[Federal Register Volume 73, Number 90 (Thursday, May 8, 2008)]
[Notices]
[Pages 26140-26142]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-10236]


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DEPARTMENT OF THE INTERIOR

U.S. Fish and Wildlife Service

[FWS-R7-R-2008-N0070; 70133-1265-0000-S3]


Kenai National Wildlife Refuge, Soldotna, AK

AGENCY: U.S. Fish and Wildlife Service, Interior.

ACTION: Notice of Availability of the Draft Revised Comprehensive 
Conservation Plan and Environmental Impact Statement for the Kenai 
National Wildlife Refuge; request for comments.

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SUMMARY: We, the U.S. Fish and Wildlife Service (Service, we), announce 
that the Draft Revised Comprehensive Conservation Plan (Draft Plan) and 
Environmental Impact Statement (EIS) for the Kenai National Wildlife 
Refuge is available for public comment. The Draft Plan/EIS was prepared 
pursuant to the Alaska National Interest Lands Conservation Act of 1980 
(ANILCA), the National Wildlife Refuge System Administration Act of 
1966 (Refuge Administration Act) as amended by the National Wildlife 
Refuge System Improvement Act of 1997 (Refuge Improvement Act), and the 
National Environmental Policy Act of 1969 (NEPA). It describes five 
alternatives for managing the Kenai Refuge for the next 15 years, 
including continuing current management. We will use special mailings 
to inform the public of opportunities to provide input on the Draft 
Plan/EIS and will hold public meetings in Anchorage and various 
communities on the Kenai Peninsula to obtain public comments.

DATES: Comments on the Draft Plan/EIS must be received on or before 
September 1, 2008.

ADDRESSES: To provide written comments or to request a paper copy or a 
compact disk of the Draft Plan/EIS, contact Rob Campellone, Planning 
Team Leader, U.S. Fish and Wildlife Service, 1011 East Tudor Rd., MS-
231, Anchorage, Alaska 99503; telephone: (907) 786-3982; fax: (907) 
786-3965; e-mail: [email protected]. You may also view or 
download a copy of the Draft Plan/EIS at the following Web site: http://alaska.fws.gov/nwr/planning/kenpol.htm.
    Copies of the Draft Plan/EIS may be viewed at the Kenai Refuge 
Office in Soldotna, Alaska, and the U.S. Fish and Wildlife Service 
Regional Office in Anchorage, Alaska.

FOR FURTHER INFORMATION CONTACT: Rob Campellone at the address or phone 
number provided above.

SUPPLEMENTARY INFORMATION: The ANILCA (16 U.S.C. 410hh et seq., 43 
U.S.C. 1602 et seq.) requires development of a Comprehensive 
Conservation Plan for all national wildlife refuges in Alaska. The 
Draft Plan/EIS for the Kenai Refuge was developed consistent with 
Section 304(g) of ANILCA and the Refuge Administration Act as amended 
by the Refuge Improvement Act (16 U.S.C. 668dd et seq.). The purpose of 
developing a Comprehensive Conservation Plan is to provide refuge 
managers with a 15-year management strategy for achieving refuge 
purposes and contributing toward the mission of the National Wildlife 
Refuge System, consistent with sound principles of fish, wildlife, and 
habitat management and conservation; legal mandates; and Service 
policies. Comprehensive Conservation Plans define long-term goals and 
objectives toward which refuge management activities are directed, and 
identify which uses may be compatible with the purposes of a refuge. 
Comprehensive Conservation Plans are reviewed and updated every 15 
years in accordance with direction in Section 304(g) of ANILCA, the 
Refuge Improvement Act, and NEPA (42 U.S.C. 4321 et seq.).
    Background: In 1941, President Franklin D. Roosevelt signed 
Executive Order 8979 creating the 1,730,000-acre Kenai National Moose 
Range. In 1980, ANILCA changed the name of the Range to the Kenai 
National Wildlife Refuge and substantially increased the size of the 
Refuge. As of 2007, the Kenai Refuge encompasses approximately 
1,988,000 acres. Section 303(4)(B) of ANILCA states that the purposes 
for which Kenai Refuge was established include: (i) To conserve fish 
and wildlife populations and habitats in their natural diversity; (ii) 
to fulfill international treaty obligations of the United States with 
respect to fish and wildlife and their habitats; (iii) to ensure water 
quality and necessary water quantity within the refuge; (iv) to provide 
opportunities for scientific research, interpretation, environmental 
education, and land management training; and (v) to provide 
opportunities for fish and wildlife-oriented recreation. A 
Comprehensive Conservation Plan and EIS were completed for the Kenai 
Refuge in 1985 following direction in Section 304(g) of ANILCA.
    The ANILCA requires the Service to designate areas according to 
their respective resources and values and to specify programs and uses 
within the areas designated. To meet these requirements, the Alaska 
Region established management categories. A management category is a 
set of refuge management directions applied to an area to accomplish 
refuge purposes and goals. Appropriate public uses, commercial uses, 
facilities, and human activities are identified for each management 
category. Five management categories currently apply to the Kenai 
Refuge including (1) Intensive, (2) Moderate, (3) Traditional, (4) 
Minimal, and (5) Wilderness.
    The 1997 Refuge Improvement Act includes additional direction for 
conservation planning throughout the

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National Wildlife Refuge System. This direction has been incorporated 
into national planning policy for the National Wildlife Refuge System, 
including refuges in Alaska. The Draft Plan/EIS for the Kenai Refuge 
meets the requirements of both ANILCA and the Refuge Administration Act 
as amended by the Refuge Improvement Act.
    An Overview of Management Alternatives: The Draft Plan/EIS 
describes and evaluates five alternatives (A-E) for managing the Kenai 
Refuge for the next 15 years. Alternatives are different sets of 
objectives and strategies for achieving refuge purposes and goals. 
Alternatives A through E are each consistent with the purposes of the 
Kenai Refuge as mandated by ANILCA.
    Alternative A (the No-Action Alternative) is required under NEPA 
and describes continuation of current management activities. 
Alternative A serves as a baseline against which to compare the other 
four alternatives, including Alternative E--the Service's Preferred 
Alternative. Under Alternative A, management of the Kenai Refuge would 
continue to follow direction described in the 1985 Comprehensive 
Conservation Plan/EIS and Record of Decision and subsequent step-down 
management plans. Under Alternative A, the Kenai Refuge would continue 
to be managed under five management categories.
    Alternatives B through E would generally continue to follow 
management direction as described in the 1985 Comprehensive 
Conservation Plan/EIS and Record of Decision and subsequent step-down 
management plans, however some specific direction occurring under 
current management (Alternative A) would be altered or no longer 
pursued under Alternatives B through E. For example, under Alternatives 
B through E, four management categories, not five, would be applied to 
the Kenai Refuge, eliminating the Traditional management category. 
Alternative B would convert Kenai Refuge lands that are currently 
managed as Traditional to the Moderate or the Minimal management 
categories, and Alternatives C through E would convert Refuge lands 
that are currently managed as Traditional to the Minimal management 
category.
    The Alternatives by Specific Issues: Five central planning issues 
were raised during scoping and public involvement. The Draft Plan/EIS 
for the Kenai Refuge describes and evaluates, in detail, specific 
management actions under Alternatives A through E and how each 
alternative addresses the five central planning issues. In this notice, 
we highlight key changes in management of the Kenai Refuge under 
Alternatives A through E for each planning issue:
Issue 1: Large-Scale Habitat Change and the Use of Fire
    Under Alternatives A through C, prescribed fire use would be 
allowed on 31 percent of the Refuge, though such use would be limited 
under Alternative A on approximately 10 percent of the Refuge 
identified as Minimal Management. Alternatives D and E (Alternative E 
is the Preferred Alternative) would allow prescribed fire use on 97.5 
percent of the Refuge.
    Under Alternative A, wildland fire use would be allowed on 95 
percent of the Refuge, and Alternative B would allow such use on 84.5 
percent of the Refuge. Wildland fire use is the management of naturally 
ignited wildland fire to accomplish resource management objectives for 
specific areas. Alternatives C through E (the Preferred Alternative) 
would allow wildland fire use on 97.5 percent of the Refuge--with 
wildland fire use only being the default management action in 
designated Wilderness (66.4 percent of the Refuge) under Alternative C. 
Under Alternatives D and E (the Preferred Alternative), wildland fire 
use would be the default management action in Minimal and designated 
Wilderness management categories (95 percent of the Refuge).
Issue 2: Manage Existing Facilities for Public Use While Ensuring 
Resource Protection
    Presently, there are three active oil and gas leases (13,252 acres) 
on the Kenai Refuge that were granted under the Mineral Leasing Act of 
1920. These leases are not anticipated to end during the life of this 
plan (15 years) but could in the foreseeable future. For two of the 
leases, the Swanson River and Beaver Creek Oil and Gas units, some of 
the existing industrial roads and operating facilities would be 
retained (in the event that operations cease) for public use (except 
bicycle use) under Alternative A, though none would be retained under 
Alternative B. Most industrial roads would be retained and converted to 
trails for pedestrian and horse use only under Alternative C; and 
Alternatives D and E (the Preferred Alternative) would retain and 
maintain most roads for public use, including bicycle use. No existing 
facilities would be retained for public use under Alternatives C 
through E (the Preferred Alternative) in these oil and gas units. In 
the Swanson River Oil and Gas Unit, up to five primitive camping areas 
would be provided for walk-in use only under Alternative C, and two 
developed campgrounds would be constructed under Alternatives D and E 
(the Preferred Alternative). In the Beaver Creek Oil and Gas Unit, up 
to two primitive camping areas would be provided for walk-in use only 
under Alternative C, one developed campground would be constructed 
under Alternative D, and no camping facilities would be provided under 
Alternative E (the Preferred Alternative).
    Public vehicle use on the unimproved Mystery Creek Access Road and 
pipeline corridor north to Chickaloon Bay would be allowed from the 
start of moose hunting season (approximately August 9) until snow cover 
under Alternative A. Under Alternative B, the access road would be 
improved; and public vehicle use would be allowed July 1 to November 30 
throughout the area, including southwest access to the East Fork of the 
Moose River. Alternatives C and E (the Preferred Alternative) would 
improve the access road to ensure public safety and environmental 
protection while providing for a primitive backcountry experience; and 
public vehicle use would be allowed August 9 to November 30 throughout 
the area, including southwest access to the East Fork of the Moose 
River. Under Alternative D, public vehicle use on the access road and 
pipeline corridor would not be allowed. Pedestrian, horse, and 
snowmachine use would be allowed under all the alternatives. Bicycle 
use would be allowed from August 9 until snow cover under Alternatives 
A, C, and E (the Preferred Alternative), and May 1 to November 30 under 
Alternative B. Alternative D would not allow bicycle use. Public use 
registration would not be required under Alternatives A or D, but it 
would be required under Alternatives B, C, and E (the Preferred 
Alternative).
Issue 3: Enhance Wildlife-Dependent Recreation Opportunities
    Under Alternative A, personal collection of berries, mushrooms, and 
other edible plants, and/or the collection of shed antlers would not be 
allowed. Under Alternatives B through E (the Preferred Alternative), 
personal collection and use of unlimited quantities of berries, 
mushrooms, and other edible plants; and up to eight naturally shed 
moose or caribou antlers per person per year would be allowed.
Issue 4: Manage Increasing Public Use To Ensure Resource and Visitor-
Experience Protection
    For the Upper Kenai River (Russian River to Skilak Lake), non-
guided public use would be allowed without

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restriction under Alternative A. Alternative B would modify existing 
management agreements and/or plans cooperatively with stakeholders to 
address non-guided public use; and Alternatives C through E (the 
Preferred Alternative) would implement a limited permit program.
    Under all of the Alternatives, sportfishing guides would be 
required to have special use permits. Permits would be limited to 20 
under Alternatives A and B, reduced to 18 under C and E (the Preferred 
Alternative), and reduced to 15 under Alternative D. Permits would be 
reduced through attrition and issued competitively. Each permit would 
allow 10 starts per week with no more than 4 starts per day--except 
under Alternative B, which would require additional restrictions on the 
timing and starts of boats beyond such levels.
    State-licensed sportfishing guides not having Refuge special use 
permits may be issued Incidental Use Permits (IUPs) under all the 
alternatives except Alternative D, which would eliminate the IUP 
Program. Alternatives A, C, and E (the Preferred Alternative) would 
issue up to three IUPs per year subject to quotas and blackout dates; 
and Alternative B would limit the number of IUPs to one per year.
    Dispersed camping would be allowed (except within one-quarter mile 
of the Sterling Highway) under all of the alternatives but would be 
limited to 14 days in any 30-day period under Alternative A; limited to 
24 hours within any 14-day period within 100 yards of the river under 
Alternative B; not allowed within 100 yards of the river under 
Alternatives C and E (the Preferred Alternative); limited to 48 hours 
within any 14-day period within 100 yards of the river and within one 
mile of the Kenai River/Skilak Lake inlet/outlet under Alternative D.
    For the Middle Kenai River (Skilak Lake downstream to the Refuge 
boundary), non-guided public use would be allowed without restriction 
under Alternatives A and B. Such use would be allowed without 
restriction under Alternatives C and E (the Preferred Alternative) 
until a Limits-of-Acceptable Change planning process is completed with 
stakeholders; and Alternative D would implement a limited permit 
program after a public rulemaking process is conducted.
    Sportfishing guides would be required to have special use permits 
under all of the alternatives, though such permits would be issued 
without limit under Alternative A. Under Alternative B, the need to 
implement a permitting process would be evaluated after the conclusion 
of the ongoing Kenai River-wide guide process. Under Alternatives C and 
E (the Preferred Alternative), permits would be limited to the number 
of existing permittees, and existing permittees would be 
``grandfathered''; under Alternative D, permits would be limited to 20 
through a competitive selection process, and management of the timing 
and starts of boats would be initiated.
Issue 5: Balance Motorized Access With Resource and Visitor-Experience 
Protection
    Under all the alternatives, airplane access would not be allowed 
May 1 to September 30 on any lake where nesting trumpeter swans and/or 
their broods are present except on two lakes in designated Wilderness--
where the closure would be May 1 to September 10 under Alternatives A 
through C and E (the Preferred Alternative)--and five lakes in 
designated Wilderness plus one lake outside of designated Wilderness 
under Alternative D. Airplane access would be allowed on 46 lakes in 
designated Wilderness under Alternative A and E (the Preferred 
Alternative); 45 lakes under Alternative B; 50 lakes under Alternative 
C; and 59 lakes under Alternative D.
    Under all the alternatives, floatplane access to Chickaloon Flats 
would be allowed on 6.5 miles of the Chickaloon River. Under 
Alternative A, wheeled airplane access would be allowed year-round 
within designated areas of the Chickaloon Flats area including three 
upland landing zones, a designated beach zone, and the unmaintained Big 
Indian Creek airstrip. Under Alternatives B through E (the Preferred 
Alternative), wheeled airplane access would be allowed on 21 square 
miles of unvegetated portions of the Chickaloon Flats area. Access 
would also be allowed on the unmaintained Big Indian Creek airstrip 
under Alternatives B and E (the Preferred Alternative). Under 
Alternatives C and D, access would be allowed on the Big Indian Creek 
airstrip, which would be maintained by the Service; and under 
Alternative D, an additional 6.8 square miles of unvegetated portions 
of the Chickaloon Flats would be accessible September 1 to December 15 
(or to coincide with future waterfowl hunting seasons).
    Under Alternatives A through C and E (the Preferred Alternative), 
snowmachines would be allowed in designated areas December 1 to April 
30 when the refuge manager determines there is adequate snow cover. 
Under Alternative C, certain zones within designated areas may be 
opened earlier (than December 1) or later (than April 30) depending on 
local snow conditions.
    Under Alternative D, the December 1 to April 30 time restriction 
would be eliminated, and certain zones within designated areas may be 
opened depending on local snow conditions. Under Alternatives B through 
E (the Preferred Alternative), research studies would be conducted with 
stakeholders to evaluate the effects of snowmachine use on Refuge 
resources and visitor experiences, and the results of those studies 
would be used to support future management decisions.
    Public Availability of Comments: Before including your name, 
address, phone number, e-mail address, or other personal identifying 
information in your comment, you should be aware that your entire 
comment--including your personal identifying information--may be made 
publicly available at any time. While you can ask us in your comment to 
withhold your personal identifying information from public review, we 
cannot guarantee that we will be able to do so. We will make all 
comments from individual persons part of the official public record. We 
will handle requests for such comments in accordance with the Freedom 
of Information Act, NEPA, and Departmental policies and procedures.

    Dated: May 2, 2008.
Gary Edwards,
Acting Regional Director, U.S. Fish and Wildlife Service, Anchorage, 
Alaska.
 [FR Doc. E8-10236 Filed 5-7-08; 8:45 am]
BILLING CODE 4310-55-P