rivers hydraulic capacity was initiated. If such a plan identified
new areas for dredging, it would be logical to offer those sites for sale of sand
and gravel.

A detailed mining plan has been developed to guide sand and qr@v@l extraction
from Material Site 3. Plan goals permit resource extraction but minimize negative
impact. The Plan requires that:
1) the integrity of the site be maintained during and after extraction so that
breaching by the River does not occur;

Page 63

2@ salmon entrapment is prevented;
3 the site be rehabilitated to create salmon rearing ponds;
4 toxic substances must be stored safely on site during extraction; and
5) incidental firewood should be offered to the public.

A summary of the State approved mining plan is presented below.

Summary of the DNR Mining Plan for Material Site 3
Organic material stripped as overburden shall be placed on
unvegetated areas of the buffer zone adjacent to the active
channel to reestablish vegetation and prevent erosion. An
earth filled barrier or berm shall be established adjacent to the
mouth of Reid Falls on the north bank to prevent anadromous
fish from entering the pit. Configurations and dimensions as
necessary under the direction of an engineer and an ADFG
representative. Usable firewood cleaned from he pit shall be
made available to the public. Other cleared material shall be
disposed of (burned) within excavation boundaries. A 50'
minimum buffer zone of undisturbed material paralleling the
active channel shall be left in place to segregate the river from
the working area and prohibit the entrance of anadromous fish
into the pit during periods of high water. In areas where the
natural buffer has been altered or eliminated (due to prior
operations) a berm equal to the elevation of the upstream
buffer zone shall be constructed paralleling and adjacent to
the active channel. Additional soils information is available
from DNR's southeast regional materials engineer.

Fuels, oils ands other toxic materials will be stored in a
designated area of the pit. This storage area will be
constructed in such a manner that if a spill occurs, it will be
retained in a storage area. Surface waters will be kept away
from the storage area to prevent any fuel, oil, or toxic material
from reaching the watercourse in the event of a spill. Asphalt
plants shall not be located within material site. Ponds created
from dredging operation may be used as fish rearing ponds.
Final pit slopes shall be no greater than 2:1.

The sequence of operations shall generally consist of: Phase
1- Material is excavated within the limits of the cells to depth
no greater than the depth of the water table. Phase 2- Material
will be removed by dredging operations to a maximum of 15
feet.

Page 64

Policies

E-I Siting Material Sources.
To consolidate resource extraction activity and its impacts in and adjacent to the
river, sources of sand, gravel and other construction materials from the AMSA
area shall, to the extent feasible and prudent, be limited to material site 3
depicted on the AMSA Existing and Future Land Use map at Figure 4, until this
resource is exhausted. Exceptions may occur if other River areas are targeted for
dredging as part of a comprehensive hydraulic/flooding management program for
the River.

E-2 In-Stream Mining.
Mining of sand and gravel from the Sl@@g@yay River floodplain shall, to the extent
feasible and prudent, be located to minimize changes to channel hydraulics and
the probability of channel diversion through the mining site.

E-3 Best Management Practices.
The following practices shall be incorporated into the siting, design, and operation
of gravel extraction activities:
a) A 50' minimum buffer zone of undisturbed material paralleling the active
channel shall be left in place to segregate the river from the working area
and prohibit the entrance of anadromous fish into the pit during periods of
high water.
b) Clearing of riparian vegetation and disturbance of natural banks shall
be minimized.

c) To the extent feasible and prudent, mining site configurations shall be
shaped to blend with physical features and surroundings to provide for
diverse riparian and aquatic habitat.

d) Cells within a mining plan shall be used sequentially. One cell shall be
exhausted before extraction in another cell is begun.

f) Usable firewood cleaned from the pit shall be made available to the
public. Other cleared material shall be disposed of (burned) within
excavation boundaries.

g) Gravel washing operations that discharge effluent into the river shall use
settling ponds and recycle treatment waters, as necessary to comply with
State and federal water quality regulations. Settling ponds snail be
adequately diked or set back from active channels to avoid breaching by
the 10 year frequency flood. Wash water shall be recycled and the effluent
discharge shall comply with State and federal water quality regulations.
Effective use of recycled water shall minimize water withdrawal and
subsequent discharge of effluent to adjacent waters.

Page 65

E-4 Reclamation and Restoration.
Excavated gravel extraction cell.s may be converted to fish rearing ponds and
habitat. Excluded from this requirement is the portion of a gravel extraction site
required to provide materials for continuing maintenance and operation. At gravel
extraction sites within the floodplain (such as site 4 on Figure 4), at the end of
each gravel extraction activity, the area will be regraded so that fish will not be
trapped and significant alteration of stream hydraulics will not occur, and
adequate circulation and flow through sites is maintained.

E-5 Minina In Fish Habitat.
Sand and gravel shall not be removed from locations that have been documented
!o provide spawning or over-wintering habitat for anadromous fish, unless
impacts can be mitigated and habitat enhancement efforts will be completed
when work is finished.

E-6 Petroleum and Other Toxics Storage on Mining Sites.
Fuels, oils ands other toxic materials will be stored in a designated area of the pit.
This storage area will be constructed in such a manner that if a spill occurs, it will
be retained in a storage area. Surface waters will be kept away from the storage
area to prevent any fuel, oil, or toxic material from reaching the watercourse in the
event of a spill.

E-7 Scenic Quall
Since several places along the Skagway River within the AMSA are noted for and
benefit from their scenic and recreational nature, the scenic ualities of the River
will be maintained to the maximum extent practicable Toth during gravel
extraction or mining and after the activities are completed.

F. TRANSPORTATION

Transportation will continue to play an important role in the economic
development of Skagway and region. Transportation facilities need to be
improved and upgraded to encourage economic development and to ensure that
they are safe.

Transportation facilities within the Skagway River AMSA include: the Skagway
airport, portions of the Klondike (Skagway-Carcross) Highw%, foot bridge access
to Yakutania Point Park, an access route to the popular old Rush cemetery
tourist attraction, an oil pipeline and the WPYR railroad.

Because these transportation facilities are all proximate to or actually crossing
and adjacent to the Skagway River, they can impact the River hydraulic capacity
and care must be taken so that use and expansion of these facilities does not
decrease hydraulic capacity or disturb critical habitat areas.

Page 66

These concerns are most pertinent when one considers airport expansion. The
Resource Inventory chapter describes public safety issues that compelled the
State to study airport expansion. Alternatives evaluated included airport
expansion toward Alaska Street and toward the River. While expansion toward
Alaska Street is the significantly least expensive (about $4.0 million versus $7.9
million dollars, based on the final TAMS study), residents have deep concerns
this expansion. Concerns include impacts the new school, the potential loss of
long-standing homes of historic value, loss of the only industrial land suitable for
the air transportation industry. Also important, there is a sense that the airport
area will become a desolate windblown tarmac channeling heavy wind and dust
along town in the non-tourist season when the airport is not so heavily used.

Residents strongly prefer expanding the airport toward the River. The City, State
and Federal Aviation Administration are discussing a slightly "scaled down"
proposal from the TAMS evaluation for airport expansion toward the River (Figure
8). In addition to securing funding for the project, challenges to the responsible
completion of the project include maintaining or improving the Rivers hydraulic
capacity, assessing and mitigating adverse habitat impacts, designing the project
so a more stable river channel results, and assuring an environmentally sound
and affordable maintenance program.

The portion of the Klondike Highway that is within the AMSA is used by vehicles,
buses, RVs, ore laden trucks, bicyclists and pedestrians. In addition, along the
Highway from the 23rd Avenue highway bridge to the Liarsville area there is the
State DOTPF maintenance shop, a State highway wayside, a private
campground and the site where the U.S. Customs House will be relocated. Since
recreational use of this part of the Highway is increasing widening of the Highway
and shoulder are needed to maintain and improve road and public safety.

Petroleum products are either trucked or transported by pipeline to the Yukon.
Care must be taken to prevent any leaks or Spills Decause both types of
transportation are close to the River within the AMSA boundary. This is especially
important since the City draws its drinking water from an aquifer beneath the
River.

Many transportation issues relate to the WPYR railroad. The YPYR railroad is
quite close to the River banks at places within the AMSA. Railroad maintenance
must assure that erosion does not threaten either the railroad or the River. In
addition, the railroad service road doubles as a public access route to Ried Falls
and the Gold Rush cemetery and the access route to State Material Site 3 (see
Figure 8). Because access to these public resources is across a private road,
there is a potential for conflict. To the extent that it is feasible, public access to
these resources should be developed. This may be possible as a result of
railroad track relocation @which is now occurring) and relinquishing the former
track site to the underlying land owner (the �tate, with a pending city land
selection). It may also be possible to obtain a public access easement in the
area. Recent research by State DNR staff (R. Romans) shows that federal right-
of-way rules require that when the railroad was relocated (1930s) from the west

Page 67

side of the river to its present location on the east side of the river, it was
relocated onto an existing road. The rules required that a substitute public access
easement be dedicated at that time to replace the road. Complicating this
however, is a report that the road on the east bank of the River upon which the
railroad was relocated was bought and owned by the WPYR. State DNR staff is
investigating whether a public access easement could be required at the present
time.

A small City owned foot bridge near the mouth of the Skagway River provides a
town access point to Yakutania Point Park. Tourists use the bridge to walk,
sightsee and explore the area; residents who use the jogging path and exercise
equipment across the bridge. A few years ago, when the City requested permits
to do maintenance dredging around the bridge, many issues were raised
including: habitat impact, lack of precise knowledge as to the exact location of the
area's critical habitat, decreased river hydraulic capacity, and a lack of consensus
on river aggregation. The confusion clearly points to both the need for a critical
habitat study of the lower Skagway River and a current analysis of the River's
hydraulic capacity including the impact of the foot bridge.

Policies

F-1 Airport Expansion.
Airport expansion into a portion of the Skagway River may occur if the following
conditions are met:
a@ air safety requirements are met;
b hydraulic analyses show that the river's hydraulic capacity will be
maintained or enhanced by the project;
c) a detailed invent of existing habitat and predicted adverse impacts is
completed and a 0311 mitigation program is designed to mitigate all
significant adverse impacts to fish populations or habitat;
d) channel stability of the river is maintained or enhanced; and
e) an environmentally and economically sound program to maintain the
River's hydraulic capacity is approved.

F-2 Klondike (Skagway-Carcross) Highway Maintenance and Expansion.
Highway design, construction, maintenance and expansion shall minimize
alteration of Skagway River channel and adjacent wetlands. The width of the
highway and its shoulder shall be maintained or enlarged to facilitate public safety
and multiple use.

F-3 River Crossings.
Bridges and culverts shall be designed, constructed and maintained in
accordance with fisheries conservation practices that minimize habitat
disturbance and allow unimpeded fish passage. Roads and trails shall only cross
anadromous streams when necessary to provide access as deemed necessary
by the City. Phasing of construction shall be done to avoid critical migration
periods for salmon and other anadromous species.

Page 68

F-4 Road and Railroad Location and Maintenance.
Roads and railroads within the AMSA shall, to the extent feasible and prudent, be
cited to minimize disruptions to adjacent uses, shall be constructed and
maintained to minimize blowing dust and other hazards, and to maximize public
safety.

G. RECREATION

Analysis

There are several important recreation areas within the Skagway River AMSA.
They include the Reid Falls/Gold Rush Cemetery, the foot bridge access to the
Yakutania Point Park AMSA, and the Klondike (Skagway-Carcross) Highway
corridor from the 23rd Avenue highway bridge to Liarsville. In addition, the River
itself is scenic and a popular destination for picnicking, sightseeing and camping.
The river shoreline should be protected and reserved for recreational use.
Existing trails should be maintained and expanded. Residents wish the shoreline
to be protected from uses that will conflict with its recreational nature. The City
owns a large parcel (U.S. Survey 3312, Lot 30) just west of the River in the
middle of the subdivided and platted land off Dyea Road. This parcel will be
preserved to protect the viewshed.

Reid Falls and the Gold Rush Cemetery and Park are visited by thousands of
tourists each year. Travelers generally reach these areas by foot or vehicle
across a private roadway. Several persons important to the history of Skagway in
the Gold Rush days are buried here, including Soapy Smith and Frank Reid who
faced each other in a fatal duel on July 8, 1898.

Existing facilities provided for tent camping, RV and picnicking along the River
should be improved and expanded. The Port of Skagway AMSA indicates that the
City's RV Park will eventually be relocated since it is a not a water-dependent or
water-related use. The federal, State and City governments are encouraged to
cooperative with the private sector and find a suitable location for an RV park. A
survey of RV travelers shows a preference for waterfront and forest locations.
The area known as "seven pastures" located within the River AMSA and U.S.
Survey 994 may be a suitable location for a RV park.

The foot bridge to Yakutania Point Park provides access to the Park, a popular
jogging area and exercise equipment. The foot bridge itself is a tourist attraction.
The issues relative to the foot bridge are discussed in the Transportation section
of the Resource Analysis chapter.

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Policies

G-1 Designation of Recreation and Public-Oriented Areas.
The State lands (City selections) at Reid Falls/Soapy Smith -Cemetery, the foot
bridge access to the Yakutania Point Park AMSA, and the highway corridor from
the 23rd Avenue Highway Bridge to Liarsville, are areas within the Skagway River
AMSA designated as recreation areas (see AMSA Existing and Future Land Use
map at Figure 6).

G-2 Protection of Reid Falls/Gold Rush Cemetery Area Values.
Encourage recreational and tourist use of this scenic falls along the River and this
historic cemetery.

G-3 Access to Reid Falls/Gold Rush Cemetery.
Ensure safe public access is provided and maintained to facilitate use of this
recreation area.

G-4 Access to Yakutania Point Park AMSA.
Ensure safe public access across a foot bridge is provided and maintained to
facilitate use of this recreati on area.

G-5 Multi-Use of Klondike (Skagway-Carcross) Hiahwav Corridor.
The Klondike Highway from the 23rd Avenue Highway Bridge to Liarsville is used
heavily used for pedestrian travel such as sightseeing, jogging, access to the
River for picnicking and camping, and bike-riding. This corridor also has heavy
industrial truck traffic and thousands of tourist vehicles each year traveling along
it. Accordingly, the width of the highway and its shoulder shall be maintained or
enlarged to facilitate public safety and multiple use.

G-6 Shoreline Camping and Picnic Areas.
Shoreline areas such as beaches that are suitable for several forms of recreation
are scarce. To the extent feasible and prudent, these areas shall not be
developed for uses which can be located elsewhere. Where recreational
developments are composed primarily of a single purpose use (e.g.,camping),
adequate open space shall be provided to preserve the natural features of the
area.

G-7 Recreational Development Desion.
Recreational developments shall be located, designed, constructed and managed
to minimize adverse effects on other appropriate shoreline uses, whether existing
or officially planned, and to provide safe, healthy conditions for recreationists.

G-8 Scenic Views.
Recreational and access developments shall blend into the surroundings,
preserve or enhance scenic views and vistas, and improve the aesthetic value of
the area.

Page 70

AMSA PLAN IMPLEMENTATION

R D!
A

Looking south down the Skagway River from about a haft mile above the highway bridge
to the River mouth. photo by Barbara Sheinberg

AMSA PLAN IMPLEMENTATION

INTRODUCTION

The City of �k@gway, both State and federal agencies, and the private sector ,
@Ilay a grt in implementing the Port of Skagway and Skagway River AMSA
ans. e Plans are not effective or meaningful without the participation of all
parties.

The City of Skagway will implement the AMSA Plans in several ways. Local,
State and federal coastal consistency reviews for proposed projects and plans
will be employed. Local adoption of the Plans by ordinance and codification in
Title 17 will be used. The AMSA Plans objectives will be reinforced in the City's
zoning code where appropriate. In addition, the City will employ capital
improvement projects, grant acquisitions and continue its future planning efforts.

Skagway is a first class city incorporated in 1900. Powers are granted under
Alaska Statute Title 29. It exercises planning, zoning and other controls on
resource use within its coastal area. The City is a coastal district under the ACMP
and implements its own Coastal Management Program and AMSA Plans.

Skagway has a council-manager form of government. The officers are the six
council members, the mayor, the city manager, the city attorney, the city clerk,
the city treasurer, and the chief of police. The mayor and council members are
elected by city residents. The city manager is appointed by the council and may
be removed by the council. All other officers are appointed by the city manager
subject to confirmation by the council.

Skagway's Coastal Management Program, codified as Skagway City Code Title
1,7 designates the City anager as the officer charged with carrying out the
elements of this Program. The planning commission and city council may also
review major projects to assure that they are consistent.

The coastal coordinator for the City of Skagway may be reached at:
City Manager
Cit of Skagway
P.@. Box 415
Skagway, AK 99840
(907) 983-2297

Page 71

SUBJECT USES

The ACMP requires that AMSA Plans list the uses within the AMSA that fall within
the purview of the Skagway Coastal Management Program. All land and water
uses and activities that occur on private, municipal or State land within the AMSA
boundaries are subject to the AMSA Plan policies. These include:
land and water uses within AMSA boundaries that require permits, leases
or other approvals from the City of Skagway, State or federal governments

* resource leasing activities that require City, State or federal permits, land
disposals, regional plans and community plans.

Federal activities on federal lands that directly affect coastal resources within the
AMSA boundaries are also subject to AMSA Plan policies.

PROPER AND IMPROPER USES

AMSA Plans must identify those uses and activities, including Uses of State
Concern [per AS 46.40.210 (E) (6)], that are considered proper and improper
within the AMSA boundaries. No activities or uses are categorically prohibited
within either AMSA boundary. However, uses and activities must be water-related
or water-dependent in most of the Port of Skagway AMSA. In addition, uses that
would decrease the hydraulic capacity of the Skagway River are not permitted in
the Skagway River AMSA.

Beyond the factors noted above, land and water uses and activities are
considered proper so long as they comply with the AMSA Plan intent and
policies. A land or water use is improper if it is inconsistent with ACMP standards
or the policies of the appropriate AMSA Plan.

PERMITTING FOR ACTIVITIES IN THE AMSAS

Many development activities within the AMSAs require permits. A proposed
project may need permits from the City of Skagway, State of Alaska and federal
regulatory agencies. In addition, the landowner may have requirements or
concerns of their own that the project developer will have to meet. A project
developer must generally seek two kinds of information as explained below.

The first question to be answered is who is the landowner. While the landowner
may not require permits, the landowner may have concerns that the project
developer will need to satisfy so that the project may proceed without legal

Page 72

challenge. If the City of Skagway, State or federal government is the landowner, a
lease or land use permit may be required to satisfy the public sector responsibility
to obtain a fair return for use of a public resource.

Second, regardless of the landowner, many activities and developments require
permits before the activity can occur. A list of the concerns, responsibilities and
permits required by State and federal agencies is presented below as a general
guideline.

* Alaska Department of Environmental Conservation (ADEC)
Regulatory authority for air, land and water quality in the State of Alaska rests
with the ADEC under an agreement with the EPA. Most ADEC responsibilities
and regulations are established in Alaska Statute 46 and Alaska
Administrative Code, Title 18. The ADEC regulates wastewater (sewage or
greywater) discharge, solid waste disposal, application of oil or pesticides, air
emissions from diesel generators totaling more than 10,000 horsepower or fossil
fuel-fired generator totalling more than 10,000 hp or 9000 kWh or 100,000 btu/hr,
asphalt plants, incinerators that burn more than 1000 lbs. per hour and emissions
from other industrial processes. If a public water system is to be altered an ADEC
permit may be needed. If a project involves vessel transport of oil or other
petroleum products as cargo, or includes onshore storage facilities with an
effective storage capacity of greater than 10,000 barrels a ADEC permit is
needed. If a sewage disposal system (such as a septic system) is needed on a
parcel of land, it is also regulated by ADEC. In addition, anytime the EPA issues a
wastewater discharge (NPDES permit, Section 401 of the Clean Water Act
requires that ADEC certify that Wre is reasonable assurance that the wastewater
discharge will meet State of Alaska Water Quality standards.

* Alaska Department of Fish and Game (ADFG) The ADFG is
responsible for activities affecting anadromous streams. The Skagway River is an
catalogued anadromous stream. Any work on or disturbance of the bed or
borders of anadromous streams requires an ADFG permit under AS 16.05.870.
Water intake structures in fish streams may block fish movement or cause fish
mortality through impingement; these are regulated by the ADFG. ADFG also
reviews projects for their potential effects on maintenance of fish and wildlife
values, subsistence, recreational or commercial uses., etc and makes
recommendations regarding the consistency of projects with the ACMP habitat
and other standards. ADFG also provides other State and federal agencies
(particularly the U.S. Fish and Wildlife Agency) with ADFG comments on
Droposed projects' human use effects and habitat impacts under the Fish and
Wildlife Coordination Act.

Alaska Department of Natural Resources (ADNR) Unless State of
Alaska lands have been put In a special status, such as a bird sanctuary, the
DNR is the land manager. In general, the State owns navigable waters, tidelands,
submerged lands out to three miles, and State selected uplands. In Skagway, as
in many cities, the tidelands at the Port (Alaska Tidelands Survey No. 4) were
given to the City. The Skagway River is a navigable waterway and the State thus
owns the water and the river bed beneath the water (one exception to this is

Page 73

discussed in the Land Ownership section of the Skagway River Resource
Inventory chapter).

As the State's land manager, the DNR is responsible for permitting others to use
or buy State land. Permission to use State lands is given through a land use
permit, a lease or selling the land. To use State land one must generally appi for
a land use permit from the DNR. To lease State land one must apply to the 9NR
and receive a positive finding that it is in the State's best interest to lease the
land. The State statutes and regulations that govern DNR authorities and
regulations are Title 38 of Alaska's Statutes and regulations found at chapter
11 in Alaska Administrative Code.

* Alaska Office of Management and Budget/Division of Governmental
Coordination (DGC) The DGC administers the State of Alaska Coastal
Management Program (CMP). The authorities governing the CMP are described
in the Introduction Chapter of this Plan. The Alaskan CMP has enforceable
standards with which proposed uses or development activities in the coastal zone
must be consistent. When a local coastal district adopts its own CMP, the policies
in the district's Plan supplement or replace the Alaska CMP standards for that
area. In Skagway, the policies in the Skagway Coastal Management Program
(SCMP) are applicable throughout the district. The policies in the Port of Skagway
and Skagway River AMSA Plans replace the SCMP policies in these two areas.

There is no CMP permit per se. Instead, a project applicant fills out a Coastal
Proj Questionnaire (CPQ) at the same time other State and federal permit
appl@iccattions are completed. Any activity that might impact coastal resources is
reviewed to evaluate its consistency with the SCMP or AMSA policies. Most
projects within the Skagway coastal managment program boundary will be
reviewed for consistency. DGC staff from the southeast office in Juneau (465-
3562) can determine whether a proposed project will require a consistency
review. Projects are reviewed for consistency with the CMP policies and for other
State and federal permit requirements simultaneously. Stipulations needed so
that the project is consistent with the SCMP or AMSA policies are placed in other
State (or sometimes federal) agency permits. All three State resource agencies
(ADFG, ADEC, DNR) are authorized to enforce ACMP permit stipulations. More
detail on the coastal management program regulatory process is found in the
narrative in this chapter on "consistency review".'

* U.S. Armv CorDs of Engineers (Corpsl The Corps regulates the
development and protection of waters and wetlands so that they will be used in
the best interests of the public. Congress has delegated this responsibility to the
Corps to ensure the continued.wise use, survival and health of these waters
through the public interest review process. The Corps has jurisdiction over
placing dredged or fill material in wetlands and waterways, construction of any
structure in or over navigable and tidally influenced waters, excavation of material
from these waters, or any obstruction or alteration in such waters.

Section 10 of the Rivers and Harbor Act of 1899 requires Corps permits for
any construction or activity that alters the navigability of the waterways. This

Page 74

includes the ocean, rivers, streams, lakes and adjacent waterways. In Skagway
construction or activity that alters the navigability of the Port area or the Skagway
way River requires a Corp Section 10 permit. Section 404 of the Clean Water
Act of 1977 requires Corps permits for placing dredged or fill material in all
waters, including wetlands. Proposed structures in Skagway that would require
Corps permits include construction of dikes, stream channelization and riprap for
shoreline protection along the Skagway River. In addition, construction in the Port
(or River) involving pilings piers, ramps, breakwaters, jetties, stone revetments
and placement of buoys or other mooring devices would require Corps permits.

* U.S. Environmental Protection Agency (EPA) The EPA regulates the
discharge of wastewater through its National Pollutant Discharge Elimination
System (NPDES) permit. The review and issuance of this permit is authorized
under Section 402 of the Clean Water Act. The purpose of this permit is to
prevent water pollution by monitoring and controlling the discharge of waste. The
owner or operator of any activity or wastewater system that discharges from one
or more point sources into a waterway, must obtain a NPDES permit from the
EPA. A NPDES permit must be filed 180 days prior to commencing the
discharge. The permit is good for up to five years and is renewable.

A "point source" is any discernable, confined and discrete conveyance including
but not limited to a pipe, ditch, canal, tunnel, conduit, well, discrete fissure,
container, rolling stock, concentrated animal feeding operation, vessel, or other
floating craft from which pollutants are, or may be, discharged.

A NPDES permit is NOT required for the following types of discharges:
1) Sewage discharged from vessels (e.g. ships).
2@ Dredged or fill material (this requires a Corps permit).
3 Discharges from properly functioning marine engines.
4 Those discharges conveyed directly to a pyblicly privately owned waste
treatment facility (however, discharges originating from the publicly or
privately owned waste treatment facilities are not excluded).
5) Most discharges from separate storm sewers. Discharges from storm
sewers that receive industrial, municipal and/or agricultural wastes or
which are considered by the EPA or the State to be significant contributors
to pollution, are not excluded.

Two of the most common development projects in the AMSAs are dike
construction in the Skagway River and dredge and fill activities in the Port.
Both projects would likely require a Corps 404 permit for work involving the
placement of dredged material into a waterway, a Corps Section 10 permit for
work in a navigable waterway, a coastal management program consistenc@
review and determination and possibly an EPA NPDES permit if the wor
involved discharge of wastewater. If a NPDES permit is required, then an ADEC
401 water quality certification would also be needed. Work in the Skagway River
also needs an ADFG Title 16 permit for work in or adjacent to an anadromous
stream. Finally, if the State is the landowner a land use permit might be required.

Page 75

CONSISTENCY REVIEW PROCESS

Introduction

In 1981, the State of Alaska adopted a coordinated ACMP consistency review
process. Local, State and federal projects within the AMSA boundaries must be
consistent with the AMSA policies. Consistency reviews are conducted when the
City of Skagway, State or federal agencies, review a proposed activity or
development to see if it is "consistent" with the policies in the AMSA Plans.
Neither local, State nor federal permits for a proposed activity are issued until a
project is consistent with the AMSA policies. There are no ACMP permits per se.
Instead, stipulations that will ensure a project is consistent with AMSA policies,
are placed in permits that are already required by other agencies. This generally
means that ACMP consistency reviews and all permits for a project can be
examined simultaneously.

The consistency review process is outlined in detail in ACMP Regulation 6 AAC
50. The process establishes either a 30 or 50 day consistency revie en od
w e
during which all State and federal permits are considered simultaneously. Jh n a
single State permit is needed, the agency issuing the permit coordinates the
consistency review. The State Division of Governmental Coordination (DGC)
coordinates project reviews when a federal permit is needed or if more than one
State permit is required. The process found in regulation 6 AAC 50 outlines
responsibilities for the applicant, State agency and coastal district. It also
describes an "elevation" process that is used to resolve conflicts. The elevation
process allows any of the parties in the pr9ject review to elevate or raise the
project review and decision-making from regional staff to State agency directors
or commissioners.

When there are local, State or federal permitting reviews that involve
requirements outside of ACMP program concerns and policies, projects must
meet all appropriate local, State and federal regulations.

State and Federal Consistency Review Process

When State or federal permits for a proposed project are needed, the City of
Skagway is a articipant in the coastal consistency review and determination
process. The &ate or federal agency that is coordinating the review (usually
DGC) must by law address the City's recommendations before the agency issues
its consistency determination.

The City's comments that are based upon its areas of expertise and responsibility
are given "due deference" when the coordinating agency reviews comments
received for a proposed project and drafts the preliminary consistency
determination. This means that if the coordinating agency rejects one of the City's

Page 76

recommendations or stipulations that relate to an area of the City's expertise or
responsibility, the coordinating agency must make a written finding stating the
reason the recommendation or stipulation was rejected.

If a proposed project is not consistent with policies in the AMSA Plans, the lead
agency will discuss changes to or stipulations for the project with the applicant so
that the project can be found consistent with AMSA policies.

After the final coastal consistency determination has been made, State permits
are issued with the stipulations required during the consistency review process.
Permits must be issued within five days assuming no other non-coastal
management program requirements or reviews are needed.

City of Skagway Consistency Review Process

The process is similar for city permits or approvals such as allowable or
conditional use permits. The city manager, planning commission or city council
(@ereinafter called "city reviewer") reviews the proposed project for consistency
with AMSA policies. If the proposal is not consistent with AMSA policies, the city
reviewer will meet with the developer to discuss changes. Stipulations that will
bring the proposal into compliance with AMSA policies will be discussed. The city
reviewer is bound by law to find the project consistent before issuing permits or
approvals.

If local, as well as State or federal permits are needed, the State consistency
review process will suffice and projects will not need to undergo a separate
municipal consistency review. It should be noted that consistency review and
approval does not exempt a proposed use or activity from other regular reviews
and approvals required by local ordinance.

Other Implementation Mechanisms

The City of Skagway as a First Class City in the exercise of a full planning
function, has other tools available to implement goals and policies of the Port of
Skagway and Skagway River AMSA Plans.

The City routinely undertakes special planning and development activities
including port, landfill, airport, and economic development projects. Many of these
efforts will involve some portion of the Skagway River or Port. The goals and
policies of the AMSA Plans will be carefully considered where relevant.

In the future, when City capital improvement programs and budgets are
considered, the land use maps, goals and policies expressed in the AMSA Plans

Page 77

will be intrinsic to the planning process. The City will pursue grant funding to
continue implementation of the AMSA Plans. Conversely, the AMSA Plans will
enhance City grant applications by illustrating the comprehensive planning and
public involvement of the City.

The waterfront zoning ordinance (SCC 19.06.090) and the Port of Skagway
AMSA Plan with its Future Land Use map (Figure 7) indicate target areas within
the Port where pedestrian amenities, recreation, and public access are
emphasized. The zoning ordinance calls for developers of waterfront property to
spend five percent of their project cost on either onsite or offsite waterfront
amenities. The City could establish a waterfront improvement fund with these
monies and add an appropriate match of City funds. When sufficient funding is
reached, an enhancement project as described in the Port AMSA could be
undertaken.

The Skagway River AMSA Plan identifies the need for a study and evaluation of
critical habitat along and adjacent to the Skagway River. Specific information that
will identify critical habitats and fish and game populations is necessary before
management and enhancement efforts can be successful.

Page 78

PUBLIC PARTICIPATION

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The Port of Skagway and mouth of the Skagway River. The new White Pass and Yukon
Route dock has just neen completed (June 1990). photo by Barbara Sheinberg

PUBLIC PARTICIPATION

Public participation occurred throughout the development of the Skagway River
and Port of Skagway AMSA Plans. In May 1988 the public participated in a
survey about community planning goals and directions. The survey and results
can be viewed in Appendix B of the Skagway Coastal Management Program
document. Input was provided on both the River and the Port areas in the survey.

Actual work on the Plans began in October 1989. Planning consultant Barbara
Sheinberg held discussions and informal work sessions with City Manager. These
discussions held on October 19, 1989, March 23, May 17, May 31, June 5, June
6 and June 25, 1990 worked on various aspects of Plan development. A meeting
with State and federal agency staff on the AMSA Plans was held on November
13,1989.

Public meetings advertised by public notice were held on May 17, June 5 and
June 21, 1990. The May 17 and June 21 meetings and as Such were taped and
recorded in the minutes. Tapes and minutes are available at Skagway City Hall.

Mention of the AMSA planning effort was made in the "City Digest " or "City and
State" sections of the Skagway News in the May 25 and June 8 issues. There
were news reports about the planning effort on public radio station KHNS, which
broadcasts in the Skagway - Haines - Klukwan areas, on May 17 and 18, May 30
and 31 and June 21, 22 and 25.

Page 79

BIBLIOGRAPHY

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Looking west across the non-marine industrial area in the Port of Skagway AMSA. photo
by Barbara Sheinberg

BIBLIOGRAPHY

Alaska Department of Fish and Game, Division of Habitat. June 1989. Catalogue
of Waters Important for Spawning, Rearing or Migration of Anadromous
Fishes - Southeast Region Resource Management 1.
Alaska Department of Fish and Game, Division of Subsistence. February 1989.
Southeast Alaska Rural Community Resource Use Profiles.
Alaska Department of Fish and Game, Division of Subsistence. February, 1989.
Overview of Non-Commercial Fish and Shellfish Harvest and Use In Thirty
Southeast Alaska Communities.

Alaska Department of Fish and Game, Division of Fisheries Rehabilitation and
Enhancement. Draft paper on Potential Hatchery Release Sites for Juvenile
Chum Salmon In the Lynn Canal/Stephens Passage Area.
Alaska Department of Health and Human Services (prepared by John Middaugh,
MD; Carl Li, MD; Sue Anne Jenkerson, RNC, MSN, FNC;). October 23,1989.
Health Hazard and Risk Assessment from Exposure to Heavy Metals In Ore
in Skagway,Alaska.
Alaska Department of Transportation and Public Facilities (prepared by TAMS
Engineers) February 1989. Master Plan for Skagway Airport.
Conversations with Rita Romans, Alaska Department of Natural Resources,
Division of Land and Water Management, during April, May and June 1990.
Conversations with Randy Ericksen, Alaska Department of Fish and Game,
Sportfish Division, on March 6, April 16, and June 13, 1990.
James M. Montgomery Consulting Engineers Inc. June 1990. Skagway Water
Ouality Planning Study.
Josephson, Ron. Alaska Department of Fish and Game, Fisheries Rehabilitation
and Enhancement Division. A Sport Fishery for Skagway.
Juneau State Parks Advisory Board. January 1990. Position Paper on
Aquaculture and State Parks. Alaska Department of Transportation and Public
Facilities.

Kohler & Associates. June 1989. City of Skagway Economic Development
Work Program.
Kruse, Jack and Frazier, Rosyland. September 1988. Report to the Community
of Skagway - Tongass Resource Use Cooperative Study. Institute of Social
and Economic Research in cooperation with the U.S. Forest Service and the
Alaska Department of Fish and Game Subsistence Division.

Page 80

Menzies, Malcolm. Meander Lines of Southeastern Alaska. September 1977
article from Surveying and Mapping magazine.
Myer, Jerry. Salmon in a School Program.
Reid - Crowther. Port of Skagway Pre-Feasibility Study.
Skagway City Schools. High School Fish Hatchery Program.
Skagway Coastal Management Program. September 1982, August, 1983 and
September 1988 versions.
Skagway Comprehensive Plan. September 1988 version.
Skagway Convention and Visitors Bureau. Skagway Alaska Walking Tour
Footsteps into the Land of Gold.

Spude, Robert L. 1983. Building the Gateway to the Klondike. Anthropology
and Historic Preservation, Cooperative Park Studies Unit, University of Alaska,
Fairbanks. Occasional paper No. 36
U.S. Army Corps of Engineers. May 1983 letter from Nell Sailing, Colonel, Corps
of Engineers to Mayor Robert Messegee.
U.S. Army Corps of Engineers. October 1987 letter from David Robbins,
Construction and Operation Division to Tom Healy.
U.S. Department of Housing and Urban Development, Federal Insurance
Administration. September 1976. Flood Insurance Study, City of Skagway
Alaska.

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i
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DIX A - DEFINITIONS

Feasible and Prudent means consistent with sound engineering practice and not
causing environmental, social, or economic problems that outweigh the public
benefit to be derived from compliance with the standard which is modified by the
term "feasible and prudent".

Floodplain means any land area susceptible to being inundated by water from
any source.

Floodway means the minimum area of a floodplain required to convey a flood
peak of a selected magnitude with no more than a specified increase (usually 1
toot) in water surface elevation. This area usually consists of the most hazardous
f
ortion of ther floodplain where water velocities are appreaciable. Areas on the
andward side of a floodway normally convey little or no floodfloww although they
are inundated by water during floods. These areas are referred to as the flood
fringe. Waters in the flood fringe are usually shallow and slow moving.

One Hundred Year Flood means a flood having a one percent chance of being
equalled or exceeded in any given year. These terms connoye the regulatory
floodplain associated with the National Flood Insurance Program and generally
adopted as the extent of the area to be regulated. Other flood frequencies can be
used for selecting the flood-prone area for floodplain mangament alternatives. For
example, park structures, agricultural and recreational activities would continue
well within the 100-year floodplain; however, critical facilties such as a hospital
may be located above the 1 00-year floodplain.

Water Dependent means a use or activity that can be carried out only on, inbr
adjacent to water areas because the use requires access to the water body.

Water Related means a use or activity that is not directly dependent upon access
to a water body, but which provides goods or services that are directly associated
with water-dependence and which, if not locateed adjacent to water, would result
in a public loss of quality in the goods or services offered.

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