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National Petroleum Reserve in AK 105c Final Study Vol l 1979
NPR-A TASK FORCE ME 105(<) FINAL STUDY FOR THE SECRETARY OF THE INTERIOR Volume 4 Summaries of Values and Resource Analysis and Land Use Options (Excluding Petroleum Values and Uses) Be INATIUINAL POEIRULOCUI NESE YR rie mew 1405 (c) FINAL STUDY VOLUME 1 FOR THE SECRETARY OF THE INTERIOR VOLUME 1 i Summaries of Values and Resource Analysis and Land Use Options (Excluding Petroleum Values and Uses) VOLUME 2 Summaries of Studies SR1 - Physical Profile SR3 - Socioeconomic Profile SR4 - Ecological Profile SR5 - Regional Profile SR6 - Planning Area Analysis (The Summary of SR2- Values and Resource Analysis is contained in Final Study, Volume 1.) VOLUME 3 Record of Public Participation BY NATIONAL PETROLEUM RESERVE IN ALASKA TASK FORCE NATIONAL PETROLEUM RESERVE IN ALASKA Under Authority of NAVAL PETROLEUM RESERVES PRODUCTION ACT 1976 PUBLIC LAW 94-258 wee 1 OSK Force Members State Director (Chairman) Bureau of Land Managment, U.S. Dept. of the Interior Area Director Bureau of Indian Affairs, U.S. Dept. of the Interior Special Assistant to the Secretary of the Interior (Alaska) U.S. Dept. of the Interior Alaska Area Director National Park Service, U.S. Dept. of the Interior Chief, Field Operations Center Bureau of Mines, U.S. Dept. of the Interior Area Director Heritage Conservation and Recreation Service, U. S. Dept. of the Interior Area Director Fish and Wildlife Service, U. S. Dept. of the Interior District Chief, Water Resources Division U.S. Geological Survey, U. S. Dept. of the Interior Mayor North Slope Borough Comissioner State of Alaska, Department of Natural Resources Administrative Assistant, Lands Division Arctic Slope Regional Corporation TASK FORCE STAFF NPR-A 105(c) Planning Team U. S. Dept. of the Interior Mailing address: Bureau of Land Management, Anchorage Federal Office Bldg. 701 C Street, Anchorage, Alaska 99501 Photo by R. Worl IN REPLY REFER TO United States Department of the Interior 2360 (910) BUREAU OF LAND MANAGEMENT NPR-A Planning Federal Building 701 C Street, Box 13 Anchorage, Alaska 995/13 To: The Reader These documents making up the Final Study were prepared by the National Petroleum Reserve in Alaska (NPR-A) Task Force under pro- visions of Section 105(c) of the Naval Petroleum Reserves Production Act of 1976 (Public Law 94-258) and as directed by the Secretary of the In- terior. The 105(c) Study has addressed all resource and human values of NPR-A except petroleum, and this Final Study document completes the work of the Alaska-based intergovernmental and interagency Task Force. The values are described in the study from both a qualitative and quan- titative standpoint and also through land plan options. These options were developed through a public participation process and reflect the values of the area as perceived from various public viewpoints. Final wording of the study was developed through coordination with the Alaska Policy Group (APG) in the Department of the Interior. This group consists of the Under Secretary of the Interior, Assistant Secre- taries for Land and Water Resources, Energy and Minerals, Policy, Budget and Administration, Fish and Wildlife and Parks, Indian Affairs, the Solicitor and the Special Assistant to the Secretary for National Interest Lands. The study has been transmitted to the Secretary of the Interior through the Assistant Secretary for Land and Water Resources and Assistant Secretary for Energy and Minerals. Comments on _ the study may be directed to the Assistant Secretary for Energy and Minerals, Room 6654 - Interior Building, Washington, D.C., who has overall responsibility for consolidating all studies mandated by Public Law 94-258. Volume | of this Final Study contains a brief description of the 105(c) study, the interrelationships between the 105(c) study and other related studies mandated by the Naval Petroleum Reserves Production Act. Copies of the more detailed studies that make up the 105(c) series are available on a limited basis from the Bureau of Land Management at the above address. Sincerely, CONSERVE { C ck jth AMERICA'S LB} ENERGY Curtis McVee Task Force Chairman een: FOROS Ol (OTiCGT 1S mmaaiaeeaeeameemneenen Page National Petroleum Reserve in Alaska Studies...............00.0 00000 eee 1 105(c) Study Organization.......... 0... ccc ccc cece cece eee e eee 2 105(c) Study Schedule......... 0... ccc ccc cece c cece cece eeeeeeas 2 Regional Overview. ......... cece ccc cece eee eee cece cece eeeeeeee 7 TRO=AL C8 ee reece cccseerteveeesc eee esos? ets ttssve0rress ss 7 TMG POOP VCs coc eas re eos vei e cet vets ssc ececseceeteeece 8 Local Government...... 0... ccc ccc cc cece tenet t cece eens eeaes 9 Transportation. 0.2... . ccc ccc cece cee cence cence eeneeeneuaee 9 Pressures for ChangesS......... 0... cece eee cece cece ccc ee eeeeeeees 10 Vagues—and=Reseuree—Analy6 4-6 11 Introduction. ... 6... . ec ccc eee eee eee cece ee eeeeeeenee 11 Native Livelihood and Dependence............... ccc ee cece e ec eeeeee 13 SUMMATY. 2. ccc eee cent eee e eee eeeeeeeees 13 Cultural (Archaeological) Resources............ ccc cece ceeceeeeas 27 SUMMATY. 6 cece ence eee ce eee ee eee eeeeeeeus 27 Recreational ResourcesS........ 0... cece cece eee ccc t cece ee eeeeees 31 SUMMALY. 6. cece cee cee e ee cee e ec eeeeenneeees 31 Wilderness Resources.......... 0... ccc cece cece cece cece eeeeeeeeeeee 39 SUMMATY. 2.6 ccc eee eee eee eee eee e eens eeeeees 39 Visual ReSOUrCceS...... cL cece cee cece ee cece eee eeeeeeaaee 57 SUMMATY. 2. ccc cee cece eect eee cee eeeeeneeeees 57 Fish and Wildlife ResourceS........... cece cece cece e cece eee aces 67 SUMMALY. 6. cece cece eet e eee ee ee eeeuneeees 67 Reindeer and Muskoxen Grazing Resources...............0cceeeeeeeee 117 SUMMATY. 2... eee eeeceee ence eee e ee eeeneeueeueees 117 Mineral Resources......... 2... cece ee cece cece cece eee e ence eee eeeeees 123 SUMMATY. 2. cee ec eee ete e cece eee eeeeeeeeeeee 123 Watershed Resources...... 0... cece cece eee cc eee cece cence eaneeeee 135 SUMMATY. 2. cece ccc eee cence eee eeeeeeeees 135 Land Resources............ cece ccc cece eee e eee eeeeeeees 143 Existing and Potential Conflicts............ 0.0 ccc cece cece cee ee nnencs 149 Existing Conflicts and Problems................ cc cceeecceeeee cece 149 Oi] and Gas Exploration............. ccc cece cece cece eee eeeee 149 Boundaries.......... 00. c ee ee eee eee eeeees 150 Cultural Change voc cco coe cc tn nave ss ss estos veewseeeeeev see 150 Local Control... .... eee cee eee eee cece eeeeeee 151 Subsistence. ... 2... ccc ccc cece cece cece eeeeueee 151 Sport and Subsistence Hunting................ ccc cece cece eee 151 Potential Conflicts........... ic ccc ccc cece ccc cece cece cece eeeeeas 152 Mineral Extraction. ............cccccce rcs cccccccccccccccveces 152 Transportation Routes............. cc ccc ce cece cece eee eeaee 154 Motorized Transportation.............. 0... c eee e cece eee eee eeee 154 Recreation vs Subsistence............. 0. ccc ccc cece eee eeeeees 155 Reindeer vs Caribou...... 2... cece e eee eeneees 155 Local vs National Interest.......... 0.0.0... cece cece cece e eee 155 Geographic Areas of Potential Conflict....................0-. 156 CONCIUSION.... 6... eee eee eee cece cece eee eee eees 157 Public Participation AnalysiS.............ccc cece cece cee eeeeeeeeeeneees 159 Methods Used to Obtain Public Opinion.................. 0. cc eee ee ee 159 Public Opinion and Positions............. 0... ccc cece cece eeceeeees 161 North Slope Borough and Native Interest Groups............... 161 Environmental GroupS...............0cc cece cece cece cc eeeeeeees 163 State and Federal Government................000ccceeeeeeeeeee 164 Development GroupS........... 0. cece cece e cece cece e ee eee eens 165 Other Interests... 2... ick cece cece cece eee cece 166 Land Use Options....... 0... ccc ec ccc cece cee eee eneeeeeeeeeaenes 169 Introduction. .... 0... ccc cence cece eee e cece eeeeeeneaeee 169 Options Overview..... 2... . icc cece cece cece cece eee eeeeeenenes 170 General Guidelines to be Used With All 105(c) Options............. 175 Option TL... ccc cece cence eee eee ee eeeeenenes 185 TMC rOGUCCT OR visas sss oe oo oe es ood ees 185 Specific Guidelines. ...... 0.0.0... cece cece ccc cece eee eee eeee 185 Analysis of Option I........... cece cc ccc eee e cece neces 192 Minerals... 2... ccc eee cece cece cece eee e cence 193 Culture... ccc cece cence eee ee sence eeees 195 Wilderness and Wild Rivers.......... 0... cece eee eee e ees 196 Recreation and Scenery............. ccc cece cece cece eee es 196 Geographic Areas of Potential Conflict.................. 196 SUMMAVY. 26. cece eee teen eee e eee eee e tees 197 10) 2 oa 0) a 198 Introduction. ... 0... ccc cece ne ce eee eee nett eneees 198 Specific Guidelines. ..... 0... ccc ccc cece eee cece eens 201 Analysis of Option I]..... 2... eee cc ccc cc eee cece e ee eee 207 Minerals... 0... cee ccc cece cece ee cee e eee eenees 208 Fish and Wildlife... .. ccc eee cc cece cee eee 208 CUICUTO 6. iis cece ecw e ewe cs cee sere dsccedeecensessices 208 Wilderness and Wild Rivers............. cece cece eee eee 209 Recreation and Scenery..........c cee cee cece eee eeeeeenee 210 Geographic Areas of Potential Conflict.................. 210 Summary... 2... eee eee cee ee eee tee eee eeee 210 PLT ON) DIT ae isi oe ois ss cee st ese bass pba cee we cee evesseussn’ 212 Introduction. . 0.0... cece cee ce cece eee eee e eee eeeee 212 Specific Guidelines...... 0.0... . ccc cee cee cee ce tee cee cence 215 Analysis of Option III. ... 2... ccc cece cece cece eens 218 MUMOT ATS oc oos 5c on ci cess cee ves a ctadacssecsvccnessess 219 Fish and Wildlife...... 00. eee cee cece eee eens 219 Culture... cece ccc ec cece cence ene e ee eeeeeeee 219 Wilderness and Wild Rivers.......... ccc cece eee eee 219 Recreation and Scenery......... 0... cece cece cece eee e eens 220 Graphic Areas of Potential Conflict...................0. 220 Other Considerations............. cee ee ccc ee eee eee ees 220 SUMMATY. 2... cece cece cee eee eee e eee eeeeeee 220 OPE TO EV oo see ee ia os een se 5 5555s se aasacsaeccsesseecsssece? 221 Introduction... 00... cee eee eee cece ee ce eee ee eeenes 221 Specific Guidelines.......... 0. ccc ccc cece eee ee eens 221 Analysis of Option IV..... 0... cece cece cc eee ee eee eens 227 MiNETAlS. 2... ce cee e teres sca cb ee veeesctecssemvec’ 227 Fish and Wildlife......... 0... cece ccc cece cece e cece eee 227 Cultima 29a Wilderness and Wild Rivers.............. 0. cece eee eee 228 Recreation and Scenery............ 0. ccc ec eee cece ec ee cease 228 Geographic Areas of Potential Conflict.................. 228 Other Considerations............ cece cee ee eee nee 228 SUMMALY oc sala lela s os wlercrse wleleloele sed wleleleles clea 4 splot! ele 6 6 blee 229 OPTION Vee std slelale cbleleulsla bese cites blelschs balelale dts clela 230 TMEPOGUCTION. ooo ci el sn cleo lalele ese lelallae wleleaptiele wales b bllole 230 Specific GuidelineS......... cece ccc cece eee eee eee eees 230 Analysis of Option V......... 0... . cece eee eee [abet Wleleleos 4b eters 236 Minerals ess lll LEED eld cca ale dbdbecerele dak ele 237 Fish and Wildlife............. cece ccc cece eee eee 237 CUT CUE le le el 237 Wilderness and Wild Rivers........... 2... cece cece eee ee 237 Recreation and-Sceneryesicsss oeesc eos edi serie ceca e ces 238 Geographic Areas of Potential Conflict.................. 238 OMEN CONS TOAST AL ONS cnc rece ee aeeccecen were eestor bbw ierere toot 238 SUMMARY ss bl lell bee ci lelatwn blelalerals + ¢ulsleS olde blele y teduslelaleles 4 ble 238 OPCTON Ve ee ete llald bt le lela bleled bdibtulel ale 5% mela 239 DUPE O GUC CO needled edt lab edshal-wsbdatalybebehaybebstmtea: billy 239 Specific Guidelines.......... cece cece cee cee e eee eee 239 Analysis of Option VI.............. be ow llelalee blalales 4b lelel sls be ble 246 MiMeT ES ee el 246 Fish anid Wildlitel soi) telecast te selslseg blels as ep tlecle sees bs 247 CULEUP eS ee till let et ele a cle os lelad ook claletela tek ole 247 Wilderness and Wild Rivers............. cece cece eee eee 248 Recreation and Scenery............ cc eee e eee eee eee e eee 248 Geographic Areas of Potential Conflict.................. 249 SUMMAVY . oes ale telal as fw lelele dp lelele ciel det mlelolelecs wleleleod bb lejolel tb bole 249 GIOSSAP Ye ei fl lle eb tarsce eb th talelecoreletelelel ss st elelate cod elelelace ¢ bielelclel ¢ be lela 251 Appendix - Lists of Task Force Members and Staff................0..200e 257 Native Livelihood and Dependence Page 1. Applications Filed Under Native Allotment Act of 1906............. 15 2. Primary Subsistence Use Areas (1970'S)........... ccc cece ee enee cee 17 3. Secondary Subsistence Use Areas (1970'S)........ 0. cc cece cece cence 19 4. Traditional Land Use Inventory Sites.............. ccc cece eee eee eee 21 5. Summary Land Use Map..... 2... cece ccc eee cette eee eeneeees 23 Cultural (Archaeological) Resources 1. Areas of Concern for Cultural Resources...............0cceeeeeeuee 29 Recreational Resources 1. Areas Providing Best Recreation Opportunities..................005 33 Wildlife Viewing Areas............ ccc ccc cece cece eee cece cece eens 35 Rivers Examined for Possible Inclusion in the National Rivers System and Major Sport Hunting Areas......... 0... cece eee cee ences 37 Wilderness Resources 1. Possible Nonconforming Land Uses and Activities................... 43 2. Areas Providing Best Primitive Recreation Opportunities........... 45 3. Expectation for Viewing "Wilderness Associated" Wildlife.......... 47 4. Wildlife Habitat Enhanced by Wilderness - Part I.................. 49 5. Wildlife Habitat Enhanced by Wilderness - Part II................. 51 6. Ecological, Geological and Other Features of Scientific, Educational or Historical Value............ ccc cee ec eee eects 53 7. Outstanding Wilderness Resource Areas and Their Wilderness Attrihitac qa PP wry — OoOnN DW 11. 12. 13. 14. Visual Resources Scenic Quality Units and Sites (Cultural Modifications) with Rehabilitation) Potential ce elt eal ell altel ols Ae tie UTIL LLL I 61 Inventory of Sites (Cultural Modifications) for Visual Resource eae eee ee Tele t sll a lellect lee blelaceitel a beet ara date! a lack Maral dol latte total hs lel do le 65 Fish and Wildlife Resources Distribution of Moose and Sheep............. 0. eee eee cee eee eee 69 Caribou Movements and Distribution Patterns..................2000- 73 Grizzly Bear Densities and Polar Bear Den Sites and Sightings..... 81 Wolf Densities and Movements and Arctic and Red Foxes Important Denn Ng a Cette eee eel eel Cl Aa Ae cetera EI 83 Wolverine Sightings and Harvest Locations................00ecceeee 85 Best Potential Habitat for Muskox and Tundra Hare................. 89 Duck Distribution and Densities............. ccc ccc ee eee eee eee 91 Geese and Whistling Swan Distribution and Densities............... 95 Loon and Ptarmigan Distribution and Densities..................... 97 Shorebird and Arctic Tern Distribution and Densities.............. 101 Peregrine Falcon Nest Sites and Proposed Critical Habitat Zones...103 Cliff-nesting: Raptor Habitats. ........,.2 00.2.0 c ccc we detec ee concess 105 Nest Site Locations of Gyrfalcon, Golden Eagle, and Rough-legged Heat lol ale lola lela ale els lolal a tet Stefee tlle bfellelsceitde teal elolala teleeeel alee leha Gotet ee telact fale 107 Jaeger and Gull Distribution and Densities.......................4. 109 MINeT aT) Res OUT Ces ee ee ee eC Tid Meek | tat 125 C08 T| Res OU Ce Se ee ee Sse eC eal te 129 Watershed Resources ‘Drainage Basins, Runoff Zones and Surface Water Collection Sites. .137 Land Resources a Land Oe C ee ee ene el MIMO 145 1. Diagram: Organization of National Petroleum Reserve in Alaska SOUS Seen est tecle lel elie leleliatel eter et elelelal lear ali ees BI AAA Le PaC SIO e tS RH leletele ata 3 2 Diagram: Organization of the 105(c) Study.................000000 4 3 Diagram: Report Products of NPR-A 105(c) Study................00. 6 4 Map: Distribution of Visual Resource Values.................00005 63 a Map: Distribution of Wildlife Resource Values.................... 71 6 Map: Ranges of Arctic Caribou Herds...............0 cece cece eee 77 Zi Map: Proposed Caribou Management Zones for NPR-A.............0005 79 8 Map: Migration Patterns Observed in August and September......... 93 9. Map: Distribution of NPR-A Fishery Habitat Units................. 112 10. Map: Distribution of Mineral Resource Values................0000- 127 11. Chart: Chronology of Option Development.................0200000ee 160 12. Map: Distribution of Land Uses Under Option I.................... 187 13. Map: Distribution of Land Uses Under Option II................... 199 14. Map: Distribution of Land Uses Under Option III.................. 213 15. Map: Distribution of Land Uses Under Option IV................... 223 16. Map: Distribution of Land Uses Under Option V.................04. 231 17. Map: Distribution of Land Uses Under Option VI................... 241 ie Salient Commodity Aspects Regarding Mineral Resources of CCE eS CAO eee ialalede teeta IML Maree aletanelapeltelshe tele le] atMy se lAMeCel le 132 2. The Coal Resources of NPR-A in the National and Worldwide CO Cee eee ee etait alee ates lellllelel etal scelal ela foc leee ete ELIMI UII 133 Water |USe' by COMURT CT ese 141 Comparison of Land Use Options, Selected Issues................... 173 Comparison of Land Use Options, Designations of Selected Areas....174 aE ES Conver sion Table TET For those readers who may prefer to use metric (SI) units rather than the commonly used American units, the conversion factors for the units used in this report are given below. Multiply American Units Inches (in) Feet (ft) Miles (mi) Ounces (0z) Pounds (1b) Tons Gallons (gal) Square miles (mi?) Acres Tons per square mile (tons/mi2) Degrees Fahrenheit (F°) by 2.54 0.304 1.609 28.35 0.454 0.907 4.545 2.589 258.9 0.404 0.3502 5/9(F°-32) To Obtain Metric (SI) Units Centimeters (cm) Meters (m) Kilometers (km) Grams (g) Kilograms (kg) Metric Tons Liters (L) Square kilometers (km?) Hectares (ha) Hectares (ha) Metric tons per square kilometer (tons/km2) Degrees Celsius (°C) National Petroleum Reserve in Alaska Studies NATIONAL PETROLEUM RESERVE IN ALASKA STUDIES In 1923, President Harding set aside a 23-million-acre tract in northern Alaska as a potential source of fuel for the Navy. This tract, Naval Petroleum Reserve numbered 4, also known as Pet 4 or NPR 4, remained under the jurisdiction of the Department of the Navy until it was trans- ferred to the Department of the Interior on June |, 1977. At that time, the tract became known as National Petroleum Reserve in Alaska, or NPR-A. The transfer was mandated by Public Law 94-258, the Naval Petroleum Reserves Production Act of 1976. Among other provisions, this Act contained several directions to the Secretary of the Interior. Relevant excerpts follow. Section 103(b)...with respect to any activities related to the pro- tection of environmental, fish and wildlife, and historical or scenic values, the Secretary of the Interior shall assume all responsibilities as of the date of the enactment of this title. As soon as possible, but not later than the effective date of transfer, the Secretary of the Interior may pro- mulgate such rules and regulations as he deems necessary and appropriate for the protection of such values within the reserve. Section 104(d)...commence further petroleum exploration of the reserve as of the date of transfer... Section 105(b)...study...alternative procedures for accomplishing the development, production, transportation, and distribution of the petroleum resources from the reserve, and...the economic and _ environmental consequences of such alternative procedures. Section 105(c)...establish a task force to conduct a study to determine the values of, and best uses for, the lands contained in the reserve, taking into consideration (A) the natives who live or depend upon such lands, (B) the scenic, historical, recreational, fish and _ wildlife, and wilderness values, (C) mineral potential, and (D) other values of such lands. Such task force shall be composed of re- Presentatives from the government of Alaska, the Arctic slope native community, and such offices and bureaus of the Department of the Interior as... appropriate... The Secretary of the Interior shall submit a report, together with the concurring or dissenting views, if any, of any non-Federal representatives of the task force, of the results of such study to [Congress by April 4, 1979]...and shall include in The three study efforts, 104(d), 105(b), and 105(c), although provided for in the same Act, are three separate programs. These programs are controlled by the Alaska Policy Group in Washington, D.C., which is charged with setting and directing all Interior policy in Alaska. Under this group's jurisdiction is the Subcommittee on NPR-A, also headquartered in Washington, D.C., and, in turn, under this subcommittee is the Panel on Coordination which has been established in Alaska to provide linkage between all programs initiated by Public Law 94-258. Figure | shows the organization of the NPR-A studies. 105(c) Study Organization Following the mandates of the 1976 Act, a study management group con- sisting of four levels has been designated by the Secretary of the Interior (fig. 1). Within the Alaska Policy Group is the Subcommittee on NPR-A, led by the Assistant Secretary for Energy and Minerals and composed of Assistant Secretaries for Land and Water Resources; Policy, Budget and Administration; and Fish and Wildlife and Parks. Also serving on this subcommittee is the legal counsel for the Department of the Interior. Direct responsibility for the 105(c) Study is with the Assistant Secretary for Land and Water Resources. The Panel on Coordination provides the coordinating mechanism for all programs required by the 1976 Act, mentioned above, and also ensures that the North Slope Borough (NSB), Arctic Slope Regional Corporation (ASRC), and the State of Alaska are involved in these programs. The organizational positions on the Panel on Coordination are shown in figure |; the Panel also includes representatives from the Bureau of Land Management (BLM), U.S. Geological Survey (USGS), and the State, Borough and Regional Corpor- ation. The 105(c) Task Force members represent the State of Alaska, the North Slope Borough, the Arctic Slope Regional Corporation and Alaska agency heads of BLM, U.S. Fish and Wildlife Service (USFWS), Bureau of Indian Affairs (BIA), Heritage Conservation and Recreation Service (HCRS), Bureau of Mines (BOM), National Park Service (NPS) and USGS. The Task Force is chaired by the State Director of BLM. Figure 2 shows the organization of the Task Force. Assisting the Task Force is an interagency Planning Team consisting of a core staff including NSB and State of Alaska and Work Groups representing the federal agencies on the Task Force. The research efforts and report products of the Work Groups are coordinated by the Planning Team and presented to the Task Force for approval. A list of Task Force, Work Group and Planning Team members appears in Appendix |. 105(c) Study Schedule The Planning Team was organized in the spring of 1977 and a Team Leader was hired in June of that year. During the summer of 1977, Work Groups gathered and analyzed basic data and conducted field studies. Field data were synthesized in the fall. Work was also begun on the Physical, Ecological and Socioeconomic Profiles; the last of these was a contract Figure 1. Organization of the National Petroleum Reserve in Alaska Studies ALASKA POLICY GROUP DEPARTMENT OF THE INTERIOR Washington, D.C. | SUBCOMMITTEE ON NPR -A Washington, D.C. ASSISTANT SECRETARY OF ENERGY AND MINERALS Land and Policy, Budget and Fish and Wildlife Water Resources Administration and Parks Assistant Secretary | Assistant ee Solicitor PANEL ON COORDINATION BLM USGS USGS ' | STATE NSB ASRC 103(b),105(c)| 104(d) 105(b STUDIES OR PROGRAMS Surface Exploration Presidential Land il Study Management Program Study 105(c 103(b) 104(d) 105(b) BLM, AISLE BLM, Fairbanks USGS, Menlo Park USGS, Menlo Park & OMPRA, Washington Figure 2. Organization of the 105(c) Study LAND USE STUDY 105(c) BLM, ANCHORAGE 105(c) TASK FORCE STATE DIRECTOR OF BLM - CHAIRMAN sim | Fws [ pia | Bom | Hcrs | uses | nes | asec | NSB | STATE 105(c) PLANNING TEAM NPR-A PLANNING TEAM LEADER ASST. NPR-A PLANNING TEAM LEADER Regional Planner Recreation Planner Realty Specialist Wildlife/Fisheries Biologist NSB Respresentative State Representative Staff Assistant - Interpreter Editor Illustrators Clerical Personnel Office Manager WORK GROUP REPRESENTATIVES Work Group 1 BIA Work Group 2 HCRS Work Group 3 FWS Work Group 4 NPS Work Group 5 BOM Work Group 6 USGS In the winter of 1977 and spring of 1978, Work Groups began to develop and analyze resource values and investigate opportunities for the best use or development of these resources. Additional field work was conducted in the summer of 1978. Results of the field studies will be published as completed. Figure 3 shows the relationship of the Field Studies to other report products of the 105(c) study. During the summer of 1978, objectives and recommendations for resource and other values, and initial land use options were developed by the Planning Team. In the fall of 1978 these options were reviewed with the public. During the entire 105(c) study process, public meetings were held to inform state residents and other organizations and agencies of the progress of the study and to solicit comments. That commentary is reflected in the Final Study. FIELD STUDIES (FS) BY WORK GROUPS (WG) FS-1 Native Livelihood and Dependence (WG 1) FS-2 Recreation, Visual and Wilderness (WG 2) FS-3 Fish and Wildlife Population and Habitat (WE 3) FS-4 Cultural History (WG 4) FS-5 Geology and Minerals (WG 5) FS-6 Hydrology (WG 6) Figure 3. Report Products of NPR-A 1U5(c) Study STUDY REPORTS (SR) AND LAND PLAN STUDIES (LP) PHYSICAL PROFILE (SR-1) VALUES AND RESOURCE ANALYSIS Native Livelihood and Dependence (SR2-1) Cultural Resources (SR2-2) Recreational Resources (S$R2-3) Visual Resources (SR2-4) Wilderness Resources (SR2-5) Fish and Wildlife Resources (S$R2-6) Reindeer and Muskox Grazing Resources (SR2-7) Mineral Resources (SR2-8) Watershed Resources (SR2-9) Land Resources (SR2-10) =a SOCIOECONOMIC PROFILE WITH COMMUNITY PROFILES (SR 3) LAND PLAN STUDIES Resource Recommendations (LP 1) Conflict Resolution (LP 2) SUMMARIES, LAND USE OPTIONS, AND RECORD OF PUBLIC PARTICIPATION (LP 3)* APPENDICES Bibliography Work Group Studies FINAL STUDY Volume | SUMMARIES OF VALUES AND RESOURCES (SR 2) LAND USE OPTIONS (EXCLUDING PETROLEUM VALUES AND USES) Volume 2 SUMMARIES OF STUDIES (SR 1,3,4,5, AND 6) Volume 3 RECORD OF PUBLIC PARTICIPATION Regional Overview 1 The Arctic Coastal Plain physiographic province is charac- terized by polygonal ground and many lakes. The geo- morphologic processes associated with permafrost cause slow formation and degradation of the polygons, resulting in a constant shifting of pond shorelines. Photo by U.S. Dept. of the Interior. 2 As one moves south from the immediate coast, the coastal plain remains virtually flat, but is somewhat better drained. A sedge - tussock tundra replaces the wet sedge meadows. Photo by D. Hsu. 3-4 Destruction of the insulating quality of the overlying vegetation and organic litter has caused long-lasting scars on the coastal plain. These long ruts were caused by vehicles used during oil exploration during the 40's, before vehicles with large low-pressure tires were widely used. Photos by U.S. Dept. of the Interior (3) and USGS (4). 5 Snow covers the study area for eight to nine months a year. The long drifts are caused by prevailing winds which tend to create a crust. These snow drifts can be important storage sites for village water sources. Photo by U.S. Dept. of the Interior. 6-7. The northern section of the Arctic Foothills is charac- terized by broad expanses of plain between low, rounded hills. | Much of this area is underlain by important coal resources. Photos by U.S. Dept. of the Interior (6) and D. Hsu (7). 8-9-10 The topography becomes varied in the southern section of the foothills. Some of the ridge or hill crests are at altitudes of 1,200 feet. Photos. by U.S. Dept. of the Interior (8), T. Bendock (9) and NPS (10). 11 The color in this hillside suggests the presence of mineral- ized rock. Several promising metallic mineral deposits have been found in the mountainous section of NPR-A. Photo by U.S. Dept. of the Interior. 12 The rugged topography of the Brooks Range along the southern boundary of NPR-A supports very little vege- tation and the slopes have very rocky soils, in distinct contrast to the fine-grained soils of the coastal plain. Photo by U.S. Dept. of the Interior. 13 A bluff or scarp such as the one pictured is an arbitrary divider between the northern and southern foothills. The sediments in the bluff are undermined during breakup each year and contribute tons of sediment which is carried seaward. Photo by U.S. Dept. of the Interior. REGIONAL OVERVIEW The 105(c) Land Use Study requested by Congress covers the geographic area of NPR-A, but it is recognized that the study area is influenced by and cannot be isolated from the rest of the Arctic region and the State of Alaska or from national and international concerns. The Area The region extends across Arctic Alaska from the Canadian border westward some 600 miles to Cape Lisburne and is bordered on the north by the Chukchi and Beaufort Seas. The southern border is the Brooks Range. NPR-A is located in the western part of the Arctic region of Alaska, north of 68°. The study area is composed of three physiographic divisions: the Brooks Range, the Arctic foothills, and the Arctic coastal plain. The Brooks Range has peaks whose altitudes range from 4,000 to 9,000 feet. This rugged and glaciated range is devoid of trees and is ice and snow covered most of the year. The Arctic foothills division, lying between the Brooks Range on the south and the Arctic coastal plain on the north, is a moist tundra area characterized by rolling plateaus and low, rounded east-west trending ridges. The river drainage patterns are complex, and all streams empty into the Arctic Ocean. From an altitude of about 600 feet, the foothills gradually descend northward into the flat, relatively featureless Arctic coastal plain. Thousands of shallow lakes dominate the area. Successive freezing and thawing of the saturated tundra causes frequent draining and reforming of these lakes. Ice-wedge polygons prevail in the interlake tundra. The coastal plain is treeless and vegetated by grasses and low sedges and shrubs. As its name suggests, the climate of the Arctic region is cold; strong winds persistently blow over the area. Summer temperatures at Barrow have an average range of 29°F to 44°F, while winter temperatures range from -26°F to -6°F. Recorded extremes are -56°F and +80°F. Combinations of low temperatures and strong winds produce extreme chill factors requiring Precautions by those involved in outdoor activities during winter months. Although annual precipitation over the region is low, less than 5 inches at Barrow and Il inches at Anaktuvuk, and mostly in the form of snow, a light rain or drizzle is common during summer days and the coastal terrain is continually wet. Snow cover of more than one foot is common during winter months. Barrow experiences 84 days when the sun never sets (May through August) and about 67 days when the sun does not appear above the horizon (late November to late January). Twilight during intervening periods may amount to 6 or 7 hours in late November, but is reduced to 3 hours by December 21, the shortest day of the year. The Arctic region falls within the zone of continuous permafrost (perennially frozen ground). Another dominant cold climate feature is the Arctic Ocean ice pack which adjoins the shoreline except durina Auaust and September when prevailing winds from the south typically blow the drifting ice floes offshore. Marine transport of cargo is possible only during this six to seven week period. The Arctic region's land area comprises about 14 percent of the State of Alaska. Most of the land is owned by the federal government; 63 percent alone is included collectively in NPR-A and the Arctic National Wildlife Range. Ownership of about 3.5 million acres is vested in the State of Alaska, and an additional 3.5 million acres are owned by eight village corporations and the Arctic Slope Regional Corporation. The People The population of the region (North Slope Borough - see Local Government, below) increased from 3,551 in 1970 to an estimated 12,065* in 1977. The major change was caused by increased oil and gas exploration activities on NPR-A, by development of the Prudhoe Bay oil field, and construction of the trans-Alaska_ pipeline. These activities brought large numbers of workers to the region. These employees do not live at the place of employment, but are transient, i.e., live in dormitories and commute to their families living outside the area. The population of the region's traditional communities grew from 3,075 to 4,305 between 1970 and January 1979. The population of Barrow (largest and northernmost village in the Arctic) increased from 2,152 to 2,715 over the same period. There has been a dramatic change in overall population size and composition. The resident population has also shown substantial growth, but it is still predominantly Native. About 85 percent of the 1970 population of this region was composed of Alaska Natives. The remaining I5 percent were non-Natives Providing governmental health and education services to the Eskimo people, manning military installations, conducting scientific research, and operating private industrial facilities. Traditionally, small bands of northern Alaskan Inupiat harvested plants, fish, and wildlife; all members shared food and the manufacture of all items necessary for survival and well-being. A barter system developed through which bands met and exchanged food and commodities as desired and needed. A total dependence on subsistence began to change when metal trade items, new techniques and money were introduced through European contacts. The monetary economy was introduced into the area by the whaling industry in the mid 1800's, successively followed by trapping and reindeer herding, post-war construction, and oil and gas exploration and production. Historically, the economic phases overlapped somewhat, but each experienced a period of high activity followed by a decline. This resulted in an unstable economic situation over the years during which reliance on subsistence was essential to Inupiat survival. While discrete subsistence activities associated with particular species are seasonal, subsistence as it exists in the Arctic Slope region and within NPR-A demands activities throughout the year. Seasonal harvests of migratory caribou, waterfowl, fish and marine mammals furnish tons of meat annually, as well as skins and other products, to the Native people. *Thea naniilatiann in: Nanambkan 1070 wine 2 Cal Tk One of the most important species is the caribou, which, unlike migratory birds and marine mammals, is restricted to the land of the North Slope Arctic region and areas immediately to the south. Although much of the western Arctic caribou herd calves, summers, and winters in NPR-A, there is significant seasonal in-and-out migration through the passes of the Brooks Range. Any significant change in wildlife dynamics, whether it be reduced populations through disease or over-harvesting, lack of forage, altered migration routes, or the like, for any major game species, has a detrimental effect on Native subsistence activities. Restrictions on access will similarly have effects on subsistence. Because of the size and isolation of the region, economic uncertainty, limited job opportunities, and the desires of Inupiat people, a mix of subsistence activities and cash economy is presently practiced to sustain life, as well as to sustain the cultural and traditional Native lifestyle. Native land ownership (through the passage of the Alaska Native Claims Settlement Act), creation of the North Slope Borough, and development of the petroleum industry on the North Slope have created job opportunities never before available to the Inupiat. Feelings of self-worth have also changed in this time span. In early days the Inupiat thought of themselves as "the real people," but white domination of the Eskimo in the early twentieth century left many convinced of Inupiat inferiority. Those feelings were not universal. Today, however, with Passage of the Alaska Native Claims Settlement Act and formation of the North Slope Borough and Arctic Slope Regional Corporation managed largely by Natives, and recent increases in job opportunities, there is a resurgence of Inupiat cultural pride, awareness, and participation in state, national and even international affairs. Local Government The North Slope Borough (NSB) was incorporated as a first-class borough on July |, 1972, and assumed a variety of area-wide governmental powers, including mandatory powers of taxation, education, and planning, platting and zoning. The NSB encompasses virtually all the land north of the Brooks Range. The NSB, as a home-rule borough, has all legislative Powers not prohibited by state law or charter. Property taxes are the most significant source of borough revenue; the full value of real, personal, and oil and gas properties in the borough as of January |, 1977, was estimated at $3.57 billion. However, under state statutes local government is limited to a tax of $1,500 per capita on certain oil and gas properties. The Inupiat Community of the Arctic Slope is a_ legally constituted regionwide’ tribal government established pursuant to the Indian Reorganization Act of 1936. Transportation Except for marine transport of cargo into the region during the limited ice-free season each year, air travel is the dominant mode of travel into and out of the region. Weather permitting, daily commercial flights carry Passengers and carao into Barrow and Deadhorse from Anchoraae and region to the Arctic Ocean, but is currently open only to industrial use. Locally, intervillage and subsistence travel is accomplished through scheduled or chartered light aircraft and seasonal use of snow machines or outboard motorboats. No roads connect the nine communities in the region. Pressures For Change Lifestyles of Native Alaskans are rapidly changing as more jobs become available and as a money economy becomes increasingly significant through the activities of the North Slope Borough, Arctic Slope Regional Corpora- tion, and oil and gas development. Other influences from outside are bringing change to the North Slope and to NPR-A. The rapid decline of the western Arctic caribou herd recently resulted in a caribou harvest quota, and an international concern over the worldwide bowhead whale population has led to restrictions being placed by the International Whaling Commission on the number of whales taken or struck by Alaska Natives. National energy needs and international politics are bringing pressures for the exploration and development of offshore oil resources. Congressional legislation concerning ultimate designation of federal lands in Alaska under Section 17(d)(2) of the Alaska Native Claims Settlement Act (ANCSA) will undoubtedly affect the North Slope and its inhabitants. Although the Inupiat are now able to shape their world through land ownership and local governments, they have little or no control over the types and pace of changes wrought by some _ influences emanating from outside the region. Values and Resource Analysis Introduction The following materials summarize the human and resource values as determined during this 105(c) study process. More complete information may be found in the Values and Resource Analysis documents and Field Studies prepared by the Work Groups, Planning Team, and Task Force. Beginning with Native Livelihood and Dependence - a discussion of values of the Inupiat of the Arctic Slope - the section will summarize and to some extent evaluate or indicate those areas or resources believed to be of "highest value" given today's information. Resources included in the following pages are cultural (archaeological), recreational, wilderness, visual, fish and _ wildlife, reindeer and muskoxen grazing, mineral, watershed, and land. The material as presented reflects both the quality and quantity of the data available and the Work Group process used to develop the study. Native Livelihood and Dependence 1 This ‘‘shoulder’’ gun is used to fire a bomb which kills a whale. The design is nearly a hundred hears old, having been introduced by New England whalers. Photo by S. Pedersen. 2 A hunter waits for ducks to come in over the lagoon near the Barrow DEWLine station. Photo by R. Worl. 3 A modern snow machine teamed with a handmade sled is a necessity for efficient hunting and transportation of game and equipment. Photo by S. Pedersen. 4 Polar bear hides are prized for their warmth and waterproof quality. The meat is also important and is customarily shared. Photo by R. Worl. 5 Today's marine mammal hunt depends on traditional methods and modern equipment. Photo by S. Pedersen 6 Boats and motors make travel and subsis- tence hunting efficient. Purchase and maintenance depend on the cash economy. Photo by W. Schneider. 7 Both old and new weapons and equipment are used in whaling. These darting guns, one with a harpoon, and the skin boat are treasured implements of the hunt. Photo by S. Pedersen. 8-9 A mixture of old and new equipment is Part of the fisherman’s kit. The lures and net are new, other items old. Photos by S. Pedersen. 10 This rack holds a valuable supply of drying whitefish. Photo by S. Pedersen. 11 Waterfowl! are taken in summer along the NPR-A coast. These eider will supplement other subsistence foods. Photo by S. Pedersen. 12 The mainstay of the subsistence lifestyle is caribou; many are taken in the fall when the animals are in prime condition. Photo by S. Pedersen. 13 Walrus are important as a meat supply and as a source of raw ivory for art work. Most are taken west of Barrow. Photo by S. Pedersen 14-15 Whales are central not only to nutri- tional needs but also to traditions of the Inupiat. The whaling captain directs the cutting of the meat. Photos by R. Worl. 16 Seals are an important, dependabie meat source. An ulu is being used to cut up the seal. Photo by R. Worl. 17 This small older home is typical of many in the study area. A seal skin is drying in the yard. Photo by S. Pedersen. 18 The jaws and ribs of whales were formerly used to build homes. The walls were banked with sod. This structure was recently used as a cache. Photo by S. Pedersen. 19 A typical trapper’s cabin is an important winter shelter. Sites of such cabins are currently the subject of a class action suit regarding Native allotments. Photo by S. Pedersen. 20 The North Slope Borough is a prime sponsor of construction projects. These recently built homes are gradually re- placing older buildings. | Photo by S. Pedersen. 21 Inupiat music is part of a wide range of traditional and contemporary community affairs. Photo by R. Worl. 22 This fish camp along the Meade River may be occupied for months and be the site of many subsistence activities. Photo by S. Pedersen 23 The lumber and canvas construction of this duck hunting camp is typical of many such semi-permanent structures on the Reserve. Photo by R. Worl. Native Livelihood and Dependence Summary* Inupiat living in the eight traditional communities of the North Slope are dependent upon resources that in turn rely on the National Petroleum Reserve in Alaska (NPR-A) as important habitat. Subsistence in its broadest sense implies a lifeway in which language, culture, societal structure and _ social well-being are primarily derived from a _ close interrelationship with the land, its physical conditions, and_ biotic resources. Mammals, birds and fishes require free access throughout the entire Arctic region. The Inupiat also depend upon that freedom to range over the land and use specific individual hunting and fishing sites for harvesting specific species at specific seasons. Both site-specific and regional uses are critical in learning the range of skills and techniques necessary for subsistence activities. The skills and the values of specific sites are passed from older to younger generations through word of mouth and, more importantly, actual experience. This close relationship to biotic resources and location continues to be extremely important, as subsistence activities account for a large percentage of the food consumed and preferred by the Inupiat and which is important for health maintenance. Historically and presently all of NPR-A has been used for subsistence, with yearly variations created by the availability of resources. Traditional land uses have encompassed the sea ice, the coastal zone and the inland areas including rivers and lakes (Plates |, 2, 3 and 5) in a seasonal cycle for hunting, fishing and trapping. Resource availability has permitted the establishment of year-round villages at Point Hope, Icy Cape and Point Barrow. Studies done under 105(c) auspices have resulted in a presentation, by village, of the extensive regional subsistence land use (Plate 5). Recent developments on the North Slope have stimulated a cash economic base that has increased in both importance and accessibility. Specifically, the passage of the Alaska Native Claims Settlement Act (ANCSA), Production of oil and gas from the Prudhoe Bay field, creation of the Arctic Slope Regional Corporation (ASRC) as a profit-making entity, and the creation of the North Slope Borough (NSB) as a municipality have affected the economy. Presently the NSB provides direct employment in borough government and through borough programs such as the multimillion dollar Capital Improvement Program (CIP). The CIP is providing improved housing, schools, public safety and health facilities and, consequently, seasonal cash employment within the traditional communities. The Regional Corporation likewise provides direct employment in the organization and jobs through various operations including aspects of oil exploration on NPR-A. The considerable cost of subsistence-related necessities (snow machines, fishing and hunting implements) and the prices of fuel oil for home heating, of electricity, and of western foods available through small local stores have increased the importance of these cash jobs. The NPR-A_ study has *For a full discussion of this topic, see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Native Livelihood and Dependence: U.S. Department of tha Intarinar NMatiannal Datenlarnm DBA TR AlaAaLA TALS AN baat rte Cee documented the significance of this interdependent, mixed economy based upon subsistence resources and monetary resources; there is now a high degree of dependence on participation in the wage economy when jobs are available. Preference is strong to combine subsistence and wage employment, especially in villages. According to the University of Alaska, Institute of Social and Economic Research (ISER), 34 percent of the male population and 23 percent of the female population, on the average, are voluntarily unemployed. Almost three-quarters of the North Slope Inupiat adult population engages in at least one subsistence activity annually. Seasonal subsistence activities now consume a substantial portion of the year, although not as great a portion as that consumed by wage employment (on the average 3.9 and 5.1 months per year, respectively). The present interface of western cash economic structures with older biotic resource-based economies is a unique Inupiat blend. An analysis of the interrelationship of the traditional resource harvest and the western cash economic system reveals an integration has occurred which accommodates both; it allows the Inupiat to keep traditional roles and systems viable and active while incorporating and adapting to externally imposed or adopted changes. It has evolved into a functional system. While the cash economy aspects of the lifestyle can be defined, there are many problems entailed in obtaining a clear understanding of subsistence, which is the heart of the non-cash economy. These focus on the dichotomy between "outside" and Inupiat values and on definitions of this critical area of Inupiat lifestyle as they are embodied in legislation from federal and state agencies. The cash economy is also seen by Inupiat as having high potential for affecting changes such as_ stimulating in-migration and increasing competition for the time of those who are both subsistence harvesters and cash workers. While the report based on the ISER information cites high levels of participation in the wage economy sector, it must be remembered that the wage economy based on the current NSB CIP is destined to phase out somewhat in the next six years. There will be a subsequent decline in the availability of jobs in the community and/or region. Historically, the Inupiat have always returned to a reliance upon the biotic resources of the land as need and heritage dictated. At present, the wage economy has seasonal fluctuations which demand a mix of wage and subsistence activity. Both the reliance and fluctuation are not likely to change in the foreseeable future. It is probable that physical, social, and psychological health will be negatively affected by events that will follow reductions in the biotic resource base and Inupiat harvest of these resources. Community grocery or general stores, as they currently function, do not provide either broad employment or adequate provisioning of western foods to replace subsistence harvests. Positive benefits can accrue, however, if funding could be secured for improving store facilities, especially those for freezing and storing food. The only major long-term opportunity identified for local economic growth is exploration and development of petroleum or mineral resources. Development of these resources also has the greatest potential for impacts on wildlife and all aspects of subsistence and culture. Based upon analysis of effects of the Prudhoe Bay activities and of Outer PLATE NO. 5 Oc, vet? pn Summary Land Use Map lio : a LI 12° (eee = (a ¥~ t VILLAGE & NUMBER OF RESPONDENTS _S 7 ‘ ANAKTUVUK PASS (6) BIOTIC RESOURCE CATE g ineluding information from Ray Bane ai (dashed lines) 1. Birds ALASKA BS ALASKA ATQASUK (ATKASOOK) (5) 2. Hunting Furbearers 5 3. Trapping Furbeores : 4. caribou \ BARROW (20) 5. Moose 6. Walrus KAKTOVIK (10) 2. Whale nye 8 Seal we 9. Invertebrates NUIQSUT (6) 10. Fish S 11. Polar B 12. Grizaly Bear ‘ ; POINT HOPE (12) 13. Sheep 4 LOCATION MAP LOCATION MAP 14. Small Mammals 15. Fuel and Structural POINT LAY (7) vee SSSq Please note narrative accompanyir Ss SQy_wainwaicet (14) the appropriate qualifiers and any pe = Lae BEAUFORT Compiled by: S. Pedersen, North October 16, 1978. SEA CHUKCHI CHUKCHI SEA AN RN “ i NY S 7 \ \ resueKeuK “Ss LAKE Pingorerok Pass a ied Witeogee 0 ge see so SUMMARY LAND-USE MAP NARRATIVE This map of overlapping village land-use areas is based on information from interviews with up to 20 active hunters from each of the eight villages within the North Slope Borough. It is at the scale of 1:1,500,000 and synthesises, into one category for each“ Village, detailed information on 16 biotic resource categories. In order to produce this map we synthesized detailed information on each of 16 biotic fesource categories from field maps provided by a sample of hunters in each village (at 4 scale of 1:250,000). This information is available from the North Slope Borough in rough form at this time (October 1978). s Sbamingsroh west \ N The village land-use boundaries depicted are minimum estimates of perceived land-use areas from a village centered focal point. It is well known that prior to the recent Permanent village way of life, hunters travelled far and wide over the whole North Slope indeed well into Canada and as far south as the Yukon River/Seward Penninsula. This fe style has become modified and it is land-use by this village centered group we depict This map product represents the sum of all lands used in the pursuit of each of the 16 biotic resource categories in all eight (8) villages within the North Slope Borough. Each village land-use area is identified by a colored area or zip pattern identified in the le- ‘gend next to the corresponding village where the main land-use activities eminate from. net creek Awona urukok tous CQabe apm es nL - bd — < River - NATIONAL PETROLEUM RESERVE - ALASKA U.S. DEPARTMENT OF THE INTERIOR ‘ ST | seer a | A Lb {tis the first time this type of information is available in fully documented form from ol VL ESE Northern Alaska. We sincerely hope that land planners and researchers alike, who use this information, do not fall prey to “the boundary syndrome”, but remember that the {ines drawn on this map merely represent outer limits of our current knowledge (July 1978) of the preceived subsistence geography on the North Slope. NATIVE LIVELIHOOD, SECTION 1 PLATE NO. 1 te Lake oo! Applications Filed Under Native Allotment Act Of 1906 was neg ” é ganwt Ken ATASKA on ‘ ? “a ¢ : ry. $ —_ i S J \ 4 2 Continental Shelf projections, increased human migration to the area could affect opportunities for direct employment of Inupiat. While increasing the number of jobs available, development often attracts transient workers who, due to previous experience, are given preference for these jobs. Several other economic options may be open to Inupiat, but each has a drawback. Reindeer herds offer a source of a popular meat. However, under current conditions, reindeer could compete with caribou for range, and they now have a higher cash value from antler sales than as a food resource. (See Reindeer and Muskoxen Grazing Resources, this volume. ) Arts and crafts work and guiding do not offer opportunities for large-scale employment. Both guiding and large increases in arts and _ crafts Production may conflict with sound resource management in an effort to provide work. In addition, they are not likely to affect the overall economy. Tourism will also offer some employment, but will draw outsiders to the area. Local uses of alternative energy sources, particularly coal, gas and oil, for decreasing dependence on imported fuels, would bolster not only the employment picture, but also the local economic balance. Adequate attention to preservation and maintenance of the broad spectrum of cultural resources through local infrastructures would assist in Preventing discontinuity in areas of social, physical and cultural health, and protect the national interest in Inupiat continuity. Opportunities to enhance cultural maintenance exist through entities such as the NSB commissions on History and Culture, Language, and the Traditional Land Use Inventory, and also through Inupiat cultural and language courses and emphasis within the NSB School District and higher educational programs; state and federal funding could assist in strengthening local involvement with these programs. Native allotments on NPR-A remain an important issue and are presently the subject of litigation. No allotments have been approved on NPR-A because it is held that the 1923 Executive Order withdrew these lands by including them in the Naval Petroleum Reserve numbered 4. (Plate | shows the locations of allotments sought.) The Inupiat contend that the Reserve's withdrawal was not meant to interfere with their subsistence activities and that the sites applied for are important to the families and communities; therefore, there should be no conflict in granting these lands under the Allotment Act of 1906. (See also the summary of Land Resources following in this section.) More than 200 traditional land use sites have been identified near Barrow, another 200 near Wainwright, and approximately 100 sites each for Atkasook, Nuiqsut and the neighboring villages of Anaktuvuk Pass, Point Lay, Point Hope and Kaktovik. Some of these sites overlap the Native allotment sites, above. The NSB is continuing to add other land use sites as it develops the Traditional Land Use Inventory (Plate 4). This inventory is an important planning tool. Another area of concern relating to traditional land use is the perceived Potential impact on subsistence of specific land use designations. The Native people, because of their subsistence needs, place a high value on easy and free access to and over NPR-A lands. They have expressed severely restrict subsistence access to these lands by prohibiting use of motorized vehicles (snow machines, airplanes, and motorboats) and erection of structures at important remote sites (fish camps and other sites that may be occupied for two to seven months per year). While such restrictions are not inherent in the statutes, additional appropriate actions guaranteeing that Native cultural and subsistence values will be respected are extremely important to the Inupiat. The recreational aspects of these land designations could also attract large numbers of people from outside the area. Greater recreational or other use could result in political pressure for still more restrictive regulations which could effectively prevent the free and open access now enjoyed by the area residents and other visitors. Inupiat residents see this unrestricted access as central to the viability of their subsistence-based lifestyle. The action of the International Whaling Commission in limiting the take of bowhead whales, the decline in the western Arctic caribou herd and subsequent state-imposed restrictions on the Inupiat caribou harvest, as well as intensified industrial and governmental interest in their lands, all affect Inupiat subsistence and its potential. These factors are seen by the Inupiat as both a threat to their traditional lifestyle and as a limit to their control of the direction of and ability to secure real benefits from these activities on lands they consider as their own. As development in the Arctic occurs, the Inupiat are desirous of assuring that the social needs for employment, resource access, and opportunity to Participate through village and regional corporations are recognized. Political autonomy in areas of resource and land management are also high priority values held by the North Slope Borough and the tribal government, Inupiat Community of the Arctic Slope. These values will play a part in the future relationships of local, state, and federal governments to the Inupiat of the North Slope region and on the management regime and policies for the area. The future of subsistence, as it reflects the whole of Native livelihood and dependence, is thus based on a matrix of law, circumstance, economy, and cultural diversity. Cultural (Archaeological) Resources 4 6 This cairn is typical of many such rock piles which mark travel routes or locations of storage sites. Photo by NPS The depressions in the ground are the remains of houses at Kinyiksuvik Lake near Nigu River. When occupied, these pits would have had a frame above them. The frame may have been covered by skins or by sod and willow branches. Photo by NPS This promontory provides a view of Howard Pass that allowed ancient hunters to spot game. Modern hunters still use this and similar vantage Points. Photo by NPS. The slab of stone shown here may have been a shelter from the wind or a direction marker. Photo by NPS. This large cairn is near Knifeblade Ridge. Photo by NPS. The type of rock used to form this part of a weapon stands out in contrast to the local bedrock, making discovery of artifacts somewhat easier. The blade is about 4 inches long. Photo by NPS. These hide scrapers, made of driftwood and metal, are still used. The design is very old, but in the past the blades would have been made of worked stone. Photo by R. Worl. In the past hunters erected piles of stones like these to serve as fences to help them drive caribou to places where the animals could be easily killed. Photo by NPS. Cultural (Archaeological) Resources Summary* The National Petroleum Reserve in Alaska (NPR-A) lies immediately to the east of the now submerged Bering Land Bridge, the avenue by which man entered North America as early as 25,000 years B.P. (before present). At Present, reliably dated artifacts from archaeological sites on the Reserve do not indicate occupation much earlier than 12,000 B.P. A number of sites in and adjacent to NPR-A document the widespread presence of man from 8,000 B.P. to the present. Limited archaeological surveys in the foothills of the Brooks Range and along the Arctic Ocean coastline indicate long, intensive, continuous occupation. Sites range in size from a single stone tool to villages covering several acres. Dry ground, a vantage point for observing game, protection from prevailing winds, and easy access to potable water were the qualities the early residents looked for in choosing living and hunting sites. These were the same qualities that the large game animals hunted by the Natives also chose for territorial ranges. The Utukok, Meade, Ikpikpuk, Colville, Etivluk, and Killik Rivers were major arterials for north-south travel. East-west travel was by way of Archimedes, Lookout and Knifeblade Ridges. Man used these natural corridors because they facilitated travel and were game trails. Parts of these natural corridors have been archaeologically surveyed; the remaining parts and old beach ridges still must be surveyed. At the time of European contact, in 1826, the Natives of the North Slope categorized themselves into two groups on the basis of territory and primary food resources. The Tareumiut lived along the coast and relied mainly upon marine animals for food and raw materials. Inland, the Nunamiut lived on the banks of major rivers and lakes; their primary resource was caribou. Annual trade fairs were held at Anaktuk and Kangik (just south of the inlet on the Kuk River) where the various villages exchanged items for goods not obtainable in their territory. Long before the whalers established regular commerce with North Slope Eskimos, European manufactured items were traded from other Natives in contact with Russians in southern Alaska and Asia. When the whalers established permanent trading posts along the Arctic coast, many Nunamiut resettled along the coast to be nearer to them. Today there are three reestablished inland villages, Nuiqsut, Atqasuk (Atkasook) and Anaktuvuk Pass; some Native families have expressed desires to reestablish other inland villages. The archaeological surveys conducted under the 105(c) program discovered many new sites. All the sites discovered were evaluated for eligibility for inclusion on the National Register of Historic Places. The Birnirk site at Point Barrow is now the only National Register site in NPR-A. Thus far, *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Cultural (Archaeoloaical) Resources: U.S. Department 26 additional areas are adjudged to be eligible for inclusion in the National Register (Plate 1). These range from large, multi-occupational villages to clusters of small sites used in hunting and butchering activities. Approximately 1,100 sites are recorded for NPR-A; 400 were discovered Prior to 1976, and the other 700 were discovered as a result of the 105(c) study. In addition, a remote sensing program based on false color infrared aerial photography has been instituted in an attempt to identify areas of high archaeological potential. Preservation of the cultural (archaeological) resources requires knowledge of site locations, their period(s) of occupation, activities posing potential threats of partial or complete destruction, and educating current residents and visitors to the value of the resource. Plate | shows areas of concern for this resource. Archaeological resources have been repeatedly overlooked in the past. They were considered unimportant because there is no economic value to assess. However, archaeological resources are nonrenewable and cannot be duplicated or simulated. Recommendations for the best use of cultural resources include their protection and preservation by means of programs of scientific studies to identify the resources and educational programs to explain the past and present cultures. Other aspects of cultural resources, including Inupiat societal, historical and livelihood values, are discussed in the summary of the Values and Resource Analysis, Native Livelihood and Dependence, and _ in_ the Socioeconomic Profile summary (Volume 2 of this Final Study). 21° LOCATION MAP. CHUKCHI 5/ Sacwor Beds SAGAVANIR Mth, ot 69° NATIONAL PETROLEUM RESERVE - ALASKA US. OF PARTMENT OF THE INTERIOR CULTURAL RESOURCES, SECTION 2 PLATE NO. 1 [: a8 |: Areas of Concer for Cultural Resources | f "3 sz ee] AREAS SURVEYED BY National Park Service, Task Group 4 g = 1 2 AREAS NOMINATED TO THE NATIONAL REGISTER OF |: HISTORICAL PLACES te iB i cidarelde 17 Storm Creek from its headwaters to the boundary = orm Creek from its headwaters nda le 2. KUGASUGARUK SITE Se Unk moridisn 3 3 KUGOK SITE 18 Folsom Point Syncline area on the middle |r 4 NUNAGIAK Utukok River g 5 NUNAVAK BAY 19 Confluence of the Disappointment Creek and : q e Nuvowanue Utukok River *G@ EL / 7 NUWUK 20 Eskimo Hill area at the confluence of Carbon Creek : u and Utukok River 2 x 8 WALAKPA 21. Southern shore of Noluck Lake = = 8 BETTY LAKE SITE 22 Area between VABM Rex eastward to section 17, = on” 10 LIBERATOR LAKE 74S, R25W on Lookout Ridge Recreational Resources 1 Rivers provide easy travel routes and excellent opportunities to observe wildlife such as these caribou on the Colville River. The reduced flow of streams in summer makes float trips difficult on some NPR-A streams. Backpacking in the De Long Mountains is one of the outstanding recreational opportunities of the Reserve. River valleys offer easy walking whereas other cross-country routes are made difficult by the ubiquitous tussock tundra. Winter recreation does not now draw many visitors to NPR-A though opportunities for challenging trips exist. Cross-country skiing is most attractive in April when the days are longer and the temperatures beginning to rise. Some rivers offer fast-water boating for kayak- ers and others. These streams are worthy of Wild or Scenic River designation. Tourism is now the major industry in the study area. More than 4,400 tourists come to Barrow annually and leave as much as $60,000 in the community. All photos by HCRS. Recreational Resources Summary* The primary recreational values of the National Petroleum Reserve in Alaska (NPR-A) are the wildlife species of the area, the few rivers which provide Arctic travel routes, the opportunity to experience the Arctic, particularly during the spring and summer months, and the opportunity for solitude. Plate | shows the distribution of areas providing these opportunities. The activities of the local residents are not addressed in the analysis of the recreation resources because their use of NPR-A resources is predominantly connected to a subsistence lifestyle and because their recreation activities are primarily on lands within or immediately adjacent to the villages. Furthermore, some of the Native population believes recreational use of the land to be an alien concept. They view hunting, fishing, boating and camping and the like as a necessary part of their subsistence-based culture and not as an amenity activity as it may be considered by an outsider. NPR-A_ reports on Native livelihood and dependence provide more information on the Native viewpoints and uses of the land. Considering the large area of the Reserve, it is receiving very little recreational use -- about one percent of the total use statewide. Estimates of recent and projected recreation-oriented use in NPR-A are shown in the tabulation below. Activity Annual Visits 1977 2000 Backpacking 20 50 Floatboating 20 200 Sport Hunting 200 1,500 Winter Activities 10 50 Tourism 4,400 20,000 The recreational resources of the Reserve have relatively limited appeal to the visiting recreationist in comparison to many other areas of Alaska. In addition to the long distance from state population centers, costly aircraft access, lack of general public knowledge about the area, and the limited facilities and public services are limitations that are primarily physical and related to the comparative lack of recreation opportunities. The winters, including the period of twilight/darkness, are considerably longer than in the southern portion of Alaska. Most of the terrain is upland tussock tundra or wet sedge meadow, which is very difficult to traverse in the summer months. Most of the few navigable rivers contain enough *For fuller discussion of this topic, see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Recreational Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Studv Renort ?. Sectian 2 water for floating only a few weeks each year. Wildlife populations, with the exception of caribou and migratory birds, are usually widely scattered, and little is known about sport fishing potential. The greatest recreation-related assets are the expansive, untrammeled nature of most of the Reserve and the opportunity to view wildlife such as caribou, grizzly bears, wolverines, wolves and many species of birds (Plate 2). The locally abundant populations of some species combined with the relatively flat, treeless terrain makes the wildlife viewing opportunities in NPR-A better than in much of the state. The same characteristics also increase the chances for successful sport hunting (Plate 3). Moose, caribou and grizzly bears are the species most sought by hunters, although the animal populations are not dense. Big game hunting now draws several hundred people to the Reserve annually. The Utukok, Colville and Nigu-Etiviuk Rivers have outstanding features which make them suitable for inclusion in the National Rivers System as Wild Rivers (Plate 3). The Meade, Kuk-Ketik, Awuna and Ikpikpuk Rivers are not recommended by Heritage Conservation and Recreation Service for such designation because of low flow and lack of other attributes. Rivers are important as the only practical routes of cross-country travel through this Arctic environment when there is no snow cover. Current recreational use of federal lands in NPR-A, shown in the tabulation, involves primarily backpacking in the De Long Mountains area along the southern edge of NPR-A. Unlike the rest of NPR-A, much of the De Long Mountains area is free of tussock tundra or wet, bog-like terrain and, therefore, is more easily traversed by summer travelers on foot. This area also has the most varied scenery in the Reserve. Floatboating on the major rivers including the Colville, Utukok and Nigu-Etiviuk Rivers is also relatively popular. During the summer, Kasegaluk Lagoon offers unique opportunities to observe marine mammals and water birds and to travel by boat. The De Long Mountains area, the major rivers, Kasegaluk Lagoon, and the land area immediately around Barrow are areas currently receiving the largest portion of recreational use and/or will experience increased future use. Preserving these areas in their present natural condition and maintaining or improving existing access will be necessary to maintain and enhance recreational opportunities in the future. Most of the present recreation-oriented visits to NPR-A are associated with organized tours to Barrow. Virtually all tourism activities and facilities are currently in Barrow. Tourism in NPR-A makes up 2 percent of the statewide tourist activity. Tourism is expected to account for the greatest increase in total number of visitors to the Reserve in the future. The amount of increase, however, is dependent upon the development of additional visitor-oriented facilities and activities such as a Native culture center, guided trips to archaeological sites and other points of interest, scenic overflights and guided dog team or snow machine trips. 72° ‘ean Ss ALASKA ait LOCATION CHUKCHI SEA NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR NPRA STUDIES RECREATION RESOURCES, SECTION 3 PLATE NO. 1 Areas Providing Best Recreation Opportunities 2 ee HIKING / BACKPACKING TERRAIN (June - September) po __ FLOAT BOATING WATERS ARCHAEOLOGICAL SITES WITH INTERPRETATION POTENTIAL 1 Cape Simpson 2. Barrow area a Lr} eee cee Se ” CHUKCHI SEA ox FA Ser J 7 7 tk tk SAGAVANIR (PFS ot r XY NATIONAL PETROLEUM RESERVE - ALASKA us. O&PARTMENT OF THE INTERIOR NPR-A STUDIES, RECREATION RESOURCES, SECTION 3 PLATE NO. 2 Wildlife Viewing Areas HIGH EXPECTATION FOR VIEWING WILDLIFE 1 NPR-A Planning Tose, 1978, [ea] MODERATE EXPECTATION FOR VIEWING WILDLIFE Ee) LOW EXPECTATION FOR VIEWING WILDLIFE Wildlife observed during summer months unless otherwise noted 1 Dabler and diving ducks, shorebirds, phalaropea, all from species of loons (September); walrus, beluga whales and gray whales. 2 Geese, swans, dabler and diving ducks, gulls, terns, jaegers and loons. 3 Loons, diving ducks, gulls, shorebirds, walrus, bel whales, gray whales, snowy owls, tigers (spring) and Biaek Brant (spring = one 4 Geese, swans, diving and dabler ducks, jaegers, terns, loons, and moose (winter). 5 Caribou, grizzly bears and wolverine. 2 ALASKA LOCATION Map CHUKCHI TATASKA (Bnunaary Aporoximate)” Vf = = = = 3 z 3 SSS PRUDHOE BAY DEADHORSE @ ad] 3 3 ay" NATIONAL PETROLEUM RESERVE - ALASKA us. oepantwenT oF THE INTER NPR-A STUDIES, RECREATION RESOURCES, SECTION 3 PLATE NO. 3 Rivers Examined for Possible Indusion in the National Rivers System and Major Sport Hunting Areas MAJOR SPORT HUNTING AREAS WATERFOWL a) BIG GAME (Primarily for moose, sheep and grizzly bear) Ws AREAS OF EXCLUSIVE GUILDING RIGHTS RIVERS EXAMINED 7S" RECOMMENDED BY THE ADMINISTRATION AS WILD RIVERS ~7S.07 RIVERS RECOMMENDED FOR STUDY BY HR-39 (5/19/78) Wilderness Resources Ww 12 The De Long Mountains and Arctic Foothills offer excellent terrain for hiking, camping and skiing. There is virtually no established access to this large pristine area. Photos by HCRS. The Utukok River uplands are the site of the largest caribou calving ground in NPR-A. The area is currently undisturbed and important habitat for these animals, as well as large predators, which can be easily viewed in the treeless terrain. Photos by HCRS (3) and USFWS (4). Teshekpuk Lake is the largest lake in the Arctic and that area is the site of enormous congregations of waterfowl which use the lake and shoreline for molting, resting and staging for migration. The wilderness setting tends to reduce adverse dis- turbances during critical flightless periods. Pro- duction of invertebrates is essential to maintaining waterfowl! and provide opportu ies for research such as this sampling effort. Photos by HCRS (5) and T. Rothe (6). River bluffs along the Colville are critical pere- grine habitat and the site of other raptor nests. Primitive recreational opportunities along the river are outstanding, enhanced by the untrammeled character of the valley, particularly above Umiat. Photos by HCRS (7) and A. Burg (8). 9-10 Excellent boating opportunities are offered by Kasegaluk Lagoon. The lagoon is protected by barrier islands which are important to many types of waterfowl. Along the shore are permafrost features and other interesting features of the Arctic environment. Marine mammals can be seen from this essentially untouched shore. Photosby HCRS. 11-12 The undisturbed Ikpikpuk River corridor con- tains many outstanding examples of arctic plains topography, such as oxbows and meanders across the flat terrain. The area is also typical wet sedge tundra and important to waterfowl and other animals that prefer a wilderness setting. Several paleontologic features such as the mam- moth tusk exposed on the bluff in photograph II are also found in this river corridor. Photos by HCRS. Wilderness Resources Summary* Wilderness is defined by the Wilderness Act as an area where the land and its community of life are untrammeled by man and where man himself is a visitor. It is undeveloped federal land retaining its primeval character and influence, without permanent improvements or human habitation, and _ is managed so as to preserve its natural conditions. It is further defined as generally appearing to have been affected primarily by the forces of nature, with the imprint of man's work substantially unnoticeable, and to offer outstanding opportunity for solitude or primitive and unconfined types of recreation. Wilderness may contain ecological and geological features of scientific, educational, scenic or historical value. A Wilderness Area, by law, must be at least 5,000 acres in size. Five attributes are considered in the evaluation of wilderness quality of an area: 1) absence of nonconforming uses or activities which eliminate or tend to threaten the integrity of a wilderness resource; 2) the availability of high-quality primitive recreational opportunities such as floatboating, backpacking, camping, and wildlife viewing; 3) the presence of abundant and varied wildlife, particularly those species which the public has identified as '"wilderness-associated" and/or the existence of critical, untrammeled wildlife habitat; 4) an environment offering outstanding opportunities for adventure, excitement and challenge, as well as solitude and serenity; and 5) opportunities for nature study or informal outdoor education and formal scientific study. There are few potentially nonconforming uses or activities in the National Petroleum Reserve in Alaska (NPR-A) (Plate |). Barrow, Wainwright, Atkasook and Nuiqsut, and about 470,000 acres of land being conveyed to these villages, and airstrips and associated developments at Umiat on the Colville River and at Pitt Point on the Beaufort Sea coast are the major man-impacted sites. There are sites of seasonal habitation outside the villages but they do not affect the generally pristine character of the Reserve. The Land Resources and Visual Resources summaries also address current land use. Residents of the area travel throughout the Reserve in winter, usually by snow machine, for hunting, ice fishing, trapping and visiting. Recreational users of wilderness usually expect oustanding opportunities for adventure, excitement and challenge, as well as solitude, serenity and self- reliance. Virtually all of NPR-A offers these, in a setting 100 or more miles from centers of human activity (Plate 2). Access to these wilderness resources is difficult and costly because of their remoteness. *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Wilderness Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study Report 2, Section 4. Wilderness conditions are essential for maintaining certain types of wildlife, Particularly species that require large territories unaffected by man's activities. Opportunities to observe or possibly to hunt wildlife enhances the wilderness experience for visitors, and such opportunities are very good in parts of NPR-A._ Wildlife in NPR-A commonly associated with wilderness include grizzly bear, polar bear, wolf, wolverine, caribou, moose, Dall sheep, loon, gyrfalcon, peregrine falcon, golden eagle and ptarmigan (Plate 3). Areas of NPR-A having high wildlife values (Plates 4 and 5) include the Utukok River upland area and the Colville River valley. In summer the coastal plain north of latitude 70° supports a large number of waterfowl, Particularly along the Chukchi Sea coast near Icy Cape and the area north of an imaginary line between the north end of Skull Cliff on the Chukchi Sea and the Colville River delta. Areas notable for observing wildlife are the Teshekpuk Lake area, the De Long Mountains along the southern boundary of NPR-A, the Utukok uplands, and Barrow, Franklin and Icy Capes from which marine mammals may be observed in migration. In addition, NPR-A contains two landforms not now included in the National Wilderness System: the Brooks Range and Arctic coastal plain. The Reserve also has unique value for scientific study and has played an important part in arctic research, Particularly since the establishment of the Naval Arctic Research Laboratory at Barrow in 1947. The Reserve has many features typical of the environmental gradient between the Arctic coast and Brooks Range. (See Ecological Profile summary in Volume 2, Final Study.) Scientists have stressed the importance of formal research in tundra ecosystems like those in NPR-A. Investigating these simpler northern biological systems may bring better understanding of more complex systems and man's limitations in the environment. NPR-A contains a number of natural biological, geological and ecological features of possible national significance and/or of scientific interest (Plate 6). The Joint Federal-State Land Use Planning Commission for Alaska and others have pointed out the need for an Ecological Reserve System for Alaska comprising sites uniquely conducive to natural science research and education. Nine sites in or partly in NPR-A have been Proposed. In addition, 34 biological and geological sites in NPR-A are being considered for the National Register of Natural Landmarks. Areas of High Wilderness Value. Practically all of the 23-million-acre Reserve is in a primitive state and is essentially de facto wilderness. Few areas show signs of modern man's in- fluence and presence. Although almost all of NPR-A qualifies for the National Wilderness Preservation System, not all is equally suitable. Following is a description of those areas believed to be the more outstanding choices for wilderness status (Plate 7). De Long Mountains/Arctic Foothills. This 2-million-acre area (about 8 percent of NPR-A) along the entire southern edge of NPR-A provides many primitive recreational opportunities and has the greatest scenic variety of any part of NPR-A. The area is habitat for caribou, wolf, and grizzly bear and includes important migration routes. The area adjoins the Noatak River drainage, a reaion presentiv desianated as a Natianal Maniimant Utukok River Uplands. This 4.84-million-acre area encompasses the primary calving grounds of the western Arctic caribou herd. This region, important to caribou survival in spring, is also habitat for grizzly bear and wolf. The Utukok River, significant for floating, hiking and_ wildlife viewing, scenic quality, and its archaeological and cultural resources, as well as research opportunities, is proposed for addition to the National System of Wild and Scenic Rivers. The uplands area includes about 2! percent of NPR-A. Teshekpuk Lake Area. Teshekpuk Lake is part of a large (1.43 million acres) concentration area for waterbirds, particularly swans and geese that are susceptible to disturbance at times of nesting and/or molting. This area also contains unique biological and geomorphic features and offers excellent opportunities for research. The lake area makes up about 6 percent of the Reserve. Colville River Valley. The Colville River valley from the Nuka River to Ocean Point is believed to contain most of the prime nesting habitat in NPR-A for cliff-nesting raptors, including rough-legged hawk, gryfalcon and the endangered peregrine falcon. It also contains most of the winter habitat for moose in NPR-A. Primitive recreational opportunities are excellent along the river which has been proposed for addition to the National Wild and Scenic Rivers System. This segment of the valley contains about 2.75 million acres or l2 percent of NPR-A. Kasegaluk Lagoon. The part of the Chukchi Sea coast between Wainwright and Icy Cape contains a portion of one of the Arctic's best barrier islands-lagoon environments. Offering outstanding opportunities for scientific study, boating and sightseeing along the protected lagoon, the area is habitat for large numbers of waterfowl! and parallels sea mammal migration routes. The area encompasses 0.55 million acres, about 2 percent of NPR-A. Ikpikpuk River Corridor. Topographic and ecological features typical of the northern Arctic foothills and coastal plain included here are polygons, pingos, oriented and oxbow lakes, meander scrolls, beaded streams, and dunes. Also present are examples of lake basin development, waterfowl nesting habitat, wet sedge tundra, riparian willow groves, and many lichen types. There are several significant paleontological and archaeological sites and other opportunities for scientific research. The corridor area includes about 3.34 million acres or 14 percent of NPR-A. Alaska contains a very high proportion of the remaining wilderness-type land in the United States, particularly in units up to several million acres, which qualifies for inclusion in a wilderness system. After completion of transfers of state and Native land selections, between I5 and 20 percent of the remaining wilderness resources in Alaska will be in NPR-A. Opportunities for Management of Wilderness Values. Wilderness values in NPR-A can be protected by management that maintains Present conditions. The petroleum exploration program appears to pose the only serious immediate threat to wilderness values. Little need be done to enhance wilderness values. Compatible uses of wilderness, such as recreation, scientific and subsistence activities, could be enhanced by careful development of additional access. Development could be planned so as to ensure that disturbance of the wilderness character is minimal. tL 22° ALASKA BEAUFORT “y rmyonoe OAV DEADHORSE 7 pg ° fo i ° a SAGAVANI Ry, NATIONAL PETROLEUM RESERVE - ALASKA us. orrantwent oF rie inTeRIOR WILDERNESS RESOURCES, SECTION 4 PLATE NO. 1 Possible Nonconforming Land Uses and Activities LAND STATUS COMMUNICATION SITES NATIVE VILLAGE CORPORATIONS 474,570 acres & U.S. COAST GUARD - RACON . PEI stare oF acasear sso DISTANT EARLY WARNING LINE %® HUSKY OIL SATELLITE - EARTH STATION sj NARL 4,541 acres yr RCA SATELLITE EARTH STATION CURRENT INTENSIVE LAND USE ALLOTMENT APPLICATIONS Es VILLAGE AND COMMERCIAL « NATIVE ALLOTMENT APPLICATIONS = GAS PIPELINE © PETROLEUM TEST WELLS H 22° LOCATION CHUKCHI rundary Appromimate) wa = = = = 3 = = A resuexeuk S LAKE 152) NATIONAL PETROLEUM RESERVE - ALASKA us. D€ PARTMENT OF THE INTERIOR NPR-A STUDIES WILDERNESS RESOURCES, SECTION 4 PLATE NO. 3 Expectation for Viewing “Wildemess Associated” Wildlife eS HIGH EXPECTATION FOR VIEWING WILDLIFE ace crecrxrcn rc sioner munure TYPE OF WILDLIFE VIEWING BY ZONE Caribou, grizzly bear, wolverine Dall sheep, wolf, caribou Dall sheep, wolf Wolf, grizzly bear, wolverine Grizzly bear, moose, wolverine, ptarmigan Raptors, moose, grizzly bear easens x awl orem g ne 4 NPR-A me ty && \ ‘ LOCATION = MAP. H7 CHUKCHI ‘ ak ge Qo = ° z SAGAVANI Rg, 4 NATIONAL PETROLEUM RESERVE - ALASKA us. oepentMeNT oF THE INTERIOR NPR-A STUDIES WILDERNESS RESOURCES, SECTION 4 PLATE NO. 4 Wildlife Habitat Enhanced by Wildemess - Part | Oo ( POLAR BEAR SD™ __cnizzLy BEAR ANO WOLVERINE WOLF a4 DALL SHEEP ATIONAL PETR: & 2. ZY ty, 1 8 2 = i? \ Sond a Ms Qo } ‘ 12 NATIONAL PETROLEUM RESERVE - ALASKA WILDERNESS RESOURCES, SECTION 4 PLATE NO. 5 Wildlife Habitat Enhanced by Wildemess - Part Il ‘CARIBOU ‘SWANS PEREGRINE FALCON MOLTING GEESE TIONAL PETROLEUM RESERVE ~ ALASKA (Boundary APBrORIMa | A TroK SAGAVANIR OU en eS ~~ S ( INPROA STUDIES: 69° USS. DEPARTMENT OF THE INTERIOR 7° re LOCATION MAP CHUKCHI ~avonse bay Wrsy >PPPPP NATIONAL PETROLEUM RESERVE - ALASKA U's. OfPaRTMENT OF THE INTERIOR NERA STUDIES WILDERNESS RESOURCES, SECTION 4 PLATE NO. 6 Ecological, Geological or Other Features of Scientific, Educational or Historical Value SITES RECOMMENDED AS POTENTIAL SITES NOMINATED FOR PROPOSED: 4 _| NATURAL LANDMARKS by J.J. Koranda 2K ECOLOGICAL RESERVES (boundaries and C. D. Evans (1975). of proposed reserves undefined at this time) SITES RECOMMENDED AS POTENTIAL — @ ARCHAEOLOGICAL SITES WITH LANDFORM AND LIFEFORM NATURAL INTERPRETATION POTENTIAL LANDMARKS by USGS, R.L. Detterman (1974). Urpen COLVILLE RIVER © eannow erains @ _carnow- wrant Poin IKPIKPUK RIVER CORRIOOR @ weave river Pains @ oumarin aiven KUK-UTUKOK RIVER CORRIDOR @_ ICY CAPE-KASEGALUK LAGOON @ ARCHIMEDES IOGE CENTRAL MEADE Riven @ warewaiarer INLET -KUK RiveR © oISAPPOINTMENT RIDGE BARROW -WALAPKA AREA © waranea cay @ Looxour’ mioae Presto ee el ete ec Uae I ce Ue lee | H{ 72° ALASKA LOCATION MAP TESHEKPUK ‘S LAK Bs Src + 3} \ 3 } sk 3h hy é “Ct 12 i i NATIONAL PETROLEUM RESERVE - ALASKA us. o€pantMeNT oF THE INTERIOR WILDERNESS RESOURCES, SECTION 4 ig PLATE NO. 7 / is ee 4 H ae 3 Outstanding Wildemess Resource Areas and Their Wildemess Attributes a iS AREA ATTRIBUTES S SS COLVILLE RIVER VALLEY Wildlife and primitive recreation q 2 fr S Fy al DeLONG MOUNTAINS / ARCTIC FOOTHILLS Primitive recreation and wildlife \ : fe] IKPIPUK RIVER ‘Scientific research, ecological and paleontological features ae KASEGALUK LAGOON Wildlife, scientific research and primitive recreation lef Ke TESHEPUK LAKE AREA Wildlife and scientific research = = Visual Resources Class A scenic quality is found in the De Long Mountains where there is a high degree of contrast in landform, color and texture. Much of NPR-A is currently only seen from the air. Photo by USGS. 2-3 The foothills section of the Reserve is largely of Class B scenic quality. These rolling hills are typical. Photo by HCRS. The coastal plain is of Class C quality; it lacks the visual variety of other parts of NPR-A. Photo by HCRS. Snow covers NPR-A for more than half the year; it reduces color contrast and subdues land form. Photo by USGS. Oxidized minerals in the deposits in the De Long Mountains pro- duce pronounced color contrast and variety. Photo by USGS. Visual Resources Summary* In recent years environmental awareness has grown to include its visual component. Land managers and the public realize that the values and objectives of some land uses involve alteration of the natural landscape and differ from those of visual resource management. It is further recognized that scenic quality varies and it is not practical to provide the same degree of management to all lands. Therefore, methods have been developed to identify, evaluate, and manage visual quality. The objectives of this analysis are to depict the scenic quality and identify opportunities for rehabilitation, enhancement, and protection. Scenic Quality Evaluation The coastline, plains, ridges, foothills and mountains of NPR-A were divided into I6 landscape types called scenic quality rating units (SQRU) (Plate 1). A scenic quality rating of A, B or C was determined for each SQRU (fig. 4). Class A land has the highest, and Class C the lowest scenic quality. The scenic quality classifications are based on comparison of NPR-A SQRU's to each other and to Arctic Alaska. They reflect the Premise that all landscapes have some scenic quality, but those having the most visual variety, contrast and harmony have the greatest potential for being highly scenic. For approximately eight months of every year the water bodies, vegetation, and their colors are hidden under ice and snow, and the landforms are somewhat modified. A winter analysis of scenery determined that there was less visual variety and contrast in the winter and that cultural modifications were less evident. The effects of ice and snow were the same in all SQRU's. Therefore, the relative scenic quality of all SQRU's remained the same in summer or winter since the scenic quality rating is a comparison of the SQRU's to each other. Approximately 8 percent of NPR-A was rated Class A, 26 percent Class B and 66 percent Class C scenic quality (fig. 4). The De Long Mountains C(SQRU 16), Liberator Ridge (SQRU I5) and Colville River valley (SQRU 12) were rated Class A scenic quality. They provide the highest visual variety and contrast in landform, water, vegetation and color in NPR-A and possess distinctive characteristics that enhance their scenic quality. The size of Colville River makes it a memorable part of the Alaskan Arctic, and the riverine and upland landforms and riparian vegetation are distinctive in NPR-A. The Liberator Ridge area (SQRU 15) is notable for the variety of its landforms and colors. The De Long Mountains are distinctive massive landforms in NPR-A, but are not necessarily memorable if compared to the eastern and Central Brooks Range. *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Visual Resource: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study Report 2 Cartinn £ The Chukchi Sea coast (SQRU 01), Elson Lagoon (SQRU 02), elongated and oriented lakes (SQRU 06), western ridges (SQRU 09); Colville River valley (SQRU Il and 13) and the foothills (SQRU 14) were rated Class B scenic quality (fig. 4). The Chukchi Sea coast has moderate visual variety and contrast because of the sea, lagoons, beaches, bluffs, islands, spits and for eight months every year, sea and shore ice. The lakes area (SQRU 06) is similar to the rest of the wet plains, but the many lakes whose long axes are subparallel add a memorable element that leads to Class B rating. The upper Colville River valley (SQRU II) and lower Colville River valley (SQRU 13) have moderate visual variety and contrast because of their riverine and upland landforms, riparian vegetation, and combination of moving and standing water bodies. Landforms like the buttes, knolls, ridges, canyons and cliffs of the western ridges (SQRU 09) and foothills (SQRU 14) provide moderate visual variety and contrast. The Beaufort Sea coast (SQRU 03), Barrow area (SQRU 04), wet plains (SQRU 05 and 07), dry plains (SQRU 08) and eastern ridges (SQRU 10) were related Class C scenic quality (fig. 4). Sea and land appear to be at the same elevation along the Beaufort Sea coast which lacks prominent bluffs or beaches. The build-up of sea and shore ice is not impressive. SQRU Ol has Class B scenic quality, but because the natural landscape has been modified so much by Barrow, it was rated Class C. The wet plains, dry plains and eastern ridges are flat to rolling terrain, generally covered by low tundra vegetation and have little visual variety or contrast. There are thousands of lakes and numerous meandering rivers in the wet plains, but they are repetitious to the point of being monotonous. Distinctive and memorable elements of the wet plains are its flatness and_ virtually ubiquitous polygonal ground patterns caused by ice wedges. The naturalness of NPR-A landscapes is their greatest scenic attribute. Only 63 cultural modifications and some vehicle trails and scattered 55-gallon barrels were identified. Cultural modifications are here defined as any recent man-caused change in the land and water form, vegetation or addition of a structure that creates a visual contrast in the natural landscape (Plate 2). Cultural modifications are evaluated from the most critical viewing point(s), which are those from which people will most frequently see _ that modification. In NPR-A_ this is generally from the air. Cultural modifications without a vertical component are hard to see in flat terrain like the Arctic plains; if cultural modifications there had been evaluated only from the ground, their degree of contrast would have been lower. By determining which natural landscape elements (landform, water, vegetation, and structures) are changed and the amount of contrast created, the severity of a cultural modification can be determined. The severity is measured in terms of how easily the created change can be seen and is expressed as high, medium or low. High contrast demands attention, can not be overlooked, and dominates the landscape. Medium contrast is clearly noticeable but does not dominate the characteristic landscape. Low contrast can be seen but does not attract attention. In NPR-A, 41 cultural modifications have changed land and water form, vegetation and added structures to the landscape, creating a high degree of contrast with the natural landscape. Eleven cultural modifications added structures to the landscape creating a moderate to high contrast. The seven new test wells constructed in 1978 will be rehabilitated but still leave a high contrast in vegetation and moderate contrast in landform. Three cultural modifications changed the vegetation and added structures to the landscape, creating low to moderate contrast. The Inigok gravel pit changed landform but after rehabilitation will not be evident. Vehicle trails and sites where 55-gallon barrels were left create a low to high contrast, depending on the size of area they cover. Management Opportunities Cultural modifications creating a high or medium contrast were evaluated for rehabilitation potential. Rehabilitation would be accomplished by modifying the form, line, color, or texture of the cultural modification to reduce its contrast to low, or by elimination of the modification. Only 42 of the 60 sites creating a high or medium contrast had a good potential for rehabilitation by modification or elimination. The 42 sites are 37 oil and gas test wells, two DEWLine sites, the Brady staging area, the abandoned airplane at Noluck Lake, and litter around the Will Rogers and Wiley Post Memorial. Other sites having a high to medium contrast had a Poor potential for rehabilitation because they are still in use or inhabited. Opportunities to reduce the contrast of vehicle trails were considered to be low because no technically feasible method was_ identified. All sites consisting of scattered building material, barrels and litter could be eliminated. Enhancement is a short-term management alternative used to increase the visual variety where little or no variety exists at present. No opportunity is recognized to alter the scenic quality of NPR-A by enhancement. Exploration for oil and gas and development of new habitation sites and military facilities are having some adverse impact on scenic quality. However, visual resource management techniques are being used in project planning to reduce the initial contrast created by the development. Vehicle travel is now restricted to times when ice and snow conditions prevent scarring of the land surface. Husky Oil is removing much of the scattered building material and_ barrels. Potential uses of NPR-A_ that could substantially reduce the scenic quality are petroleum or mineral development and the creation of new habitation sites. To manage the visual quality of NPR-A, site-specific information is needed for locations and degrees of contrast for all cultural modifications and identification of technically feasible ways to rehabilitate cultural modification in the fragile Arctic environment. Minimum quality standards’ for management are expressed as Classes I-V (in Glossary). Each class provides objectives for maintaining or enhancing scenic qualities. Sensitivity to Change in Visual Quality Sensitivity to visual changes of landscapes results from inherent scenic qualities or the viewer's expectations. Areas designated as Wilderness, Wild or Scenic Rivers, or natural landscapes of statewide significance and areas AF lane A anne otal ee highly sensitive to change. Archaeological sites are areas where more change will be tolerated. Viewers will be even less sensitive to changes in Class C areas. Visual Distance Zones Distance zones were plotted for the areas seen from major travel routes and use areas to indicate the amount of detail and contrast that could actually be seen. This topic is covered in the Planning Area Analysis (Study Report 6). ne LOCATION MAP. Hi? BEAUFORT CHUKCHI ray TESHEKPUK LAKE SAGAVANIR (PNAS T, 3 ol] 152°) / NATIONAL PETROLEUM RESERVE - ALASKA us. oc PARTMENT OF THE INTERIOR NPR‘ STUDIES VISUAL RESOURCES. SECTION 5 PLATE NO. 1 Scenic Quality Units and Sites (Cultural Modifications) with Rehabilitation Potential UNIT NUMBER FOR SCENIC RATING HIGHEST VISUAL VARIETY AND CONTRAST 7. 4 SITE WITH POTENTIAL FOR REHABILITATION MODERATE VISUAL VARIETY AND CONTRAST Source: Bureau of Land Management; 1977-78 field studies for 105(c) Land Use Study of NPR-A Fa LITTLE VISUAL VARIETY AND CONTRAST Zone No. Geographic Location & Description] COASTLINE ‘Chukchi Sea coast Unit & Name and Type of Site No. Cultural Modification 1 ; Elson Lagoon & Dease Inlet {715 Topagoruk No. 1 Test Well 2 Rooters See cont [114 Will Rogers & Wiley Post Memorial {7]6 — Topagoruk No. 1 Test Well - Sarron [2]1 Barrow Gas Well No. 19 (717 North Simpson No. 1 Test Well WET PLAINS [3]1 DEWLine Site - POW-A [7]8 — Minga No. 1 Test Welt R/ 7 Large water bodies [3]2 Drew Point Test Well {7}9 Simpson No. 1 Test Well ig 6 Oriented lakes [314 W.T. Foran No. 1 Test Well (7}10 South Simpson No. 1 Test Well if 7 Remaining wet plains [3]5 DEWLine Site - POW-8 (7]11_ Ikpikpuk Test Well DRY PLAINS [3]6 — Antigaru Point No. 1 Test Well [7] 12 Cape Halkett No. 1 Test Well 8 Ory plains [3]7 South Harrison No. 1 Test Well (7 13 North Kalikpik Test Well RIDGES, {512 South Teshekpuk Test Well 17) 32 eee Ra Covet es Tes en | Pccan H 72° ALASKA a LOCATION MAP. BEAUFORT Hz" >\pRuDHOF £ A & # PRUDHOE BAY @..0 # DEADHORSE @ 6 es ff ¥ 4 ef - ° ’ +5 ss 1 NATIONAL PETROLEUM RESERVE - ALASKA us. DeParTMENT OF THE INTERIOR NPRA STUDIES. Figure 4. DISTRIBUTION OF VISUAL RESOURCE VALUES Scenic Quality Classification: ‘ALASKA (Berundar Class A: highest visual variety and contrast Free] Class B: moderate visual variety and contrast = = = 3 Class C: little visual variety and contrast 1 PET RO: 8 ws LOCATION CHUKCHI a resHeKeuk ° fasts, TE En 209 peter so BEAUFORT SEA Ts. cow wate] Y_¢ © Tre mmaja® ars iwi) © 5 \ [TOTS Moa a aap mei) Thora, Mea] =) 17273 (Me) : Inventory of Sites (Cultural Modifications) for Visual Resource Management Unit & Site No.——, __ -—— Anticipated Success Tait, Me! vasa mei | AO oo rm) NG i \ I\ & 5 \ " 152) 74 VISUAL RESOURCES, SECTION 5 PLATE NO. 2 CULTURAL MODIFICATION SITE 4 HIGH VISUAL CONTRAST CREATED 7 a 1 LandMWater form ‘MEDIUM VISUAL CONTRAST CREATED 2 vepnation 3 Structure Unit & Site No. at (2 (3 (4 as tie a7 (8 (aia LOW VISUAL CONTRAST CREATED Source: Bureau of Land Management; 1977-78 field studies for the 105(c) Land Use Study of NPR-A. Name and Type of Cultural Modification [6]1 Teshekpuk Airstrip Tunalik Staging Area {5]2 South Teshekpuk Test Well Village of Wainwright [6] Kugrua Test Well Peard Bay Staging Area {6]2 Village of Atkasook Will Rogers & Wiley Post Memorial [6]3 South Meade Test Well ‘Communications Tower [6]4 South Barrow No. 3 Gas Test Well ‘Communications Tower [6]5 Barrow Gas Well No. 14 Communications Tower [6]6 Barrow Gas Well No. 17 Communications Tower [6]7 tko No. 1 Gas Test Well Barrow Gas Well No. 19 {6]8 Barrow Youth Summer Camp ss \ be} NATIONAL PETROLEUM RESERVE - ALASKA %) «ff =} } x Sk 2} 3h a . ol US. DEPARTMENT OF THE INTERIOR INPR-A STUDIES [10] 2, Low 1/2/3 (ME) (ya (7112 (7113 (714 (7115 (716 (717 (718 (719 (alt favs Ikpikpuk Test Well Cape Halkett No. 1 Test Well North Kalikpik Test Well we Fish Creek No. 1 Test Well Creek No. 1 Test Well lage of Nuigsut igok Test Well DEWLine Site L123 Inigok Gravel Source Kaolak No. 1 Test Well Tivaluke Nov 1 Tact Walt Fish and Wildlife Resources 7-8-9 Many species of dabbling and di 10 11 12 13 Caribou are important not only to the subsistence lifestyle of the Inupiat but also as an ecosystem. Photo by J. Davis. The Utukok uplands have been the site of most calving activities for many years. Photo by P. Lent. After calving, caribou form dense, rapidly moving aggregations that travel to take advantage of greening vegetation. Photo by P. Lent. The Colville River valley supports the largest popula- tion of moose north of treeline in Alaska. Excellent browse and cover is provided by the riparian vegeta- tion. Photo by J. Coady. The southwestern part of NPR-A supports an unu- sually large Arctic population of grizzly bears. The bears scavenge on caribou but also forage for roots and prey on ground squirrels. Photo by C. Hardy. Female polar bears use the coastal area of NPR-A for denning, travelling with their cubs to the Arctic ice pack in the spring. Photo by USFWS. ng ducks use parts of NPR-A for nesting, molting and staging for migration. The most common ducks are the pintail (7) and oldsquaws (8-9). Photos by R. Rothe. The shoreline and mountain passes of NPR-A are routes of spring and fall migration. These white- fronted geese are heading south. Photo by USFWS. This young gyrfalcon is not a common sight in NPR-A. Raptors use many of the ecological zones in NPR-A for foraging. Photo by J. Haugh. The cliffs along foothill reaches of NPR-A rivers offer nest sites for many raptors, including the endangered tundrius subspecies of the peregrine falcon, Most raptors use a nest site year after year. Nesting success may be adversely affected by dis- turbances. Photo by U.S. Dept. of the Interior. Arctic grayling are among the most common fish in NPR-A streams. These fish overwinter in deep pools and travel to other stream sites for spawning. Fish grow more slowly in Arctic environments than in more temperate areas. Photo by USFWS. Fish and Wildlife Resources Summary* Fish and wildlife populations and the habitats on which they depend are the predominant renewable resources of the present National Petroleum Reserve in Alaska (NPR-A). These populations have sustained the indigenous people for many centuries and continue to supply a significant portion of the food requirements of persons living in and around the Reserve, as well as other products that supplement local incomes. Migratory birds using the Reserve are of high national and international significance. Areas of overall greatest value for key wildlife species, exclusive of caribou, are depicted in figure 5. Information on caribou and further details on other wildlife species and key fisheries species are displayed in subsequent figures and plates. Habitats for fish and wildlife on the Reserve are generally pristine. Only minor, localized modifications have resulted from man's activities. However, activities including harvests by man have significantly altered the size and composition of populations of several species. Both the high degree of natural variability over time in Arctic ecological systems and our lack of knowledge regarding how such systems function complicate management of fish and wildlife systems on the Reserve. Lack of accurate harvest data is a critical problem in management for optimum sustained yield. Terrestrial Mammals Twenty species of terrestrial mammals occur regularly and have established breeding populations on NPR-A. Of these, eight species are considered here because of their direct economic importance or recreational and scientific value. The polar bear is also discussed because it uses the coastal zone of NPR-A for denning. Two additional species, the muskox and tundra hare, have been recommended for reintroduction to the Reserve. Several large mammals, notably grizzly bears, wolverine, caribou and moose, occur in a wilderness setting and in a tundra environment that makes them both highly suited for viewing and highly vulnerable to dis- turbance and harassment. The abundance of these species in parts of NPR-A is apparently unsurpassed in other Arctic areas. Moose. The population of approximately 1,200 moose on and adjacent to NPR-A is the largest beyond treeline in North America. Most of these moose are located in the Colville River drainage (Plate |, fig. 5). Riparian habitat along the major streams provides critical food and cover during the winter and is used throughout the year. Some dispersal occurs in summer, *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Fish and Wildlife Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, 4 ean and moose may even be seen occasionally on the coastal Plain. An area along the Colville River and its tributaries has been previously recommended for protection as a sensitive area for moose. The moose population on and adjacent to NPR-A has exhibited a high reproductive rate and high over-winter survival of calves when compared to "interior" Alaska. The potential limiting factor for moose on NPR-A is probably a combination of the availability of riparian habitat in winter and severity of winter weather. To sustain the current populations, habitat should be maintained in its present state, and activities that would destroy or alter riparian habitat should be avoided. The reported annual harvest of moose in the Colville River drainage is approximately 50, but the actual harvest may be close to the estimated potential average sustained yield of 100 to 150 moose. Continued monitoring of the status of the moose population is needed through collection of data on harvest (including location), reproductive rate, overwinter survival, population size and movement, and habitat use patterns. Caribou. Caribou numbers in northwest Alaska were at a low at the end of the nineteenth century. At that time they were limited primarily to the interior portion of the Arctic Slope. Numbers increased in the twentieth century and apparently reached a peak of 250,000 or more in the 1960's. Following a marked decline in the early 1970's, the population was estimated to be approximately 75,000 in the summer of 1977, but it has increased somewhat since then. Since the early 1960's there has also been a decline of the proportion of adult males. This population ranges over an area of 150,000 square miles (mi?) or more in northwest Alaska at the time of maximum dispersion in winter (fig. 6). The caribou population is the paramount terrestrial wildlife resource of northwestern Alaska, shared by local residents on and beyond NPR-A and north and south of the Brooks Range. Prior to 1976 the estimated average annual utilized harvest was approximately 25,000. Almost all adult females in the population use the western foothills of the Reserve for calving during late May and early June of each year (Plate 2). This is believed to occur in response to the favorable conditions of relatively thin snow cover and early snowmelt that result in early flowering of the dominant cottongrass tussock vegetation of the area. These flowering parts are the major food items of cows during calving. The same general calving area has been used since at least the nineteenth century, in spite of dramatic population fluctuations and shifts in winter ranges. Movements after calving result in increased use of areas at higher altitudes and of alpine tundra areas. At this time the population is mostly concentrated in aggregations of many thousands. Subsequently dispersion occurs, and a large portion of the population occupies summer ranges on the coastal plain of NPR-A. The coastline and coastal waters are frequently used during the period when flying insects are very abundant. Southerly movements occur in late August and September, when large numbers of animals cross through the middle and upper Colville drainage and leave the Reserve for winter range. Others leave across the western boundary of the Reserve or remain on the northern portion of NPR-A (Plate ?) H 72° LOCATION MAP CHUKCHI SEA SEA NATIONAL PETROLEUM RESERVE - ALASKA us. DEPARTMENT OF THE INTERIOR NPR-A STUDIES FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 1 Distribution of Moose and Sheep WINTER DISTRIBUTION OF MOOSE I sc cnr, nr an 125 roe i eS MEDIUM DENSITY, 0.25- 1.0 per square mile DISTRIBUTION OF DALL SHEEP ES APPROXIMATE DALL SHEEP DISTRIBUTION (Alaska Dept. of Fish & Game, 1973) WY AREA SURVEYED BY ALASKA DEPT. OF FISH & GAME, SUMMER 1977 @ —_DALL SHEEP SIGHTINGS (shows location only and not the number of sheep seen) ; T 176 ‘ O 4 cA R : ce = ALASKA , . . yy : 4 X N a ~ Se : < - > ,) : ocation —M Pine ( in os = ae ™® . “100 set Rigid mous a? — So i oe oo rj BEAUFORT = se | me CHUKCHI a A { Pi, \ Jone i = ‘otiktok PE, ee © pmuonoe BAY o ; DEADHORSE @ ee ae ork ih I <fBacworl i f ne? NATIONAL PETROLEUM RESERVE - ALASKA us. Onna ren: OF tt te INTERIOR Figure 5. DISTRIBUTION OF WILDLIFE RESOURCE VALUES a: of highest overall value for waterfowl and shorebirds Area of critical use for molting geese 4] Area of known high density, grizzly bear I 1 Peregrine falcon critical habitat @ Current or historical nest sites Moose density zones (winter) n° 16" 160" LOCATION MAP 132%) PLATE NO. 2 Examples of Caribou Movements and Distribution Patterns HIGH DENSITY AREA, Winter 1976-77 MAJOR WINTERING AREAS ON RESERVE, 1977-78 SOUTHERN BOUNDARY OF WINTER, DISTRIBUTION, 1976 - 77 TESHEKPUK CALVING AREA, 1976 TESHEKPUK CALVING AREA, 1978 POSSIBLE MINOR CALVING AREAS, 1976 NATIONAL PETROLEUM RESERVE - ALASKA us. DEPARTMENT OF THE INTERIOR FISH & WILDLIFE RESOURCES, SECTION 6 ae ve 3 = ° x) ASLNIES 194 SAGAVANI RK pom noe N NPR-A STUDIES SPRING MOVEMENT PATTERNS TO MAIN CALVING AREA POST-CALVING, EARLY SUMMER MIGRATION PATHWAYS. 1, 2,3, 4, 5 = variations used in different years. PD cre summen- FALL MOVEMENT PATTERNS Caribou movements and patterns are adaptive responses to provide for habitat requirements in a variable environment. Anything that affects the timing of adaptive movements and range occupancy patterns will adversely affect the well-being of the caribou population. Thus a holistic habitat Management plan that encompasses the entire Reserve, indeed the entire range of the population, is required. For the development of specific habitat management and regulatory recom- mendations, the Reserve has been divided into five zones: the migratory use zone, the calving zone, the summer use zone, the zone of year-round occupancy, and the zone of winter and summer use. These are shown in figure 7. The zone of year-round occupancy around Teshekpuk Lake has been regularly used not only in winter and summer but also by a small (about 3,000 in 1978) calving group (Plate 2 and fig. 6). Further research is needed to determine whether this is indeed a distinct sub-population. In the past, severe conflicts have existed in northwestern Alaska between the ideal management regime for caribou and attempts to develop a viable domestic reindeer industry. The long-term effects of genetic intermixing between reindeer and caribou are not known. At present no reindeer husbandry is practiced on NPR-A. Wherever domestic reindeer husbandry and wild reindeer or caribou have overlapped, they have been incompatible. Because of the decline in caribou numbers in northwestern Alaska, efforts have been made to restrict the annual harvest and to better estimate the harvest through institution of a permit system for the Western Arctic Herd. From July |, 1976, to July |, 1977, the harvest was estimated to be between 2,700 and 3,500. The management goal was to limit harvest to 3,000 males. At least one-fourth of the caribou harvested were taken on NPR-A. Predation by wolves in the 1970's has been estimated to account for mortality of approximately six percent of the caribou population annually. Most of this predation takes place outside of the Reserve. Reduction of wolves by harvest above the maximum sustained yield level could reduce this mortality. Pending further research, restoration of the western Arctic caribou herd to about 150,000 animals is considered a desirable interim management goal. Given certain conditions, this goal should be achievable over the next decade while also permitting an average annual harvest of up to 6,000 caribou. However, the harvest level must be lower in initial years and must be adjusted each year based upon close monitoring of the population. Rational management requires an improved base of knowledge from intensified research and monitoring of both harvest and_ population Parameters. Sheep. Approximately 400 Dall sheep live in the De Long Mountains (Plate 1). Dall sheep population densities in and adjacent to NPR-A are lower than in the eastern Brooks Range. Since most sheep are found near the crest of the De Long Mountains, it is likely that there is a high degree of interchange and movement across the divide into the Noatak drainaae. Until 1977 the annual harvest of legal rams on NPR-A was believed to be below the maximum sustained yield. In 1977 the harvest probably reached or exceeded this level; thus, there is now a need for more detailed population data. No detailed studies of Dall sheep have been undertaken; therefore, winter ranges, summer ranges, lambing areas, mineral licks and movement corridors need to be identified and appropriately protected. Bears. The approximately 450 grizzly bears in NPR-A are found primarily in the Brooks Range, foothills and major river drainages (Plate 3 and fig. 5). The grizzly bear densities in the Brooks Range and foothills of NPR-A are considerably higher than those in similar areas of the eastern Brooks Range. The highest density (about | bear per 20 mi2) occurs in the southwestern part of the Reserve. The grizzly bears of southwest NPR-A are known to utilize caribou calves during the spring as an added source of protein both by scavenging and Predation. The actual bear predation rate on caribou is thought to be insignificant in comparison to other mortality factors. The annual harvest of grizzly bears is now approximately at the maximum level for sustained yield. Population and harvest data should be collected on a continuing basis for proper species management. Based on experience elsewhere, it can be assumed that conflicts detrimental to grizzlies will occur if major development activities are initiated on the Reserve in preferred bear habitats, such as in the river valleys and foothills of southern NPR-A. Wolves. Densities of wolves on NPR-A are low and range from | per 150 mi2 tol per 200 mi2. The maximum number on the Reserve is probably less than 200. The higher densities occur in the foothills and mountains of the southeastern part of NPR-A (Plate 4). Wolves are believed to have increased somewhat since 1970. By way of comparison, wolf densities on the south side of the Brooks Range average about | per 75 mi 2. Wolves in this area depend primarily on caribou, moose, and Dall sheep for food throughout the year. Preliminary evidence shows that some wolves leave NPR-A and the Arctic Slope to follow migrating caribou long distances to caribou wintering areas. Wolves and man are now competing for the limited caribou resource through- out the range of the Western Arctic Herd. The harvest of wolves on NPR-A is believed to be currently close to the maximum sustained yield. For short-term caribou management goals, some reduction of wolf numbers in northwest Alaska is desirable. However, most effective reduction of Predation on caribou would mainly involve reduction of wolf numbers on caribou wintering areas south of the Brooks Range. Because wolves are a valuable resource in themselves, of importance to local village economics and nonconsumptive use, habitat should be maintained in its present status. Improved harvest records, together with carcass Figure 6. RANGES OF ARCTIC CARIBOU HERDS [] Normal limits of distribution, Western Arc- tic Herd Calving zone, Western Arctic Herd WW Major wintering zones in recent years, Wes- tern Arctic Herd ———— Approximate southern boundary summer distri- bution, Western Arctic Herd Ess] Approximate limits of distribution, Central Arctic Herd ee] Approximate western limit of Porcupine Herd SS Calving areas around Teshekpuk Lake,1976-1978 |seneireheteipeaneenineneneennncnann Kw “ | : ALATNAY SEWAKD PENNISULA [io ow 2 0 omes | 4 + ~ = 7 x = 5 =: + = : act o “S + a OD : ue s g ~ 7 > = Ss > 2 x = 3 S 3 < o< S 3 2¢ 2 3 o c = ~ 3 Zz c © % < a . s c a 3 x 3 N 3 2 = oo o N £ = 3 Ge 3 w £ L I x Ss 5 o° ¢$ 2 S 8 S o a 3 qe > 8 3 a S 3 $ z ° < . +. 3 + é6 OE FS ££ FF 2 8 % i 8 3 ce an o OF E @ © = ail D> 2 € c < Te nN = 3 3 i} ° AAS = Oo A N N het o ae > HAR M77 = a 12N, Le v OCEAN oa? 154 1 AYVAGNNOH W-4dN IZsre \ ay >\ ssi AY a Lis AEN LEAS DAS SSSI PIAS AIA IATA SN SOOT I NDT | S12 XS AANA NS SALT = FN RN REISER 0 a a q a ° c z € £ uw € o a RS} RS B GO 4 ~ KR 8 fb sy O I 2 3 i Qo o 2 2 = O,e > x g 5 8&8 7 $ z Az, x = <= 4% ZA 2 2 ZA 2, AAAS. ° = INANE PEELE LEI ILL ELIE ER Une stto VUE PRTC HIN ‘ Sere S277 C47, ° PAIS KES S$ 07, an CALE ZAAAS “ = S SS TDF ZALES AEE ee wvaqy 3} YS NE oo Lo LL LL6 > MMM TIE NMOL ELLE LEE LOPE LOL LEO EEO NT, b_ MTS 8 ° NIZA SINZS OZ, LLEA AO LIL LE477, 222225 277052) 309 2 oj ¢ El eNO NRL LEE LELELE LPOG ELE GOO OILS. r > a [ EQS EOSIN LEE LEELLLLLEEE LLL ELIE EEL LEE IN," he Cag $3 ° y x <t7¥> dS lee Meee lille licccre tsi loccc7e XN ~ ” 7 SSA O77 =, 7, SAA7 2, e777, 2777, vir” 3 v7 o ~ AZZ, AALS ZAALE AOOEL. ao S 717 REN AXES LELLE LLLE SELLE + yas nity 2705S AAO. COLES Ze7th res ye ato = DOMAIN BRN IME LILLE AAO ILL LEA OOO LLL ELA OO OLS. Os eae N25 LELLELEL EDEL LEED OIE Ay wy 8 : Bye LG SINE LEE ELLE EE IEE LIL ELI IIE 24. » a 4. A AOL $ + OME LLL EIEIO OOA, <nS Wolverines. Wolverines are found throughout NPR-A but are most common in the Brooks Range and foothills (Plate 5). The population status of wolverines on NPR-A_ is’ unknown; however, preliminary observations suggest that there are more wolverines in the southern portion of NPR-A than in other parts of the Arctic. An estimated summer density of one per 70 mi2 is reported. Riparian areas in the foothills are important for both wolverine denning and feeding and should receive special attention for habitat protection. Although precise statistics are lacking, the harvest of wolverines on NPR-A has apparently increased in recent years and shifted away from the coastal areas (Plate 5). It is not known if this is due to increased hunting and trapping pressure or to an increasing wolverine population. In 1977 the total harvest for the Arctic Slope may have been as high as 60 animals. Although the population seems to be in good condition at present, population and harvest parameters need to be monitored closely. The effects of harvest pressure and use of snow machines on the coastal plain is especially in need of close attention. Foxes. The Arctic fox population of NPR-A undergoes cyclic fluctuations which are influenced by lemming cycles. Foxes are also subject to recurrent outbreaks of rabies, such as occurred in the Alaskan Arctic in 1976. Arctic foxes are limited mainly to the coastal plain (Plate 4). They den in pingos, dunes, ridges, river banks or old lake shores. The areas important for denning and feeding should be maintained in their present status. Artificial food sources such as garbage dumps can cause abnormal concentrations of Arctic foxes and cause health hazards and locally increase predation on nesting birds. Arctic foxes also apparently act as sources for transmission of rabies to other species, notably wolves. The harvest in and around NPR-A in recent years is considered to be low in relation to levels achieved elsewhere in the Arctic. A potential for increased harvest apparently exists. However, better population and harvest information would then be needed to manage the species. No population or harvest data are available on the red foxes of NPR-A, although the species is currently a valuable fur bearer. It is generally believed that red foxes have increased in abundance and extended their range in Arctic Alaska in recent decades. Nevertheless, they are still relatively rare on the coastal plain. Most red foxes den in high brush along water courses (Plate 4). They feed on small mammals, birds and insects, all of which are found in foothills or riverine high-brush habitat. Loss of such habitat would probably result in proportional declines in population level. Polar Bears. There are two relatively discrete subpopulations of polar bears in the Alaskan Arctic basin. Movements occur between these subpopulations and also between populations in the American, Canadian and Soviet sectors of the basin. The number of polar bears seen along the coast in recent years has increased. It is not known if this is due to a real increase in numbers or due to more bears approachina the coast - LOCATION MAP. ? i = S e : z : 5 > ond 7 3 TESHEKPUK xe Ves, } HC “Aen, ee ae "30% Ba ite. KG Pp \ st AY ee Aig Pe 8 Zo) 4 gee BG 2 oe X v nd j “fe... « 5° Sacwon Xx =f ‘, 3h % xf X lilies WY 3h 8 \\ af . J YX él 69"| 132° f Nae AN il NPR‘A STUDIES FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 3 Grizzly Bear Densities and Polar Bear Den Sites and Sightings GRIZZLY BEAR DISTRIBUTION COASTAL HABITAT ZONE, approx. 1 per 300 square miles fee] NORTHERN FOOTHILLS ZONE, approx. 1 per 36 square miles eal MOUNTAINS ZONE, approx. 1 per 100 square miles ea SOUTHERN FOOTHILLS ZONE, approx. 1 per 60 square miles UTUKOK UPLANDS STUDY AREA, approx. 1 per 20 square miles POLAR BEAR NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR = ALASKA LOCATION MAP 4. BEAUFORT CHUKCHI Creek ~~ Shemingsteh np Stee NATIONAL PETROLEUM RESERVE - ALASKA U5. DfPARTMENT oF THE INTERIOR NPR'A STUDIES, FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 4 Wolf Densities and Movements and Arctic and Red Foxes Important Denning Habitats WOLF DENSITY ZONES ARCTIC FOX Wo BEAST. sworn tow srmaremin [>] SOME TAN AReas FoR SOUTHERN LIMIT OF POTENTIAL DENNING HABITAT FOR ARCTIC FOXES MEDIUM DENSITY, approx. 1 per 150 square miles —=" =" LOW DENSITY, approx. 1 per 200 square miles RED FOX WOLF RANGES a IMPORTANT RIPARIAN HABITAT FOR RED FOXES SUMMER HOME RANGES OF THE ILIGLURUK (western) AND ANISAK WOLF PACKS f@ A WINTER LOCATIONS OF ILIGLURUK AND 160" 162" Mar LOCATION - BEAUFORT CHUKCHI IS / 4¥arNvavovs 694 US. DEPARTMENT OF THE INTERIOR INPR‘A STUDIES: - ALASKA NATIONAL PETROLEUM RESERVE FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 5 Wolverine Sightings and Harvest Locations SIGHTINGS OF WOLVERINES IN BEE AND HALL (1956) A SL ayant eS een, ew uNTay yt SIGHTINGS OF WOLVERINES, 1977 and 1978 a RIVER © APPROXIMATE HARVEST LOCATIONS OF WOLVERINES BOUNTIED IN THE 1960°S 54 WOLVERINES BOUNTIED FROM THIS AREA © APPROXIMATE LOCATIONS OF KNOWN WOLVERINE HARVESTS IN 1972 - 1978 oe. oO ta VND ee Pregnant females seek out denning sites in October and November in snow- drifts in three basic habitat types: drifting pack ice, landfast ice, and on land within 20 mi of the coastline. The proportion of polar bears denning on land is unknown. Plate 3 shows the location of denning or post-denning polar bears sighted in recent years, as well as the areas in the coastal zone considered most important for denning use. Increased development and human activity in the coastal zone during the winter months (October through April) could lead to the loss of denning habitat or interfere with movement to or from denning areas. Continued collection of population and harvest data and better definition of the role of on-land denning use are needed. The harvest of cubs or sows with cubs should be prohibited. Harvest may now be reaching the level that occurred before use of airplanes for hunting was prohibited. Present harvest should be monitored closely with a view to possible alteration of legislative and regulatory status. Muskoxen. Muskoxen existed on the Arctic Slope of Alaska, including NPR-A, until about the 1870's. Skeletal remains of recent origin have been found over much of NPR-A. There is no evidence that habitat changes were responsible for the extirpation of muskoxen on the Arctic Slope; rather, it was probably due to introduction of firearms coupled with a naturally low density population level and increased hunting pressures. A viable muskoxen population started from introductions in 1969 and 1970 now exists in the Arctic National Wildlife Range. This area contains habitat similar to that found on NPR-A, and, therefore, reintroduction of muskoxen on NPR-A should be successful. Muskoxen need the following habitat protected for their successful reintroduction: summer range (shrub and grass areas including river valleys) and winter range (areas of coastal plain and foothills that generally have a snow cover of one foot or less). Such habitat is most extensive in the western half of the Reserve (Plate 6). Reintroduction of muskoxen to NPR-A could provide an additional resource for both consumptive and nonconsumptive uses and restore a missing com- ponent of the natural ecosystem. Tundra Hares. Tundra hares are believed to have been present on NPR-A until the 1890's. So far as is known, this species is now absent on the Arctic Slope. Tundra hares typically are found in upland tundra and shrub areas, and both habitats are found on NPR-A. It is believed that existing habitat could support tundra hares (Plate 6) and that their reintroduction would not result in significant competition with other herbivores. If reintro- duction were successful, the species would be available for nonconsumptive and consumptive users. Birds An estimated 16.5 million migratory birds were found on NPR-A in Julv 1977. The duck population on NPR-A in 1977 was believed to be somewhat higher than average. The greatest densities of dabbling ducks (pintails, mallards, green-winged teal, baldpate, and shoveler) occurred within 30 mi of the Arctic coast (Plate 7). Pintails made up 89 percent of all dabbling ducks observed in 1977 and 85 percent in 1978. Pintail populations were significantly smaller in 1978. Diving ducks (oldsquaw, scaups, scoters, Steller's, king and common eider) reached their high densities within 30 mi of the coast between Peard Bay and Smith Bay and 10 mi inland from Wainwright to Icy Cape (Plate 7). Oldsquaw made up 83 percent of all diving ducks observed in 1977 and 60 percent in 1978. The Teshekpuk Lake Special Area contains some of the most important habitat for both groups of ducks. Presently, habitat loss has been limited to the immediate area of petroleum exploration activities and of residential and military use throughout NPR-A. Harvest levels on NPR-A are not known, but a significant amount of subsistence hunting is done for eiders in the Point Barrow area. At present little opportunity exists for legal sport hunting of most waterfowl species because they usually leave the Arctic before or around the start of the hunting season. Habitat management for ducks in NPR-A would include protection and main- tenance of the habitat in its present condition. Developmental activities or habitat alteration should be examined on a case by case basis to determine what types of wetlands may be impacted and to offer alternatives that would eliminate or at least decrease the amount of impact. The lagoons along the coast of NPR-A provide important habitat during the migration periods for eiders and many other species (fig. 8). Alteration of the lagoons or barrier islands could be detrimental to this use. Species population management at present can be accomplished effectively by hunting regulations on migratory routes and wintering areas outside of NPR-A. Subsistence hunting places the most pressure on eider populations and needs to be monitored more closely on the Arctic coast. Many of the pintails that utilized NPR-A during 1977 were nonbreeders. These were believed to be drought-displaced birds from other areas. NPR-A provides critical alternative habitat necessary for survival of these birds. The four species of geese regularly using NPR-A are the white-fronted, brant, Canada and lesser snow geese. The white-fronted goose is the most numerous and widely distributed of these on NPR-A. Population estimates for this species in NPR-A were 53,700 in 1977 and 47,800 in 1978. These numbers represent approximately 27 percent of the continental population. Approximately Il percent of the world population of brant used the Teshekpuk Lake area for molting in 1977. Approximately 17,000 Canada geese, or 6 percent of the Alaskan population, used the Teshekpuk Lake in 1977, and they make up approximately 0.5 percent of the continental population. Four hundred lesser snow geese or less than one percent of the lesser snow geese in the Pacific flyway used NPR-A during 1977. Areas containina hiahest densities of aeese are shown in Plate 8. 2° * ALASKA LOCATION MAP. BEAUFORT resumxruk KONG HE negro y LAKE : Ay \GWON! % 2} ) af 2 N sh fies? Ir . 694 na" f \\ NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR INPR‘A. STUDIES FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 6 Best Potential Habitat for Muskox and Tundra Hare MUSKOX AREA CONSIDERED TO CONTAIN BEST POTENTIAL HABITAT FOR MUSKOXEN TUNDRA HARE H 22° LOCATION MAP CHUKCHI WAINWRIGHT, BEAUFORT SEA BAY PRUDHOE BAY DEADHORSE e A rOK ¢ SAGAVANIR 69" OOhiKk 1 USS. DEPARTMENT OF THE INTERIOR 1 NATIONAL PETROLEUM RESERVE - ALASKA FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 7 Duck Distribution and Densities DISTRIBUTION OF DIVING DUCKS DISTRIBUTION OF DABBLING DUCKS HIGH DENSITY, more than 15 per square mile LOW DENSITY, 0-5 per square mile LOW DENSITY, 1-5 per square mile —— SOUTHERN LIMIT OF OBSERVATION seeeeese SOUTHERN LIMIT OF OBSERVATION o O ra’ 152° 150° 162° 160° 158) é ~. Gulls, terns and phalaropes ARCTIC OCEAN + : S + + Point Franklin ya + * dmirdl LQ) Smith y Bay b e Bay Qi) 99 4 > Cape Halkett D @ or QB » ¥ < ') ; ys Harrison BEAUFORT = SEA™ Bay yy NUIQSUT LEAD: White-fronted geese xé. SND ese White-fronted ge ? Gi GES NPR-A BOUNDAR Y- WA wel . a” . . == . Figure 8. Migration Patterns Observed SALE 1:2,000,000 — SF (z in August and September » 20 30 40 50 Miles ~N S 3 oR tr ee \ oo y = 10 20 30 40 50 Kilometers — Vv Sy, . lems mS »* Probable major pathway, poorly documented N 160° 158° ‘58? ee loons eee end An area of large lakes from the Kogru River west to Drew Point and south from the coast to Teshekpuk Lake attracts thousands of geese and brant from the Soviet Union, Canada and the United States during the annual molt (Plate 8). It is believed that the entire nonbreeding segment of brant from nesting areas north of Bering Strait including Canada, Alaska and Siberia molt on NPR-A. The lagoon and barrier island system at Icy Cape and Peard Bay provides food and resting areas for the migratory brant. Although many other wetland areas in NPR-A attract molting geese during the summer months, the largest concentrations use the Teshekpuk Lake area. The critical flightless period for geese in the area northeast of Teshekpuk Lake was generally between July 5 and August 7. Due to the high concentrations of geese and waterbirds near Teshekpuk Lake area, 1,734,000 acres have been designated as a special area by the Secretary of the Interior. Bluffs and steep talus slopes along the Colville River are used for nesting by Canada geese. They also nest on dry tundra sites along the low bluffs of other Arctic rivers. These geese are especially susceptible to disturbance by people using the river corridors. The Utukok River is apparently a major corridor for spring migration of geese crossing the Brooks Range because snow melts early in this area. The Nigu-Etiviuk River drainage has also been identified as an important spring migration corridor for many species of waterfowl. Protection of these important habitats is needed for optimum goose management on NPR-A. Reindeer reintroduction could again adversely effect waterfowl habitat by disturbance and trampling. However, the most serious potential threat to geese and other waterfowl and their habitat is oil- and gas-related development activity. Localized alteration of goose habitat has already resulted from such activities in NPR-A. The Teshekpuk Lake area and other sites in NPR-A are unexcelled areas for continued goose research. The feasibility of restoring extirpated snow geese nesting colonies to NPR-A needs to be explored. The Arctic, red-throated and yellow-billed loon occur regularly on the coastal plain of NPR-A, and the common loon is found occasionally in southern NPR-A. The estimated number of loons on NPR-A in July was 30,000 in 1977 and 24,000 in 1978. The Arctic loon was the most common species. A band extending west from the Colville delta to Peard Bay and southwest along the coast to Icy Cape (Plate 9) contained the highest density of loons. The coastal zone is especially important during spring and fall migration (Plate 9). Among the swan species, only the whistling swan is known to occur regularly on the Arctic Slope. The July estimates of whistling swan numbers on NPR-A ranged from 2,500 to 3,700. Highest swan densities on NPR-A occurred southeast of Teshekpuk Lake and east to the Colville River (Plate 8). The delta of the Colville River is particularly important for swans. These areas should be given special consideration for protection. Harvest data are not available; however, there is believed to be some subsistence use of swans. Because of their sensitivity to disturbance and ALASKA LOCATION Se se os. vs CHUKCHI SEA Pingorerok pass, 4 fey Capes “og, Pass stg Asp A BEAUFORT SEA SAGAVAN TAK poR 69" 152% NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR NPR-A STUDIES FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 8 Goose and Whistling Swan Distribution and Densities DISTRIBUTION OF WHISTLING SWANS DISTRIBUTION OF GEESE LOW DENSITY, 0 -0.1 per square mile HIGH DENSITY, more than 7 per square mile MEDIUM DENSITY, 3-7 per square mile LOW DENSITY, 0-3 per square mile —— _LIMTT OF SOUTHERN OBSERVATION seeseees LIMIT OF SOUTHERN OBSERVATION T] aT ee i / 2 : boa? 2 ya Fy : i i YOu Ve NPAT ON S ig fof ¢ 33 z ¢ § { eh R 2 g i¢ 3 5 e z 7° 3 a ( it $i ios vireo? |% gg: a 3 3 BR Nsllls 4 < & ¢ 8 Er ge s 2 8 & Ly < o é Y a2 z° 5 8 - z= 8 if & 6G a 8 rp Lie “ § a co ee wy te fii) ge w AN 2 4 HM RS eg Z N ge < 283 258 - 5 ue a ¢ ° o 3 HE = 2 a £ 2 ¢ ge Ss ¢ @€ @ « coe £ © : \@# 3 § zg § ¢ zu & a Fal eli “ ga eo gp 8 aif zk £ 9° 7 x Slew el) ley] lhe || ie = ss 2 5 a} \ elle z & ey § f a 82 5 . F S$ > 3 Cane - 2 z a u @ e & 6 ¢@ 2° 8 @ a = a o 6: 2 ¢ & 8 5 - & 8 ‘ EEE Ea N E z SAS 5 ! SN a SS 8 | WIVVHK SK WRVLY VW RQVVye SASS ; ‘ VAN VY} SSSSAV77 WSs RAG SQY S on Wore aay, 0 ner ls kurt a oO RS SS SSSR SSSsss3qs5qg is MAP LOCATION CHUKCHI ne n° Based on aerial surveys, the estimated number of shorebirds on NPR-A was 5,700,000 in July 1977. The most numerous species recorded at three intensive study sites on the ground in NPR-A were pectoral sandpiper, red phalarope, dunlin, northern phalarope, and semipalmated sandpiper. The highest densities of shorebirds in NPR-A were found within about 20 mi of the coastline (Plate 10). Breeding populations exhibited relatively even distribution in this zone. Evidence indicates that wetlands around river delta systems may be the most productive areas. Because of low breeding densities, large blocks of coastal habitat will need to be protected to maintain population levels (fig. 5). Godwits and whimbrels are more common in tussock tundra areas of the foothills than elsewhere (Plate 10). During August and September the coastal shoreline and adjacent lagoons are extremely important to staging phalaropes and other shorebirds. In late July and early August large lakes in the Teshekpuk Lake area also support flocks of thousands of phalaropes (fig. 5). Understanding of the habits and requirements of shorebirds in Arctic coastal areas is generally good. Further research is especially needed in inland areas. At present management for maintaining shorebird populations should be aimed at protecting existing habitat quality in the coastal zone, including barrier islands and lagoons. There are three discrete population units of peregrine falcons found in Alaska. One subspecies, the endangered Falco peregrinus tundrius, is found in NPR-A. The majority of the tundrius pairs breeding on the Arctic Slope is found along the Colville River and its tributaries because of its prime nesting habitat. The importance of this area was recognized by designation of the Colville River Special Area. During 1977 there was an increase in peregrine occupancy at nest sites, but the productivity was extremely low. It is believed that there are presently 25 pairs on the North Slope and about 18 of these pairs are located on NPR-A. Historically the North Slope had approximately i100 pairs of peregrines. The reason for their decline relates primarily to the effect of pesticide residues obtained from prey taken on migration and wintering areas. Peregrines nest on cliffs, bluffs, rocky outcrops and at the base of rocky faces above talus slopes. Due to the fact that peregrines are known to return to nest sites after years of disuse, all sites that have nests are important. Current and historic nest sites are shown in Plate II and figure 5. The subspecies tundrius is protected by the Endangered Species Act of 1973. The Alaska Peregrine Falcon Recovery Team has recommended a I|-mi area around each known nest site as a protected area and a |5-mi radius feeding area around each nest site as critical habitat (Plate Il). Ongoing research and monitoring on the Arctic peregrine falcon in the Colville River drainage, particularly along the main river course, will be continued. Management and restoration of this endangered subspecies requires that all disturbances during the critical nesting period be kept to a minimum. If the |5-mi radius is adopted as critical habitat, construction activities and consultation with the U.S. Fish and Wildlife Service before permits are issued. It is recommended that population data be compiled every other year. An increase in law enforcement activity to eliminate the potential illegal take of peregrines by falconers or others and control disturbances should be a positive step in helping the population to recover. In addition to the endangered peregrine falcon, the following raptors regularly breed on NPR-A: golden eagle, gyrfalcon, rough-legged hawk, snowy owl and short-eared owl. Golden eagles nest in the Brooks Range and southern foothills; nine such nests were found in 1977. Numerous sightings of subadults were mainly north of the Colville River, however. In 1977 forty adult gyrfalcons were observed, including I7 known aeries, mainly in a narrow band crossing the southern foothills. Twenty-five aeries have been reported in the Colville River drainage. Some gyrfalcons remain over winter depending upon the availability of prey. The rough-legged hawk is the most abundant cliff-nesting raptor on NPR-A. Adults or nests were observed at 88 locations in 1977, mainly on river cliffs in the foothills zone. These included at least 62 active aeries. Snowy owls and _ short- eared owls nest on the open tundra, frequently on pingos. Their numbers in any given area fluctuate widely depending upon availability of rodent prey. Continued productivity of these species requires strict habitat protection, especially for cliff-nesting species, and local restrictions on disturbing activities during nesting periods. A general evaluation of cliff-nesting raptor habitats is shown in Plate 12, and approximate locations of all known nest sites for these three raptors are shown in Plate 13. Willow ptarmigan and rock ptarmigan are found on NPR-A, the former being by far the most abundant. Total ptarmigan numbers on NPR-A_ were estimated to be 300,000 in September 1977. Due to the presumed cyclic nature of ptarmigan populations, their numbers can be anticipated to vary greatly from year to year. Areas of greatest abundance in summer of 1977 are shown in Plate 9. Ptarmigan use mountain passes in the Brooks Range for migration. Three species of jaegers occur on NPR-A: parasitic, pomarine and long- tailed. Gulls are represented primarily by the glaucous and Sabine. The Arctic tern is the only tern species. The estimated total NPR-A population in July 1977 was 140,000 jaegers, 22,000 gulls and 59,000 terns. In August 1977 these populations were 42,000 jaegers, 20,500 gulls and 84,000 terns. Populations in July and August of 1978 were generally lower. Densities and distribution of gulls and jaegers are shown on Plate 14 and for terns on Plate 10. Glaucous gulls are attracted to areas inhabited by man and benefit from available refuse. Artificially high aggregations can have adverse ecological effects. No population trend data are available for any passerine species in the Alaskan Arctic. Bird surveys in NPR-A in 1977 gave a crude estimate of 10 million passerines. Ninety-seven percent of all passerines seen during aerial surveys were Lapland longspurs. Highest densities of passerines were found within 20 mi of Point Barrow and in the southern foothills and mountains of NPR-A. Ravens and certain other species are especially RK Ke LOCATION uate ites CHUKCHI SS WSs S ESV 164 4065s LULL Ee SO LINE LEELE LE C: QL Lote SSS C069 0%: “eee eeee: eee es "ALASKA (Boundary ADDON ATIONAL PETROLEUM RESERVE Bi Lees Leet ttty: Looe 000s BEAUFORT Zp Lo Lies Le OL ie TE SL Cy LBL 1529 NATIONAL PETROLEUM RESERVE - ALASKA FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 10 Shorebird and Arctic Tem Distribution and Densities DISTRIBUTION OF ARCTIC TERNS IN 1977 I illbcner: er toneps ante LOW DENSITY, less than 2 per square mile ‘= SOUTHERN LIMIT OF OBSERVATION SEA DEPARTMENT OF THE INTERIOR NPR'A STUDIES DISTRIBUTION OF SHOREBIRDS IN 1977 HIGH DENSITY, more than 400 per square mile MEDIUM DENSITY, 200 - 400 per square mile LOW DENSITY, less than 200 per square mile FOOTHILLS ZONE WITH ABUNDANT LARGE SHOREBIRDS IN 1977 & 1978 SOUTHERN LIMIT OF OBSERVATION a ALASKA LOCATION MAP. TIONAL, PETROLEUM RESERVE ALASKA (aout Q & TESHEKPUK LAKE BEAUFORT © pRUDHOE BAY@ Nae? FN ae midway stands A a PRUDHOr DEADHORSE @ ¥ 70° \ NY & X cS pS 4. \ > Sacwon! af af c xk 6 : oH pay Ss. NATIONAL PETROLEUM RESERVE - ALASKA FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 11 USS. DEPARTMENT OF THE INTERIOR NPR-A. STUDIES Peregrine Falcon Nest Sites and Proposed Critical Habitat Zones @ PEREGRINE FALCON NEST SITES CURRENTLY OR HISTORICALLY USED PROPOSED CRITICAL HABITAT ZONES (approx. 15-mile radius) ok LOCATION )). « =; iz 5 { ¢ vs of ° Fossil 6 69°} oo" 4 : . | 152” i ' NATIONAL PETROLEUM RESERVE - ALASKA (US. DEPARTMENT OF THE INTERIOR d fone srooies r | FISH & WILDLIFE RESOURCES, SECTION 6 I PLATE NO. 12 ' Ciiff-nesting Raptor Habitats GOOD TO EXCELLENT HABITAT - Generally frequent bluffs, rock cliffs, mud banks or outcrops over 50 m (150 ft.) ‘in height. FAIR TO GOOD HABITAT - Scattered nesting substrates, generally under 50 m (150 ft.) in height. POOR TO FAIR HABITAT - Only occasional substrates, or habitat otherwise generally unsuitable for cliff-nesting raptors [DDIM] voor trasrrar. substrates witale fr clit nesting faptors rare or absent i = 5 = 22 eee . Si ieee ee BEAUFORT | ad CHUKCHI Se ait gg (/O ~ shaningsteh vn Sect ge 2 z, SAGAVAN Re FOR 69° 4 130° N NATIONAL PETROLEUM RESERVE - ALASKA US. O€ PARTMENT OF THE INTERIOR NPRA. STUDIES, FISH & WILDLIFE RESOURCES, SECTION 6 ig PLATE NO. 13 Hie Nest Site Locations of Gyrfalcon, Golden Eagle and Rough-legged Hawk 5 iB z ‘& GYRFALCON, Falco rusticolus * e ° Oh © GOLDEN EAGLE, Aquila chrysaetos 1 = 4: } © ROUGH-LEGGED HAWK, Buteo /agopus I: i SIGHTINGS OF LONE GOLDEN EAGLES Eo sont a i NE ( : © SUBADULT PLUMAGE IG E, / @ UNIDENTIFIED EAGLE i , i = HI 2° s ALASKA i — < 3X Ge LOCATION — MAP. ee Seats te Vee 2210660208 on" BEAUFORT +, ¥ ff ye > o = 9 Zz AGAVANI RK OK (ge ro 63° pOgeir yy \\ 1 iyo? _ USS. DEPARTMENT OF THE INTERIOR NPRA STUDIES 1527) NATIONAL PETROLEUM RESERVE - ALASKA FISH & WILDLIFE RESOURCES, SECTION 6 PLATE NO. 14 Jaeger and Gull Distribution and Densities DISTRIBUTION OF GULLS DISTRIBUTION OF JAEGERS HIGH DENSITY, more than 2 per square mile fae HIGH DENSITY, more than 3 per square mile MEDIUM DENSITY, 1-3 per square mile 222224 MEDIUM DENSITY, 1 - 2 per square mile LOW DENSITY, 0-1 per square mile LOW DENSITY, less than 1 per square mile | | —— SOUTHERN LIMIT OF OBSERVATION Point Barrow provides unique opportunities to observe passerines and other birds. Other pristine habitats that should be preserved because of their limited extent and high species diversity include the shrub and_ willow stands in the foothills and major river valleys. The appendix to the convention between the United States and the Soviet Union concerning the conservation of migratory birds and their environ- ment, listing species of birds covered, includes approximately 73 species that make significant use of NPR-A. This convention requires that the United States designate areas of special importance within the range of these species and undertake other measures for their protection. Fisheries Information concerning NPR-A fisheries is based primarily on data obtained from U.S. Fish and Wildlife Service and Alaska Department of Fish and Game in 1977 and 1978 and limited previous surveys conducted mainly by the Alaska Department of Fish and Game. Nineteen freshwater and anadromous species have been collected on NPR-A. The cold climate and thick winter ice on lakes and watercourses limit areas of year-round habitat. Other factors such as substrate, water quality, flow regime and absence of migratory corridors may also be limiting factors. Based on environmental and biological characteristics, seven habitat units are shown in figure 9, and are described as follows. Mountain Headwaters Unit has a watershed of 4,500 mi2 in the De Long Mountains, draining into the upper Colville River. Extreme fluctuations in discharge rates and turbidity are common. These streams typically have steep gradients and substrates of sand, gravel or cobbles and boulders, or bedrock, and many become discontinuous in summer. There are few lakes in this unit, but those with a depth greater than 6 ft or with access streams usually contain fish. Two minor springs have been noted, one on the Utukok (possible spring: flow not confirmed) and another on the Ipnavik River. Waters in the unit provide spawning, rearing and feeding habitat for Arctic grayling, char, lake trout, round and broad whitefish, least cisco, slimy sculpin, longnose sucker, burbot, and _ ninespine stickleback. Pink salmon, chum salmon, and humpback whitefish may enter the area. Limited overwintering habitat may also be available in river pools. Colville River Unit includes the Colville River itself, the largest river of the NPR-A region and one of the major rivers of Alaska. It drains 24,000 mi2 and flows for about 430 mi from the Brooks Range to the Beaufort Sea. Its value as a migration corridor for anadromous fishes is clearly great. The river can be divided into four habitat sections. Section | flows from the headwaters to the Etiviuk River and in general has the same physical characteristics as the Mountain Headwaters Unit. Stream gradients are less steep, however, so more deposition of sediments occurs and scouring has formed a few overwintering pools. The array of species is also similar to the headwaters unit and in the mid-Colville. OCLAN oe ree” ros? fon? na po? rao? | BARROW Figure 9. Distribution of NPR-A [J Fishery Habitat Units * 1.2,000,000 ?0 30 40 40 Miles ——— 10 20 30 40 40 Kilometers \\\ Tundra Rivers & Coastal Plain Lakes Units het — tee ap _ Utukok River Unit 160° 15s? ——_—— Section 2 flows from the Etivluk to the Killik River and is characterized by a swift, channelized flow, predominantly gravel and cobble and bedrock substrate, and a moderate number of deep pools. Spawning, overwintering, rearing, and feeding areas are utilized by Arctic grayling, broad, round and humpback whitefish, Arctic char, burbot, and to a lesser degree by pink and chum salmon. The Awuna River, entering in this section, has relatively less fisheries habitat value, but is locally important for spawning grayling. Section 3 is the largest subunit, extending from the Killik to the Itkillik River. It receives water from a number of large tributaries with drainages outside of NPR-A. This is a prime fisheries habitat area, with a moderate flow in braided channels, predominantly gravel and sand substrate, and abundant deep pools. The area provides spawning, overwintering, rearing, and feeding opportunities for Arctic grayling, lake trout, Arctic char, least and Arctic cisco, broad, round and humpback whitefish, pink and chum salmon, burbot, slimy sculpin, longnose sucker, ninespine stickleback, and probably northern pike. Section 4 is the delta area from Itillik River to the Beaufort Sea. Habitat characteristics vary widely here; flow channels may be deep or shallow, and substrates are silt, sand or gravel. This is an area of saltwater intrusion and abundant deep pools. The estuarine nature of the delta provides habitat for all freshwater and anadromous species found on NPR-A, as well as several marine species. The primary habitat value of this section is for rearing/feeding during summer months, but spawning and overwintering also occurs. Fish with a low tolerance for brackish water such as Arctic grayling, round whitefish and longnose sucker are not common here. Utukok and Kokolik Units (shown as two units on fig. 9) contain rivers which originate in the Brooks Range in western NPR-A and flow to the Chukchi Sea. The hydrological and physical characteristics of this unit are similar to the Colville River Unit, but on a considerably smaller scale. Summer sampling in the rivers of this unit has yielded low numbers of grayling, pink and chum salmon. Slimy sculpin, ninespine stickleback and one small Arctic char were also captured by fisheries crews in 1978. Aquatic vegetation and invertebrates are apparently relatively limited in these rivers. Fall and winter sampling in the area may detect additional usage of waters in this unit. Foothill Rivers Unit includes five rivers that originate in the northern foothills and flow to the Arctic Ocean. They have a combined drainage area of 15,050 mi2. Flows on these rivers and their tributaries are often intermittent or reduced by the water storage capacity of lakes and tundra on the coastal plain. Substrates are typically fine sand mixed with organic silt. Few overwintering and spawning sites have been identified. These rivers provide essential migration corridors from the Arctic Ocean to inland lakes and headwaters. Fish captured in this unit include Arctic grayling, Arctic and least cisco, Humpback and broad whitefish, burbot, slimy sculpin, fourhorn sculpin, pink salmon, chum salmon and northern pike. Large concentrations of rainbow smelt occur in the Kuk River during the winter. Tundra Rivers Unit consists largely of shallow runoff channels that may become intermittent during the summer. Substrates are typically fine sand and organic sediments. These streams serve primarily as _ migration corridors, but some, such as the Inaru River, may also provide limited spawning and overwintering habitat. Fishes captured in this unit include Arctic grayling, least cisco, humpback and broad whitefish, ninespine stickleback, slimy and fourhorn sculpin, and small numbers of pink salmon, chum salmon, and Arctic flounder. Coastal Plain Lakes Unit (shown with Tundra Rivers Unit in fig. 9) contains the greatest proportion of water surface area of any unit in NPR-A. Lakes range in size from 315-mi2 Teshekpuk Lake to small potholes. More deep lakes occur on the eastern portion of the coastal plain than to the west. Lakes that are most likely to be utilized by fish have inlets or outlets, adequate depth for overwintering, and suitable substrates for spawning. Fishes captured in most coastal plain lakes of NPR-A include Arctic grayling, least cisco, broad whitefish and ninespine stickleback. Additional species collected only in eastern lakes include Arctic cisco, humpback whitefish, lake trout, slimy sculpin, Alaska blackfish, burbot and northern pike. Marine Coastal Unit (not shown on fig. 9) extends from Icy Cape to the Colville River. Nearshore marine waters are generally shallow, and there are many shallow bays and deltas along the Beaufort Sea coast. The Chukchi coastline is more regular. Low water temperature and sea ice are limiting features of the marine environment, as ice cover occurs eight to ten months of the year and subsurface water temperatures vary from 32 to 28° F. Migration and feeding during the summer months and overwintering are primary uses of this unit. Principal anadromous species here include Arctic char and Arctic cisco. Frequently observed nearshore marine species include fourhorn sculpin, Arctic cod and Arctic and starry flounder. A small commercial fishery for broad and humpback whitefish and Arctic and least cisco is located in the Colville delta. Subsistence fishing for whitefish also occurs in the Colville delta area, on the Meade and Chipp Rivers, and in coastal rivers and lakes generally near villages. Pink and chum salmon are incidentally captured. Winter fishing for ling cod and rainbow smelt eccurs in river delta areas. Sport fishing is incidental to other activities and is minor. Present resource utilizations which conflict with fisheries resources or fish habitat are relatively inconsequential. Transportation activities, camp construction and utilization have left marks on NPR-A aquatic areas; to date, most of these activities have had only short-term or localized impacts. Seismic operations are believed to have caused localized fish kills, but the extent of damages is presently unknown. Overfishing in lakes near villages by subsistence fishermen is a probable resource management problem, but additional harvest, population and life history data must be obtained before an analysis can be made. Investigations of this nature are the most immediate fisheries management need on NPR-A. The potential for fisheries enhancement is low. Most areas on NPR-A are Practically inaccessible, or enhancement costs would be prohibitive. A habitat potential or those that have been depleted by activities of man. Additional investigations of such lakes are required before any restocking is attempted. At present, areas most likely to be sites of critical conflict with resource developments are areas that are utilized intensively by fish on both a seasonal and year-round basis. Land-use activities may eliminate habitat used for spawning, feeding or overwintering or may stress fish utilizing these areas. These effects can be wide-spread, chronic, or localized and short-term. Each proposed activity must be investigated individually in order to protect the fisheries resources since no comprehensive formula to protect aquatic resources has been developed. Potential disturbances may include water and gravel removal, pollution, and the construction of structures in or across waterways. Large water withdrawals, especially during winter months, have the potential of concentrating or stranding fish or their eggs, causing death or increased vulnerability to secondary impacts. Gravel removal may eliminate spawning beds, increase siltation or create blockages to fish movement. From a fisheries perspective, all waters on NPR-A are important in varying degrees. The Colville River, Teshekpuk Lake and deep lakes on the eastern coastal plain have the greatest potential for containing large fish populations. The Utukok, Kuk, Meade, !kpikpuk and Kokolik rivers, as well as lakes near villages, have a lesser potential but may be used intensively for subsistence fishing and thus be of greater current importance. Additional study including inventory, habitat evaluation, life history, and population dynamics will be necessary before comprehensive land use planning can occur. Reindeer and Muskoxen Grazing Resources Reindeer are not now herded on NPR-A. An oriental market for antlers in velvet makes herding economically interesting. However, herd control and conflict with caribou range use are among the important considerations in reintroduction of reindeer. Photo by E. Nygard. Domestic muskoxen are a source of qiviut, used in manufacture of knitted garments. The cost of establishing and controlling domestic herds, the inefficient methods of qiviut collection and possible conflicts with other range uses do not make muskoxen an attractive commercial venture at this time. Photo by P. Lent. Reindeer and Muskoxen Grazing Resources Summary* Reindeer Although herds were kept in the area from 1899 until 1952, no domestic reindeer are now grazed on the National Petroleum Reserve in Alaska (NPR-A). Background information on herd management is based on the history of the earlier herding and present herding operations in other areas, especially on Alaska's Seward Peninsula. Three types of herding are used with reindeer: free, open, and close herding. Free herding, where reindeer run wild, requires game management techniques for control and yield taking, and economic benefits are low. A form of free herding is used on Nunivak Island and other islands where no intermingling with other reindeer herds or losses to caribou herds or predators will occur. However, slaughtering is controlled, and economic benefits are improved. Open herding involves circling the herd each day or two and working in strays. More intense herding is done during critical periods, such as fawning and when reindeer are moved to corrals for roundup or slaughter. Variations of open herding are the normal methods currently used in Alaska; the herds are only occasionally checked. Close herding was the technique used in the Lapp reindeer culture until recent times. It requires daily checks of the reindeer and a nomadic lifestyle. The technique was developed for small herds on ranges near other herds or where predators were a problem, and economic yield is very low compared to the manpower involved. Past experiences have shown that owners of small, family-controlled herds in Alaska and Canada will not Practice strict close herding. Herd control is mandatory in a successful reindeer program, particularly when caribou share the same range. Lax control contributed greatly to the loss of reindeer in NPR-A. The best herd size appears to be between 2,500 and 3,000 reindeer per herder. About 1,000 is a minimum number on which to make a profit, and about 3,500 to 5,000 is the maximum number manageable. The owner must have enough reindeer to butcher on a sustained yield basis, while leaving prime animals for increase. One male reindeer to every ten females appears to be a practical sex ratio for sustained yield management. The recent development of an oriental market for reindeer antlers in velvet provides about 90 percent of the value for reindeer. Continuation of high prices for antlers will probably result in changes in sex ratio; more males will be kept longer for their antlers. Management practices will also be affected. *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Reindeer and Muskoxen Grazing Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study, Report 2, Section 7. Native people have traditionally been hunters, trappers, and fishermen. Reindeer herding alters a number of cultural and subsistence values. Reindeer culture is further complicated in Alaska by the Federal Reindeer Act of 1937 whose provisions are not consistent with modern management. The tendency of reindeer to join and migrate with caribou herds means that wild and domestic animals should not use the same range. Interbreeding is generally felt to be undesirable and results in inferior offspring in caribou stock or reindeer that are difficult to control. If reindeer are reintroduced to NPR-A, problems with caribou can be expected. Wild animals should be kept off reindeer ranges by fences, aircraft surveillance, close herding or other means. At least six infectious diseases and twelve species of parasites are known to affect reindeer and caribou. Brucellosis is one of the most serious diseases, causing abortions and crippling; it is easily transmitted among reindeer, caribou, indigenous rodents, and animals which feed on caribou. Harrassment of reindeer by insects (nose bot and warble flies, in particular) is a major problem in summer. Insect-control techniques to provide relief for reindeer have not been perfected for Alaska. Wolves and grizzly bears are important predators of reindeer, and smaller predators are known to have killed fawns. A predator control program would be necessary if reindeer were reintroduced to NPR-A. Reindeer and caribou have similar feeding habits. Information on vegetation preferred by caribou in NPR-A is given in the Values and Resource Analysis - Fish and Wildlife Resources (Study Report 2, Section 6). Major foods would be cottongrass, Carex spp., willow, and lichens. Forage value of these foods is normally highest in new growth in late spring and summer. Range carrying capacities are estimated at one to five reindeer per square mile per year. If the lower figure is used for all of NPR-A, in light of limited range inventory and remoteness of range from villages, from 36,000 to 179,600 reindeer might be carried. Reindeer populations must be reduced if caribou are also present on the range. Wildfires are infrequent and rarely severe enough on the North Slope to destroy roots by heat. Burned summer ranges having an abundance of grasses and sedges quickly recover. Fires in lichen ranges, especially winter ranges, are more detrimental, and lichens may take 100-140 years to recover. Forage may also be destroyed by exploration activities and development of oil, coal, and other mineral resources. Reindeer control can be disrupted by aircraft and land vehicles used in exploratory or other work. However, roads could be an asset, improving access by the herders. Severe winter weather may restrict available forage due to icing conditions; reindeer would then be forced to feed on windswept ridges and hills. Similar changes in range use could result from attempts by reindeer to avoid insects in the summer. Such concentrations of animals may overgraze the range. Trampling and overgrazing by reindeer can seriously damage lichens. Lightly grazed areas may take about 10 years to recover, but intensively grazed or trampled areas may take 30 to 50 years. Trampling causes increased thawing of frozen ground and changes in types of vegetation present. Delineation of suitable range will be essential in successful herding. It may be possible to graze reindeer in NPR-A Primarily through management of existing vegetative resources. Land treatments such as seeding, fertiliz- ation, and burning do not appear to be Practical techniques in the Arctic at this time. Reintroducing reindeer herding will require some or all of the following: (1) conducting studies on vegetation productivity and range carrying capacities, (2) delineating seasonal ranges, (3) identifying areas where grazing would be restricted by predator concentrations, dense brush, ice crusting, and other factors, (4) establishing allotments designed to carry a maximum of 3,000 reindeer year-round, (5) establishing a rotational grazing system, (6) restricting summer use of winter lichen ranges to avoid vegetation damage from trampling and overgrazing, and (7) conducting range condition and trend studies. Herding might have to be restricted to the vicinity of villages due to lack of access to range elsewhere. Administration of reindeer herding would have the following opportunities: (1) controlling herds, (2) keeping caribou from reindeer ranges, (3) controlling predators, (4) modernizing the Reindeer Act and regulations, (5) investigating and implementing insect control methods, (6) investigating Potentials of selective breeding and impact of recent emphasis on antler harvest, (7) conducting cost-benefit analysis of reindeer industry on NPR-A, (8) allowing no large-scale surface disturbance in critical calving or winter range, (9) restricting oil and gas exploration on calving grounds during calving and (10) Protecting critical winter range from wildfires by attacking or containing them. Essential facilities for a commercial reindeer operation include drift fences, corrals, range cabins, and slaughter, storage and transportation facilities. Fences would be expensive, require frequent maintenance, and conflict with Alaska Department of Fish and Game (ADF&G) policies of game management by restricting movement of wildlife. Adequate means of transportation probably exist for winter travel (snow machines, Rolligons, etc.), but summer travel techniques that will not damage the vegetation need to be developed. Aircraft would be a costly alternative to summer land transportation, but would probably be necessary to support a predator control program, fence surveillance, and transportation of reindeer Products. The NPR-A Work Group concerned with fish and wildlife has recommended against restriction of caribou movements in NPR-A and against reintroduction of reindeer. Muskoxen Wild muskoxen were formerly distributed across the Arctic, including NPR-A. They were intensely hunted for food during the whaling period and became extinct in Alaska by about 1870. The ADF&G has successfully transplanted muskoxen into several locations on their former range during the last 10 years, but numbers of these wild animals remain low. There are presently no domestic muskoxen in NPR-A. Domestic muskoxen in Alaska duction of domestic muskoxen to NPR-A would probably not be administra- tively or technically compatible with the ADF&G wildlife program. Natural predators of muskoxen are restricted to wolves and bears, neither of which are plentiful on terrain preferred by muskoxen, such as the Arctic coastal plain. A predator control program to benefit domestic muskoxen would conflict with ADF&G programs and_= goals of environmental organizations. Forage for muskoxen is mainly sedges ( Carex spp.) supplemented by grasses and willows (Salix spp.). Lichens do not appear to be important in the diet. Some competition for willows with caribou (and reindeer) would be expected. Supplemental feeding would probably be necessary with a domestication program in NPR-A, and virtually nothing is known of energy and total feed needs or possible relationships of diet and reproduction. Snow crusting during winters could reduce available forage. As with reindeer, oil and gas exploration and surface mining activities on muskoxen range could disrupt muskoxen; animals may run from noise and abandon calves. Domestic muskoxen are usually gentle if handled frequently, but rarely handled bulls in northern Europe have killed a number of people. Parasites and diseases can be controlled with modern medicines and veterinary practices if muskoxen are periodically examined and treated. Most health problems have resulted from stomach and intestinal worms, bacterial infections, and viruses. Muskoxen have long, coarse outer hair and shorter, fine inner hair which protect the animal from severe Arctic weather and insects. The production of giviut, the Eskimo term for the underhair, is the main economic basis for domestic muskoxen herds. Qiviut fibers are light and warm, longer and thinner than cashmere, will not shrink when boiled or scrubbed, will take any dye, can be spun in any weight from bulky to extra fine, and combine easily with other fibers. Up to 6 pounds of wool per year can be collected from mature pen-raised animals, but the collection process is very difficult and inefficient. Limited qiviut supplies, a limited market, and the Eskimo cottage-industry system of manufacture keep gqiviut apparel as a high-priced, prestige product. As long as qivuit retains its high commercial value, it is unlikely that domestic muskoxen will be used extensively as a meat or hide source. However, muskoxen are among the few large arctic herbivores that could live naturally on NPR-A. Free herding might offer marginal meat production possibilities. From an economic and resource standpoint, there is no basis for recommend- ing the introduction of domestic muskoxen to NPR-A. Future opportunities would depend upon factors such as: (1) determining productivity of native or introduced forage and value of supplemental feed, (2) delineating areas of ranges in NPR-A and a system of pastures and fences, (3) establishing predator-control, as well as periodic veterinary examination programs, (4) developing methods to increase the reproductive rate of muskoxen, (5) making an economic analysis of the market for qiviut, (6) investigating methods of controlling herd behavior and improving range forage, and (7) program. It would be necessary to keep the domestic stock separated from wild animals recently released on the North Slope and from animals the fish and wildlife Work Group has suggested might be reintroduced as a now-missing faunal element on NPRA. Mineral Resources 1-2 Mineralized rock crops out in several Places in the De Long Mountains. Deposits containing anomalously high values for zinc, lead, and barium suggest an important me- tallic mineral resource. Photos by USGS (1) and BOM (2). 3 The alteration zones (oxidized minerals) are visible for miles in the De Long Mountains. Photo by USGS. 4 The many seams of coal in NPR-A demon- strate enormous reserves. The coal is of bituminous and subbituminous rank and some is of good coking quality. Hypothetical reserves are estimated in trillions of tons and are a potentially important energy source for the region, state and nation. Photo by U.S. Dept. of the Interior. 5-6 Coarse gravel is found in stream beds in the foothills of the Brooks Range. Little is currently known of the amount of gravel present, but it is likely to be in demand for construction projects. Removal from streams may have an adverse effect on fisheries and accelerate erosion. Photos by HCRS (5) and U.S. Dept. of the Interior (6). Mineral Resources Summary* Work specifically oriented toward recognition, characterization, delineation, and assessment of mineral resources (other than oil and gas) within the National Petroleum Reserve in Alaska (NPR-A) has been intermittent and often carried out under time and funding constraints. Present knowledge of the general geologic relationships indicates that significant occurrences of a variety of mineral commodities may be found within this geologically diverse and complex area. Few sites have been investigated with sufficient thoroughness as to permit mineral resources appraisal, let alone evaluation of reserves. Therefore, it is difficult to consider the mineral resource potentials of NPR-A in terms of definitions such as "speculative, hypo- thetical, undiscovered, paramarginal-submarginal, identified-economic/- subeconomic". In most instances (with the exception of coal), it is not possible to do more than delineate regional trends; more specific resolution of areas of interest will be possible only after considerably more exploratory work. The minerals potential of NPR-A may be described in terms of two regional geologic settings, a southern one of older (Devonian through Cretaceous) rocks, and a northern one of younger (Cretaceous and younger) rocks (Plate | and fig. 10). Each of these possesses geologic characteristics which can be related to known mineral occurrences, and from which inferences about potential, as yet undiscovered mineral resources can be made. Coal occurs in Cretaceous sedimentary rocks (Plate 2 and fig. 10) which underlie approximately 60 percent of NPR-A. Recent estimates place some 13 billion tons of bituminous and about 97 billion tons of subbituminous coal in the category of "identified" coal resources on NPR-A, while "undis- covered hypothetical reserves" for the region are estimated at between 934 billion and 2.8 trillion tons. Whatever classification terms are used, these enormous amounts of a potential energy resource are of compelling national interest. Previous studies have indicated that some of the coal may have coking quality. It contains very low to almost negligible amounts of sulfur and its caloric content ranges from 8,000 to 14,000 BTU's. This northern region is also permissive for a variety of other mineral resources which might be inferred to exist in this type of geologic setting, including uranium, base and precious metals, and non-metallic materials. There is no publicly available evidence of such occurrences. The metallic and associated non-metallic resources of the southern part of NPR-A_ (Plate | and fig. 10) presently include but undoubtedly are not limited to the following commodities: zinc, lead, silver, chromium, barium, fluorine, nickel, the platinum group, and copper. Occurrences of each of these in noteworthy concentrations has been verified in or adjacent to NPR-A._ Significant lead-zinc mineralized rock occurs at the surface in the *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Mineral Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study southern foothills at Drenchwater Creek, Story Creek, Koiyaktot and Kivliktort Mountains. Mineralized rock collected near Drenchwater assays to 31 percent zinc and 8.4 percent lead. Material from Story Creek assays to 34 percent lead and 49 percent zinc, and 27.4 ounces silver. Mineralized rock at Kivliktort Mountain assays to 30.5 percent zinc and 5.2 ounces silver. Lesser amounts of the same type of mineralization have been noted at several other localities shown on Plate | and figure 10. Geochemical investigations have established the presence of barite which may be associated with the lead-zinc deposits. The southern portion of NPR-A is a geologic extension of what has been termed "a potential world-class base metal district." Phosphate rocks are known in several occurrences within NPR-A, but are of undetermined extent, thickness, and quality. Phosphate rock will continue to be important to world food requirements, as fertilizer materials, and may also yield valuable by-products such as uranium, vanadium and rare earths. The oil shale occurrences within NPR-A are not well defined at present. Studies show that, in addition to having high yields of hydrocarbon materials, they are enriched in recoverable amounts of various elements, including arsenic, copper, cobalt, molybdenum, nickel, vanadium, zinc, silver, mercury, and gold. Gravel and coarse sand resources (for construction) are known from surface distribution only. North and west of the Colville River within NPR-A, gravel deposits are apparently not common and, where present, may not be readily available for utilization due to various environmental concerns. Removal of coastal gravels or river bed gravel armor may accelerate erosion. Possible sand sources are the extensive eolian deposits in the northern half of NPR-A. Eolian sands are suitable under some circum- stances for supplementing gravel supplies or use in temporary construction Projects. Potential resources of other low-unit-value construction materials, such as cement rock and aggregate material, remain largely unevaluated at the present time. Best Use Opportunities for Mineral Resources The nation is dependent on imports of many mineral commodities including most of those either already recognized or suspected to occur within NPR-A. A long-range comprehensive national plan for mineral or energy resources self-reliance would certainly have some effect on NPR-A planning. Since considerable lead time is required to identify such sources and to develop production and transportation capabilities for needed materials, flexibility in meeting changing needs/supplies depends on _ long-range planning and exploration, not "crash" remedial efforts. Table | summarizes salient features regarding commodities of potential resource interest relative to NPR-A. The quantity and quality of data currently available are not conducive to solving specific problems of land-use planning/management. Hence, it is necessary to acquire a sufficiently substantive data base (quantity, quality of minerals and complete coverage of NPR-A). Additional geologic mapping, geochemical studies, and geophysical exploration must be done and must be complemented by more detailed investigations, as appropriate, using the Sa la ea ek ai ak ae a ae eel ee 162" 72 “re Kd \ en, \ By i at MS at ALASKA Bs : 2 7 at \ - I Sond ‘ 4 aa yr — ¢* Law 6b f S of a. ALE ot athe ee cpt a LOCATION MAP CHUKCHI [ALASKA (Boundary APB HUM RESERVE = = oO Ess gunn GE A Eee a i eo ee = waa BEAUFORT 1527 i NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR NPR-A STUDIES MINERAL RESOURCES; SECTION 8 PLATE NO. 1 Mineral Resources REGION | COAL URANIUM BENTONITE CLAYS CONSTRUCTION MATERIALS METALLIC + OTHER NON- METALLIC COMMODITIES (?) 1977 SAMPLE SITES (Bureau of Mines) & 1978 SAMPLE SITES (Bureau of Mines) REGION 11 METALLIC MINERALS ZINC GOLD SILVER CHROME COPPER NICKEL LEAD PLATINUM GROUP NON-METALLIC MINERALS: BARITE PHOSPHATE ROCK (+ U METALS) OIL SHALE - METALS FLUORITE CLAYS CONSTRUCTION MATERIALS He 100" NPR-A t a8 ALASKA us a LOCATION MAP CHUKCHI SEA WAINWRIGHT, Wainvright tier J isa 30 af Set WG : a) 3 A a ON / TOES grade © 4 Fag! > May en, Wr i "ALASKA (Buundary Approximate) = = 3 = = = Coal BEAUFORT SEA $ PRUDHOF = way) PRUDHOE BAY@. | DEADHORSE e ¥ : é | oS e q ZA™ xf 3 Sacwon) sf af « 3} \ { oo -\ . 1 132” NATIONAL PETROLEUM RESERVE - ALASKA Figure 10. DISTRIBUTION OF MINERAL RESOURCE VALUES [ae] Speculative resources Uranium, base & precious metals, bentonite, and other clay materials GE | tentitien subeconomic coal resourcesy [~~] Undiscovered hypothetical coal Approx. boundary between bituminous & subbituminous coal in Nanushuk Group US. DEPARTMENT OF THE INTERIOR NPRA STUDIES, 162? 160" 18 n° . ; , woe Fd : 5 cA ALASKA BS 5 ‘ LOCATION MAP t Hee Pr BEAUFORT CHUKCHI SEA Cape Simpson Piet 2 hy ge Aommabds Fi zg a} w a ‘Cape Hatkect » \" * soy <Sipp i . & TESHEKPUK Kogynigee gat * sy LAKE . 70° ¥ oe Akunit. Pass = Ss POINT LAY = } e * e ™ 3 Sacwon < : 152” 130° _| NATIONAL PETROLEUM RESERVE - ALASKA US. DEPARTMENT OF THE INTERIOR, tone slows MINERAL RESOURCES. SECTION 8 PLATE NO. 2 ‘ane = ov Coal Resources ie O IDENTIFIED SUBECONOMIC COAL RESOURCE AREA aw fatuto | = US Late ek 2 “ |: [EBB] wroiscoveneo veorierical nesounce AREA [E APPROXIMATE BOUNDARY BETWEEN BITUMINOUS AND Desperation ts SUBBITUMINOUS COAL IN THE NANUSHUK GROUP # ‘ae i (Hachured toward the bituminous area 7 “ae ; Nig ow i The mineral resource of greatest immediate potential significance at this time in NPR-A is coal. The further work required to delineate these deposits seems likely to demonstrate the existence of coal resources/reserves of very great significance to national supplies. Table 2 presents some aspects of this situation. The metallic and non-metallic minerals of NPR-A, as described in preceding Paragraphs, warrant further investigation. Other non-metallic materials of concern in NPR-A are the construction materials, primarily gravel and sand. A potentially complex resource management situation exists for construction materials (described in the Land Resources summary). Determinations of potential will require site-specific studies of gravel thickness and extent, as well as the nature of the underlying materials and extraction and transportation methods. The possibilities of development of alternative materials as aggregate (i.e. crushed rock) should be considered, and exploration for such resources should be carried out. At the present time, the greatest opportunity in the mineral resources area is a comprehensive, thorough, systematic program of exploration, deline- ation, and characterization which would provide the basis for sound land-use planning and management. Table 1. Salient Commodity Aspects Regarding Mineral Resources of Interest, NPR-A. Aver. Ann. Growth in Estimated Forecast Domestic Forecast 1974 U.S. 2000 U.S. Domestic Demand Worldwide Domestic Domestic Demand 1974-2000 Demand Commodity Units Production Production 2000 (Percent) 2000 Arsenic Short tons NA 5,100 26,200 0.1 56,000 Barium Short tons* 619 1,100 1,585 2.1 6,685 Chromium Short tons* =—== iii 1,100 2.6 5,300 Cobalt Pounds* ele 40,000 43,000 3.0 137,000 Copper Pounds* 1,597 3,800 4,200 3.0 22,200 Fluorine Short tons* 137 80 1,930 4.0 7,330 Gold Troy ounce* 1,127 2,200 15,300 5.4 58,000 Lead Short tons* 664 970 1,530 1.9 7,570 Mercury Flasks* 2 25 47 -0.5 269 Molybdenum Pounds* 112,011 383,400 193,000 3.6 586,000 Nickel Short tons* 14 270 385 2.6 1,590 Palladium Troy ounces* 9 22 1,340 2.7 5,070 Platinum Troy ounces* 4 6 1,225 1.4 4,850 Silver Troy ounces* 33,800 50,000 230,000 2.4 680,000 Vanadium Short tons 5,368 8,700 33,000 5.4 90,000 Zinc Short tons* 500 1,100 3,050 2.9 12,350 Clays Short tons* 61 190 181 4.4 1,061 Phosphate rock Short tons* 45,686 85,000 69,000 2.7 456,000 Sand and gravel Short tons** 978 2,090 2,090 3.0 17,290 Bituminous coal Short tons** 603 1,655 1,555 4.1 4,785 and lignite Uranium Short tons 9,776 60,000 69,500 8.7 193,000 (Nuclear) * Thousands *x Million NA Not available Source: Mineral Trends and Forecasts, Bureau of Mines, 1976. ble 2. The Coal Resources of NPR-A in the National and Worldwide Contexts. Identified Subeconomic Resources Percent of Total for USA: Billions of Tons Estimated Total Resources? Percent of pth in Feet Bituminous Subbitumi nous Totals (Other than NPR-A) Resource 0-1,000 9.76 11.53 21.29 0.54 000-2 ,000 8.63 5.20 13.83 0.35 000-3,000 5.54 0.14 5.68 0.14 000-4 ,000 2.05 cen 2.05 0.05 000-5 ,000 1.07 s--- 1.07 0.02 000-6 ,000 0.07 0.07 0.002 TOTALS 27.12 16.87 43.99 1.11 Undiscovered Hypothetical Resources Percent of Total for USA: Estimated Total Resources Percent of Total Known World s2_ (Other than NPR-A 0.24 0.16 0.07 0.02 0.01 0.0008 0.51 Total Known World (Other than NPR-A pth in Feet Bituminous Subbituminous Totals (Other than NPR-A) Resources 0-6,000 1,868.00 1 983.00 2,851.00 1 71.85 3 (612.00) (322.00)! (934.00) (23.54) qd 1 Resources based on more conservative interpretation of coal from Kaolak and Meade Rivers d electric logs (Collins, 1958c) 2 USA and world resources estimates from U.S. Bureau of Mines publication "Mineral Commodity Summaries, 1978". 2.72 0.72) rillhole Watershed Resources The coastal plain of NPR-A is dotted by thousands of lakes and ponds. Particularly common are the ponds in the patterned ground formed by buried ice wedges. These ponds produce food for waterfowl, but are not normally considered for water supplies. Photo by U.S. Dept. of the Interior. Rivers are sources of water and fish for villages. In spring snowmelt may increase the amount of water in this and similar rivers so that all the gravel bars are underwater for a short time. The-ice shown in the photo is a remnant of a winter accumulation, melt- water from the ice may sustain flow for some weeks. Photo by USGS. Snow drifts accumulate along lake shores or river bluffs. The oil industry and villages frequently obtain water by melting drifted snow. Water supplies could be enhanced by placing snow fences to increase the size and depth of drifts near points of water use. Photo by USGS Watershed Resources Summary* Water Resources On an annual basis water is plentiful in the National Petroleum Reserve in Alaska (NPR-A). During summer, water stands at the surface in marshes and lakes and runs off in the many streams. Throughout NPR-A, the active layer at lower altitudes is generally saturated. Peak flows commonly occur during breakup in the early summer or, in the southern part of NPR-A, after rainstorms. The annual sediment discharge for the Colville River is in the order of 300 to 350 tons per square mile and is probably the largest discharge for the area. During winter water is stored as ice and snow. No detectable flow has been found in any of the streams; most freeze to the bottom, but in some water exists beneath the ice in deep pools. Ground water has been found beneath the continuous permafrost, but little is known of these aquifer systems. Shallow ground-water sources are found in riverine gravels and in thaw bulbs beneath deep lakes. Ground water is not now used as a water source. The sites at which water resource information has been collected are depicted in Plates | and 2. The period of record for NPR-A is very short. Erosion and Flooding Most of the erosion occurring within NPR-A is normal stream and coastal erosion. Stream erosion each year during breakup is caused by high water and the ice carried by the streams. Coastal erosion rates are greatest during the summer when onshore winds cause waves to undercut the fine-grained beach and bluff materials, especially between Barrow and the mouth of the Colville River. Slumping of large blocks results. Plate 4 in the summary of the Physical Profile (in Volume 2 of this Final Study) Presents information on erosion. There is no evidence that erosion rates or susceptibility are increasing at the present time in the study area as a whole. The uncommon severe winter storms cause flooding and ice jams at the coastal communities. Sediment damage in NPR-A is either negligible or nonexistent. No communities are seriously affected by stream floods at this time, although bluff erosion is noted on the Meade River. Development Plans on streams will have to take into account the size of measured and projected flood flows, and coastal communities may require protection from beach erosion. *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resources, Watershed Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study Report 2, Section 9. Water Supply and Use Water is presently taken from streams and lakes in the open-water season, from deep pools and lakes in winter. During spring breakup high sediment loads may cause stream water to be unusable or unpotable. Water quality is good, suitable for most uses, after breakup until mid winter. However, the quality deteriorates in late winter in many lakes and stream pools due to freeze concentration of dissolved chemical constituents. Most community water supplies are drawn from lakes in which the water quality varies throughout the year. With the exception of Barrow, no community uses water treatment for water drawn from natural sources. Barrow presently has both a reverse osmosis and a distillation system that treat water for community use. In addition, ice and snow are melted for domestic and other supplies. Water use outside the traditional communities is limited almost entirely to the industrial uses of the exploratory drilling program at this time. About 1.7 million gallons of water is required for drilling each medium-depth well and about 6.5 million gallons for each deep well. Large amounts of water are also used to create ice roads. The water sources used and the amounts of water consumed daily at NPR-A communities are presented on table 3. Problems related to water yield and quality are not yet large within the North Slope area. Nearly all communities have alternative water sources which are utilized during breakup to avoid poor water quality in normal sources. The quality of water deteriorates through the winter in shallow lakes used for supplies, but ice and snow may then be used. Sewage and waste water disposal in the larger communities such as Barrow may well become a problem; at the present time the risk of contamination of surface water supplies by these wastes is considerable. Water supplies will be critical factors in development of mineral or petroleum resources and construction of temporary roads. Technology makes it possible to withdraw substantial amounts of water without degrading the environment. However, the storage of water for industrial use in winter and disposal of waste waters have ecological and hydrologic implications that need to be considered on a site-specific basis. Watershed Opportunities Nearly all of NPR-A is virtually undisturbed, and no action should be taken at this time to stabilize bluffs, enhance water quality, control natural flooding or reduce flood damage. Additions to the water supplies to meet future demands could be made by the use of snow fences to increase the amount of snow trapped in drainage areas; lakes could be deepened by dredging to provide greater storage. Site-specific solutions will have to be developed for given locations to avoid adverse impacts of development and protect the present quality and quantity of water. The water resource of NPR-A is critical to wildlife. It is the source of much primary production on which ducks, geese, and other waterfowl and 148 162" 160" 158" x 156" \ ise" a 1s" 180 n° s 3 a ALASKA BS ; = _ \ mph A8 oF LOCATION MAP ne BEAUFORT CHUKCHI SEA Y WAINWRIGHTS Wainwrigtt Inter TRSMEKPUK a LAKE PRUDHOE BAY @ ~ pEADHORSE®@ A TroK ge g 6 z SAGAVANIR 69 130° i NATIONAL PETROLEUM RESERVE - ALASKA us. ocPaRtMeNT OF THE INTERIOR NPR‘A STUDIES WATERSHED RESOURCES. SECTION 9 PLATE NO. 1 Drainage Basins, Runoff Zones and Surface Water Collection Sites A i i> 7 g MEAN ANNUAL RUNOFF COLLECTION SITES lr 2 : pene ws _ GAUGING staTIONS a wareR auaLity : d per square mile COLLECTION SITES (sampled for chemical | * and sediment content) = o STREAMFLOW SITE & WATER-QUALITY ws A. gti fet per second pr COLLECTION SITE (sampled for chemical content) lz \ a MISC, STREAMFLOW SITE se 1-2 cubic feet per second per = f ame STAGE MEASUREMENT STATION = iq: 2 cuble feat per second —:—- DRAINAGE BASIN BOUNDARY 2G mile . By ALASKA $5 5 CHUKCHI a One — : 2 ee SEA a oO “ 3 ¥ % 5 & ( z : ( z * = : $ =} 2 3 ad é § 694 US. DEPARTMENT OF THE INTERIOR NPR-A STUDIES: on”) NATIONAL PETROLEUM RESERVE - ALASKA WATERSHED RESOURCES, SECTION 9 PLATE NO. 2 Generalized Lake Depth LAKE DEPTH © 0 toand including 4 feet © 4 toand including 7 feet @ = 7 toand including 15 feet O Greater than 15 feet Table 3. Water Use by Communities. Water Use Estimated (gallons per day Daily Total Community Population (per_capita) Source (gallons) Atkasook 86 (1977) 2 Imakrak Lake 172 Meade River Unnamed stream Barrow 2,600 (1977) 10 Esakauk Lagoon (BIA) 26,200 Emaiksoun Lake (community) Naval Arctic 130 Imikpuk Lake 29,250 Research Laboratory (NARL) Nuiqsut 157 (1977) 1 Creek(summer ) 157 Lake (winter) Wainwright 398 (1977) 4 Tank storage 1,600 from lake Wainwright DEWLine 15 33 Tank storage 3,500 POW Barrow (included in NARL water use) See NARL POW 1 Lonely 15 30 Tank storage 450 from lake Umiat 30 (summer) 40 Colville River 1,200 Unnamed lake APPROXIMATE TOTAL 62,000 shorebirds depend, and it is the source of fish which supply human and animal food. Water is also a vital part of the nesting habitat of many migratory birds. Use of water sources by industry or communities may thus conflict with other uses or needs. Air Quality The air quality of the Barrow area and of NPR-A as a whole is described by the U.S. Department of the Navy in their Environmental Impact Statement for the Reserve as being very good. Windblown dust, smoke and other pollutants are noted at times; except near the established communities, these all have natural causes and are not of prolonged duration. The present high level of air quality should probably be maintained as Class | throughout NPR-A on an interim basis. In the event of future industrial needs or national requirements, air quality could be lowered for that part of NPR-A which would be affected. Land Resources The Colville River is one of several geographic features of NPR-A on which boundary descriptions are based. There is uncertainty as to which bank of the river forms the eastern boundary of the Reserve; this in turn affects present and potential land use and management. Photo by T. Bendock. Land Resources Summary* Current Land Status and Use President Harding signed Executive Order No. 3797-A on February 27, 1923, designating about 23.6 million acres as a Naval Petroleum Reserve (Pet-4) on the North Slope of Alaska. The responsibility for the administration of this area was given to the Secretary of the Navy until Congress enacted the Naval Petroleum Reserves Production Act of 1976 (Public Law 94-258) and specified that administration be transferred to the Department of the Interior. The Reserve was also renamed the National Petroleum Reserve in Alaska (NPR-A) by the Act. The original Executive Order contained boundary discrepancies which have not yet been resolved. Especially important are the Colville River and marine coastline boundaries, as these areas contain submerged tidelands and navigable streams subject to state entitlement under the Submerged Lands Act of 1953 and the Alaska Statehood Act of 1958 provided they are not included within the confines of the NPR-A reserve. The Navy in 1972 published a more precise boundary description in the Federal Register, but in 1975 the State of Alaska filed a lawsuit seeking to void the Navy boundary notices and to affirmatively vest title to the Colville River bed and certain coastline submerged lands in the State of Alaska. This lawsuit is still pending. Interim conveyance of land under the Alaska Native Claims Settlement Act has been made to the four village corporations within NPR-A (Atkasook, Barrow, Nuiqsut and Wainwright) and involves the surface estate of almost 475,000 acres. The subsurface (mineral) estate of these lands was retained by the United States as directed by the Act. Except for 1,450 acres of land deeded to the State of Alaska at Umiat, the remainder of the land in NPR-A, about 23,120,000 acres, is under federal administration. Land status on NPR-A is portrayed in Plate |. Only a_=small proportion of NPR-A is intensively used. That use is primarily at villages, military installations, and petroleum staging and drilling areas. Barrow is the most intensively developed area within NPR-A, with its population of 2,700, including the suburb of Browerville, Naval Arctic Research Laboratory (NARL) facility (4,541 acres), Air Force DEWLine site (268 acres), and other federal facilities. Pods of less intensive land use are found at Atkasook, Nuiqsut, Wainwright, the petroleum exploration staging sites at Umiat and Lonely (DEWLine site), and active Air Force DEWLine_ sites at Wainwright and _ Lonely. Land administered by the U.S. Department of the Interior, Bureau of Land Management (BLM), is essentially undeveloped. *For a full discussion of this topic see National Petroleum Reserve in Alaska Task Force, 1978, National Petroleum Reserve in Alaska, Values and Resource Analysis, Land Resources: U.S. Department of the Interior, National Petroleum Reserve in Alaska, 105(c) Land Use Study, Study Report DQ Cantinn In Land Use Planning and Controls. The North Slope Borough, by state statute, has the planning and zoning responsibilities for the Arctic Slope. The North Slope Borough Municipal Code of Ordinances, adopted in 1972, provides for the regulation of land uses and improvements by zoning district. In NPR-A only the lands under interim conveyance to the villages of Atkasook, Barrow, Nuiqsut and Wainwright have been designated a zoning district under this code. These lands lie within the "RD", Rural Development, district which permits all uses except those hazardous or injurious to surrounding property or persons. Federal lands administered by the Department of the Interior have not yet been zoned by local authority. Quality and Condition of Land. Early petroleum exploration activities and DEWLine site construction in the 1940's and early 1950's caused some environmental damage to the sensitive Arctic landscape. At that time little was known of tundra ecosystems, and construction and _ transportation techniques unsuitable to Arctic conditions were employed. Today many early caterpillar trails and drill site scars remain visible throughout NPR-A. In addition, equipment and materials were abandoned at many places in NPR-A at the conclusion of each project because of the high cost of transportation and labor for removal. Seventeen solid waste sites identified on or near NPR-A are scheduled for cleanup and removal. All activities occuring on NPR-A are now monitored to maintain environmental integrity. Leases. Fifty-five offer applications to lease lands for oil and gas development are still of record. They were initially rejected, and the rejection decision was appealed through the U.S. Ninth Circuit Court of Appeals which remanded the cases back to the Bureau of Land Management (BLM) for further action. Rights-of-Way. Five applications for rights-of-way have been filed by the U.S. Coast Guard for communication sites on the Arctic coast. A number of rights-of-way have been granted to various federal agencies for various uses. Most of these are in the Barrow area. Unauthorized Land Use. A systematic use inventory of NPR-A was initiated during the summer of 1978. Several federal agencies have activities and facilities not now authorized on 14 sites. Most of these sites were formerly withdrawn, but Public Law 94-258 terminated all withdrawals on NPR-A except for the NARL tract No. |. In addition, about 40 cabins used seasonally for subsistence activities are scattered throughout NPR-A. Improvements for a youth summer camp have been placed on federal lands. A Notice of Trespass has been issued for unauthorized removal of sand and gravel near Point Barrow. Special Designated Areas. Three areas are formally designated as having significant wildlife values requiring special protection measures. The Utukok River uplands area contains important habitat, including historic calving areas, for the western Arctic caribou herd. Teshekpuk Lake and its watershed is important habitat for large numbers of migratory waterfowl and other birds. The central Colville River and its tributaries provide critical habitat and hunting range for the endangered tundrius subspecies of the peregrine falcon. Protection measures include restrictions on aircraft flvina at low levels over the area and closiire of the araa durina cnarcifiad ALASKA CHUKCHI IAGUGE80 BEAUFORT NATIONAL PETROLEUM RESERVE - ALASKA us. DePaRTMENT OF THE INTERIOR LAND RESOURCES, SECTION 10 eea NPR-A STUDIES PLATE NO. Land Status NATIVE VILLAGE CORPORATIONS: 474,570 acres STATE OF ALASKA: 1,450 acres NAVAL ARCTIC RESEARCH LAB (NARL): 4,541 acres NATIONAL PETROLEUM RESERVE : 23,119,000 acres LANDS BORDERING RESERVE OIL & GAS PROSPECTING PERMITS (on file as of 2/27/23) Land Tenure Improvement Opportunities For background information on the topics, see the preceding pages on land resources. Boundary Question. It is important to define precisely the boundaries of NPR-A, especially along the northern Colville River and Arctic coastline. Until this is done, ownership and use of land and resources near a questioned boundary is uncertain. Resolution of the problem could be accomplished by negotiation with the State of Alaska, awaiting outcome of the pending lawsuit, or soliciting Congressional action. Final Village Corporation Conveyance. Engineering support in the form of cadastral survey is needed before final land conveyance to the involved village corporations on NPR-A can be made. Pending Offers for Oil and Gas Leases. Final action can now be taken on the pending fifty-five applications of record to lease NPR-A lands for oil and gas. Federal Facilities and Withdrawals. The authorization for several federal facilities (except NARL tract 1) was terminated by passage of the Naval Petroleum Reserves Production Act by Public Law 94-258; these facilities had previously been authorized under various withdrawals. Right-of-way applications are filed for several new federal facilities; others have been constructed without proper authority. In each case, authorizing actions are required to recognize these activities. Private and Regional Corporation Land Use. The subsistence cabins used for hunting and fishing and Barrow youth camp could be legalized in several ways. The five corporation applications on file for cemetery sites or historic places made under Section |l4(h) of the Alaska Native Claims Settlement Act (ANCSA) should be finalized. Conveyance could be made when the sites have been assessed for size and validity. Townsites. Trustee townsites have been surveyed and occupied at Barrow and Wainwright. About one-third of the lots surveyed in Wainwright have been conveyed to the city by the BLM townsite trustee. More than 200 surveyed lots and nearly 425 acres held in reserve are available to Barrow for community expansion purposes. Easements. ANCSA provided for reserving public-purpose easements on conveyed village corporation lands. Easements reserved to the United States are currently under litigation. However, final easement reservations may be adjusted to meet the criteria established by the court as provided by an easement agreement dated August 6, 1976, between the Arctic Slope Regional Corporation, village corporations within the Arctic Slope region, and the Department of the Interior. Under new departmental policies, access to public land is emphasized. In general these road and trail easements allow access across national land, between public facilities and from public facilities to adjacent public lands. Management Enhancement Opportunities. _ Under ANCSA, title to the surface actata Af cnoecin Iac ado tS NINA A - ae ee ae --at ee whereas the subsurface (mineral) estate was retained by the federal government. The Arctic Slope Regional Corporation was not granted the subsurface estate beneath the lands in NPR-A_ conveyed to village corporations but was instead given the right to select "in lieu" the subsurface estate of a like number of acres outside NPR-A boundaries whose surface administration would remain with BLM. Thus, for nearly one million acres of the North Slope, ownership and management responsibilities are split among the United States, the four village corporations in NPR-A, and the Arctic Slope Regional Corporation. Where the surface and subsurface estate are in different ownerships, conflicts arise over resource use and ownership, making administration and management difficult. The Arctic Slope Regional Corporation may want to exchange its interests in the subsurface estate outside NPR-A for interest in the subsurface estate inside NPR-A beneath village corporation lands with proper Congressional authority. Consolidation of land holdings in this manner could greatly simplify administration and management capabilities for all parties involved. Issues State Selections. About 33 million acres of land remain to be selected by the State of Alaska under various laws. Because of this, the state has developed a selection pool of nearly 45 million acres. Although not available for selection, two areas within NPR-A were until recently included in this pool. Native Allotments. North Slope Natives were not granted subsistence site allotments under the Native Allotment Act of 1906, although about 180 applications were filed. (See Plate | in Native Livelihood and Dependence summary, this volume.) No allotments have been allowed on NPR-A by BLM because the lands were not open to application pursuant to Executive Order No. 3797-A dated February 27, 1923. One rejected application is now on appeal with the Interior Board of the Land Appeals (15 IBLA 490). The local Native people feel this treatment was unfair as other Natives in Alaska were granted title for up to 160 acres of land at key subsistence sites. A class action suit has been filed in U.S. District Court on behalf of NPR-A Native allotment applicants. If considered appropriate, alternative actions might include: issuing a long-term lease or permit under the Federal Land Policy and Management Act; exchanging village corporation lands for key subsistence sites under Section 22(f) of ANCSA; reconsidering of Native allotment applications filed on NPR-A after Congressional approval to reconsider the applications; or designating, for future protection under Section 104(b) of Public Law 94-258, those lands primarily valuable for subsistence purposes. Existing and Potential Conflict EXISTING AND POTENTIAL CONFLICTS Socioeconomic and resource studies prepared as part of this 105(c) program have presented resources and values and identified some of the problems or conflicts which must be dealt with when considering land use options for NPR-A. This section summarizes the major existing problems or conflicts and briefly discusses some of the conflicts that may result from the use of the various resources of NPRA. The land use options presented in this document will suggest potential solutions to these conflicts. This section has four apparent limitations: 1!) It is necessarily a brief summary of conflict; 2) the very perception of conflict in any given situation depends in part on the viewpoint of the observer and the state of knowledge; 3) most of the conflicts are and will remain potential until a person, group, or government proposes to make use of the land and its resources in a way which will either damage another resource(s) or infringe on another's use; and 4) it cannot consider site-specific conflicts. Because of the need for brevity, many conflicts will be presented as extremes or in "either-or" terms. Such, of course, is rarely the case. A mining opera- tion, for example, will not totally destroy other resources. In fact, with today's technology and regulations there may be little evidence of the mine 200 years from now. Nevertheless, the fact remains that mining and associated infrastructure, e.g., transportation and settlement, would have short- to long-term impacts on the area. The analysis discussion following each land use option addresses specific conflicts and their effects. Land use conflicts take many forms on NPR-A, including legal-political, socioeconomic, technical, geographic, and cultural. There are legal conflicts over boundaries, land ownership and the authorities to regulate harvest of game and certain land uses. There is an economic conflict based on whether or not the mineral resources of NPR-A are to be developed, and the legal or management system under which development occurs. The system will determine revenue distribution to the various levels of government. Geographic conflicts will arise when two or more resources occur in the same place, and technical and/or mitigation measures may be in conflict if the use of one resource will destroy, diminish or preempt the use of another resource. Cultural conflicts are inherent in change. Major uses to which NPR-A is presently being put by man are sport and subsistence hunting and fishing, other subsistence activities, very limited recreational use, scientific investigation, and government-sponsored oil and gas exploration and extraction from the Barrow gas field. Even these minimal uses have generated controversy. Except for oil and gas exploration, there is, at present, little use conflict within the Reserve. However, the location, extent, type, and value placed on the various resources provide the potential for conflicts to develop when these resources are used by man. Existing Conflicts and Problems Oil and Gas Exploration The current oil and gas exploration program includes seismic work, the drillina of some 26 exnloratarw welle and the attandant ranetrintian vf winter and/or all-weather airstrips and local or short roads which connect airstrip(s), borrow pits, and drill pads. Concern has been expressed over the damage to habitat, disturbance of caribou and waterfowl, disruptions of subsistence activity, possible fish kills, and the effect of roads on wilder- ness, wilderness recreation, scenic values and archaeological resources. Whether or not the current exploration program has caused any significant or lasting damage is a subject of much controversy. Boundaries No boundaries of NPR-A have been clearly identified on the ground, and all are in dispute. Thus, land ownership in many places and, therefore, con- trol of sand and gravel and the control or share of future oil discoveries are in question. Until these uncertainties are resolved, difficulties will continue to be encountered in the exploration of the Reserve, in land use and management planning, and in working with the Arctic Slope Regional Corporation and the State which control adjacent lands and resources. Cultural Change The modern western world is affecting the life and culture of the Inupiat, both individually and as a people. Major change started nearly |I50 years ago with the advent of the whaling ships to the Arctic. The pace of modernization has accelerated in housing, power, communications, transportation, education, and many other areas, especially during the past ten years. Fears are expressed that the introduction, voluntary or imposed, of new ideas, institutions, jobs, and technology will separate the people from their traditional lifeways before an internal cultural adjustment can be made to the changes that are occurring. Medical services, education, travel, improved communications, particularly television, increased tourism, gas engines, and many other avenues of exposure have affected and are affecting their daily lives and their traditional culture. Development, whether mineral, improved transportation, or new tourist and recreational facilities, will bring in different ideas, new people, and change. Development that results in decreased wildlife productivity or development and/or management rules and regulations that result in reduced harvest quotas or restricted access will not only affect the physical well-being of the Inupiat, but will also have sociological and psychological impacts on the individual and his culture. Life will not be the same. Individuals who have been self-sufficient may be forced to rely on more wage work or government social programs and may not be able to maintain either their social status or their own self-esteem. Some of this change is occurring, and will occur regardless of government activities on NPR-A. Some change, such as improved medical and educational services, needs to occur. Although the Inupiat have shown they are able to participate in economic development while maintaining their traditional values, an extremely important point of conflict which needs resolution is how much choice the local people will have in controlling the type and amount of change they accommodate at any one time, hence how much control is secured by local institutions. Local Control At present the land of NPR-A is held by the federal government. Harvest of wildlife is regulated by the state or federal government. Local government and residents feel they are directly affected by decisions made by the state and federal government and, therefore, want control or at least a larger part in determining the future use of resources on NPR-A. Subsistence Subsistence is an integral part of the Inupiat culture. Because of its importance, it is given a separate treatment, even though it is fully realized that it cannot be separated from the Inupiat culture. Subsistence has three major aspects. The first is the cultural and social ties continued through subsistence activities. Second is the age-old cultural relationship between the people and the resources of land and sea. Third is hunting, fishing, and gathering--the actual harvest and the physical and nutritional benefits derived from the naturally occurring products of the land. Subsistence activities require large areas, easy access, and the use of motorized transportation because of long’ distances. Nonpermanent structures, such as cabins and drying racks, are necessary at fishing camps, and trail cabins or shelters are used for winter travel and hunting. Development, whether of minerals, recreational facilities or any other resource, which interferes with subsistence use or reduces the harvest will conflict with this culture. Designation of the public lands into a system which by legislative intent or subsequent management decisions disrupts the subsistence aspects of the Inupiat culture will also cause conflict. Sport and Subsistence Hunting If NPR-A's low-density fish and wildlife populations with limited annual recruitment are faced with increased demand, restrictions will have to be placed on the harvest. The Inupiat whose culture is linked to these resources and other local residents who are dependent upon these resources for food contend they have a right to a priority use of the resources over sport hunting. The state government has adopted legislation giving subsistence uses a priority position. Similar legislation is proposed in various (d)(2) bills before Congress. This potential prioritization has developed into a statewide and national conflict among sport hunters, commercial guides, and subsistence hunters. Central to this conflict is a continuing problem of defining what is subsistence use and who, if anyone, is entitled to special subsistence rights. During the recent western Arctic caribou herd "crisis" (a sharp population decrease), the State of Alaska adopted regulations providing for a subsistence harvest based on _ local residency. The sport hunters objected to this priority use and asked for equal access to the game. They successfully challenged the regulations in Alaskan courts. There is also an international aspect to subsistence issues. The United States is discussing with Canada the possible modification of international migratory bird treaties to allow spring hunting by subsistence users. This too may be subject to legal challenge. Caribou, walrus and whales are also the subiects of international. national and reaional concern. Another important element in this conflict is the delineation of which level of government - federal or state - will have jurisdiction over management of the resident game species. The state government has traditionally main- tained this authority, but the federal government, both as land owner and under the federal trust responsibility to the Natives, has a_ significant interest in game management. Potential Conflicts Existing land use and activity conflicts are few and not particularly severe. When other possible land uses and activities are introduced, a number of other major conflicts may arise. These conflicts are discussed below. Oil and gas are the only resources with the potential for some development before 2000 that may cause significant conflict. They are not addressed in this land use study but are being addressed in a separate study, the 105(b) or "Presidential Study" which is due to be completed by January 1980. Mineral Extraction The probability of immediate mineral development in NPR-A is believed to be low. If there is no immediate market or need for mineral development in NPR-A, then resource disturbance will be very low for at least the next 20 years. However, in the long run, extraction of lead, zinc, and coal (and possibly uranium) is technically conceivable within NPR-A. Mining can be done either by strip or underground techniques. Development activities would require not only the mine site but dormitories (or a small town although such was not considered desirable in this report), concentrators or other processing facilities, local roads, and a road, pipeline or other transportation system out of the area. Renewable Resources vs Mineral Extraction. The change factor usually introduced into an "undisturbed" area is development by man. This change is measured with the existing environmental conditions as the baseline. Conflict, then, is usually defined as the degree of departure from existing environmental conditions. Such a measure does not necessarily include the socioeconomic values to be gained from the change. In NPR-A a major potential change or development factor is expected to be mineral extraction, e.g., lead, zinc, coal, oil, and gas. Thus, in this case, it is mineral extraction that is credited with the generation of conflict. This definition, however, may be reversed. If mineral extraction - products needed or required by the nation - is the baseline, then, other uses cause the land use conflict. Under the latter definition, wildlife, wildlife habitat, Wilder- ness, Wild Rivers, recreation, and subsistence lifestyle conflict with the development of minerals. Mineral Extraction vs Wilderness. The highest known potential for hardrock minerals is within parts of the De Long Mountains. This is also among the most desirable areas for Wilderness designation. Hardrock mining activities in NPR-A will probably directly affect only small areas, but even such "pocket" development and the accompanying surface transportation corridors will result in wilderness being cut into smaller parcels than now exist. On the other hand, prior designation of Wilderness areas would eliminate all major mineral development in those areas. Mineral Extraction vs Recreation. Improved transportation facilities and services built to support mineral extraction could provide access to the area for recreational purposes, thereby increasing recreational opportunity. However, mine sites, roads, and other related facilities could adversely affect visual quality and wilderness-type recreational opportunities. The quality of sport hunting and fishing may be reduced by the increased access. Mineral Extraction vs Fish and Wildlife. Considerable evidence exists to suggest that maintenance of a large migratory Arctic caribou herd is not compatible with large-scale development and its secondary impacts. The potential for severe conflicts is greatest in relation to calving and pre- and post-calving migration areas. An example of possible acute conflict is the Utukok area which has a significant coal resource and is an important caribou calving ground. Activities such as mine sites or transportation facilities located across caribou migration routes, particularly in the mineral belt of the De Long Mountains, could adversely affect the western Arctic caribou herd. Some consideration must also be given to the fact that the newly created Noatak National Monument is biologically linked to NPR-A. Development of the significant mineral potential of the De Long Mountains could affect those linkages. Caribou, wolves, wolverines, and grizzly bears are species known to require relatively large undisturbed areas such as wilderness and are particularly susceptible to disturbance, harassment, overharvest, and other adverse impacts of development in open tundra environments. A study of development at Prudhoe Bay should aid in understanding the development- Wilderness interface. Long-term results of primary and secondary impacts of Prudhoe Bay development will not be fully known for many years and, thus, cannot yet be used as a basis for prediction. If the decision is made that an area is to be used solely for wildlife and related activities, coal and hardrock mineral extraction opportunities would be precluded. Mineral Extraction vs Subsistence. Mineral development will create jobs that may be desired by local residents. Yet, any developmental activities that reduce or disturb the wildlife population or restrict access may increase the difficulties of obtaining or even eliminate subsistence resources desired by another segment of the population. New population concentrations at development sites or roads that encourage concentrated transient use of the area would cause change in the ecosystems and bring new pressures on the resources of the North Slope. Mineral Extraction vs Other Resources. The possible scarcity of gravel resources within northern NPR-A will pose a serious problem for future development, road building, oil and gas drilling and other related construction activities requiring gravel. Conflicts may arise between needs for gravel for village use and demands for use in resource development. In southern NPR-A, both gravel and bedrock from which aggregate can be crushed are available. Careless extraction, or extraction from inappropriate sites, could damage fisheries, Wild River attributes, and scenic qualities of an area. Both coal and hardrock mining would probably have impacts on surface waters within NPR-A. In most streams there is a high spring flow which decreases after the initial breakup except for brief periods of high flow in the fall during and after heavy rains in the mountains and foothills. No flow at all can be measured during the winter months. Under such con- ditions water for mining operations would have to be taken from deep lakes or have to be stored for winter use. Operation of the mining activities might have to cease in winter. The discharge of mining waste waters, even Properly treated, may be a significant problem. Waste-water storage during winter may create icings and in summer this accumulated water may cause ecologic or hydrologic changes. The use of water by mineral industries may be a source of conflict with subsistence resources and with water supplies at communities. There is a possibility of depletion or a failure of a treatment facility which would permit pollution. Transportation If mineral extraction is to occur on NPR-A, a transportation system of some sort will be necessary. There are many statutes addressing rights-of-way across various categories of federal lands. Because of this complexity, many concerns have been expressed in regard to the possibility of surface transportation being’ eliminated within NPR-A or from NPR-A to other regions. In essence, roads may not be built across Wilderness Areas. A process exists for determining if a road may cross a Wild River that is not located within a Wilderness Area. The process involves finding that there is no feasible and prudent alternative to such use, that all possible actions will be taken to minimize harm to other values, and that any conditions precedent to granting of rights-of-way must be related to the policy and purpose of the Wild and Scenic Rivers Act. Thus, while road or other surface crossings are possible, the process is quite involved and the conclusions by no means assured. Land status outside the Reserve, such as the Noatak and Gates of the Arctic National Monuments, or uncertain land status will likely complicate the future provision of ground transportation. Motorized Transportation A common misconception in Alaska is the belief that Wilderness Areas and Wild Rivers have the same management regulations. This results in a con- cern that the designation of an area as Wilderness or a river as Wild will preclude the established use of motorboats, snow machines, and airplanes for access. This is not necessarily the case. The Wilderness Act states that there shall be: +..no use of motor vehicles, motorized equipment or motor boats, no landing of aircraft, no other form of mechanical transportation, and no structure or installation within such area. The Act goes on to provide that the Secretary may permit aircraft or motorboats where their uses are established. Snow machines are not mentioned. The Wild and Scenic Rivers Act does not expressly permit or preclude motorboats, airplanes, or access by snow machines -- including running on frozen rivers. The use of such vehicles is at the discretion of the land manager as regulations are established for the management of a particular area. However, where motorized vehicle use has been established, it has been allowed to continue, as in the Hell's Canyon Wild and Scenic River. Recreation vs Subsistence Recreational use of NPR-A is not expected to be high within the foreseeable future. Nevertheless, recreational use, particularly sport hunting, could, in some parts of NPR-A, conflict with subsistence activities. Heavy recrea- tional use of rivers or intensive recreational development could adversely affect subsistence activities and traditional sites important to the Inupiat people. Reindeer vs Caribou As part of the continuing search for resources to support the local population, some have considered the reintroduction of reindeer herding. Reindeer and caribou compete for the same range, and reindeer will readily join a caribou herd and be lost to the herdsman. Predator control of wolves, and possibly bears, perhaps at public expense, would likely become necessary to protect an investment in reindeer. This would become a major environmental issue. These and other severe range use conflicts develop between reindeer and caribou, and, thus, between herders and sport hunters where reindeer and caribou share the same range. The introduction of a domestic species and the elimination or reduction of a wild species would reduce recreational opportunities and wilderness values and have broad ecological ramifications. Subsistence resources would be widely and substantially reduced if caribou were denied use of their range. Local vs National Interest Local, state, and national interests are intertwined but are not identical in NPR-A. There are state and national interests in the mineral resources of NPR-A, and the local residents need or may need a viable economy includ- ing jobs or other opportunities. However, the development of the resources may heighten the conflict between old and new lifestyles and decrease the resources on which subsistence depends. There is an Inupiat and national interest in maintaining fish and wildlife populations and existing wilderness conditions. Wilderness designation is a means of protecting such values. Subsistence use of those areas, however, requires the use of motorized vehicles and temporary structures. A land manager could interpret national interest in such a way as to preempt or severely restrict these activities. Geographic Areas of Potential Conflict The major change which could cause conflict is non-renewable resource development. If large-scale development and its infrastructure were to occur, these potential conflicts could become particularly acute in certain areas of NPR-A: Area Potential Conflict With a. Development in the De Long Mountains Wildlife population, habitat and migration routes Wilderness Wild Rivers Recreation Subsistence Archaeological sites Water and air quality Scenery b. Development of the Utukok area Wildlife population (caribou, grizzly) Recreation Subsistence Wilderness Wild Rivers Scenery Archaeological sites c. Development in the Kigalik-Titaluk Wildlife population area Subsistence Wilderness Archaeological sites d. Development in the Colville River Wild River area Fisheries Recreation Peregrine falcon Wilderness Scenery Archaeological sites e. Development in the Icy Cape area Migratory birds Wilderness Archaeological sites Subsistence f. Development in the Teshekpuk Lake Waterfowl area Subsistence Wilderness Caribou Conclusion Many additional specific conflicts could be discussed. Almost all of these conflicts would be generated from development or change. This section has only attempted to highlight the most important of those changes and conflicts that can be envisioned at this point. Many conflicts, existing or potential, may be resolved or mitigated. Boundaries may be settled by negotiation or court action and use conflicts may be resolved through technical mitigation, but not all conflicts can be totally resolved. Some may be only partially resolved by _ mitigation measures and some compromise is necessary if two or more conflicting uses are to continue. Other conflicts may be handled by time or space zoning so that incompatible uses do not occur at the same time or place. In some instances, there may be no technical solution to the conflicts, and certain uses must be temporarily or permanently prohibited. The most immediate and difficult problem of all is not the land uses and their potential effects on other resources. It is the effects that change will have on the Inupiat people during the next one or two generations. They have gained power and pride from the Alaska Native Claims Settlement Act and the formation of the North Slope Borough. They are beginning to obtain more of the technology, services, and "conveniences" that make living somewhat easier, but they see the "old ways", their unique lifeway, being eroded perhaps faster than they wish or are able to cope with. How well this cultural problem is handled may be the measure of the success of the management of NPR-A. Each of the six land use options which are subsequently presented will address these existing and potential conflicts. Public Participation Analysis PUBLIC PARTICIPATION ANALYSIS This section is a summary of those public comments on the 105(c) Study and its preliminary land use options. It is not intended to include all the opinions expressed but describes a generalized position for special interest groups and others who commented or responded in the 105(c) review process. This material is summarized here so that the reader may be aware of the major issues, concerns or problems raised by these groups and which the land use options were required to address. Preliminary land use options were developed by the Planning Team in July of 1978 and taken to the public over the next four months. Changes were made in the preliminary options in response to public comment, comments made by the State, North Slope Borough, the NPR-A Task Force, various federal agencies, and the Alaska Policy Group of the Department of the Interior. Thus, the six options in this Final Study are the result of the public participation process and not a dogmatic adherence to the original public hearing draft documents. The chronology chart (fig. 11), which follows, illustrates the progressive changes. A detailed record of public participation and the comments received are available in the Record of Public Participation, Volume 3 of this Final Study. In addition, the State of Alaska has prepared a position that is recorded in Volume I(a) of the Final Study, and the Native position is presented in Volume I(b) of the Final Study. A complete file of public commentary may be inspected at the Bureau of Land Management, Anchorage Federal Office Building, 701 C Street, Anchorage, Alaska 9951/3. Methods Used to Obtain Public Opinion The importance of public participation was recognized from the start of the planning process. The Platining Team included representatives from the North Slope Borough and State of Alaska. A public participation plan was developed to provide a framework of methods and schedules to initiate public involvement throughout the planning process. The names of 1,700 persons were placed on a mailing list to receive information on the 105(c) study. A preparation plan, brochure and newsletter were prepared to make the public aware of the 105(c) study. Approximately 500 copies of the plan for preparation, 2,000 copies of the brochure and 1|,700 copies of the newsletter were distributed to state residents, special interest groups, universities and local, state and federal government. A total of 78 meetings were held to present the 105(c) study and obtain comments on issues and land use options. The results of 1977 field work were presented to the public in the fall of 1977. The first major public commentary on the study was received in early February 1978 when the Planning Team met in Anchorage with Native residents of the North Slope. Later, 24 meetings were held in the NPR-A villages and some communities outside NPR-A which would be affected by the land use plan developed. All testimony and presentations at the villages were translated into Inupiat to help overcome the problem of communicating legal and technical concepts and nilanningn ranrante Pa RAAe AR ae) Ae ak 48a et Figure 11. Chronology of Option Development (Letters and roman numerals indicate temporary designations) July 1, 1978 A 1 \ PRESERVATION DEVELOPMENT OPTION OPTION July 7, 1978 B c Sept. 28, 1978 I II III IV V NEW Y v v v (Preservation) Oct. 12, 1978 I II III IV V VI (Total | Wilderness) | i v v v y \ Wilderness Nov. 3, 1978 I II III IV V Option VI | dropped New Option (wildlife, subsistence) Interim Wilderness New Option v v (Wildlife) Nov. 30, 1978 I II III IV V VI Interim Wilderness During the last four months of 1978 public meetings and workshops were held in Anchorage, Fairbanks and virtually all North Slope villages to give as many people as possible the opportunity to review and express opinions, values and concerns on the use of NPR-A, the 105(c) study, and the preliminary land use options. The 105(c) staff also met with the Northwest Mining Association, at their request, in Spokane, Washington. In addition, 27 meetings of the Task Force and the Panel on Coordination were held to monitor the study's progress and _ to coordinate the 105(c) study with other NPR-A studies. Approximately 2,000 people attended the 78 meetings held. Radio and television were used to provide maximum coverage for announcements of public meetings. Ten video tapes, with Inupiat translations, were prepared to explain the 105(c) study and the resource values identified by each Work Group. The tapes were shown twice in Barrow at prime time and once at Anaktuvuk Pass. In addition to the meetings, numerous written and personal contacts were made to obtain information and to ask selected persons, groups and government agencies to review the technical data and study products. An approximate cumulative total of 2,400 copies of six draft documents (Socioeconomic Profile, Physical Profile, Ecological Profile, Values and Resource Analysis, Planning Area Analysis, and Preliminary Recommend- ations and Options) prepared for the study were sent out for review by villages, industry, environmental groups, sportsmen's groups, universities and federal, state and local government. The North Slope Borough prepared a questionnaire in cooperation with the Task Force to seek comments on the options, subsistence, mineral develop- ment, Wild and Scenic Rivers, Native culture, Native allotments, and Wilderness. More than 500 copies of the questionnaire were distributed to meeting participants; however, only 28 copies were returned. The questionnaire can be found in Volume 3 of the Final Study as Appendix I!. Public Opinion and Positions The public comments summarized in the following pages were taken from 28 questionnaires, |8 letters, and the verbal comments from 26 public meetings. The individuals, interest groups and federal, state, and local governments who submitted comments were divided, for analysis purposes, into four categories; a fifth category includes those who were not associated with a specific interest. North Slope Borough and Native Interest Groups The comments of the Native people were obtained throughout the planning process. Intensive efforts began with seminars on February 8 and 9, 1978, when village representatives were flown to Anchorage. Issues raised at the seminars became part of the foundation of the objectives, recommendations and land use options developed by the Planning Team. A listing of the issues appears as Appendix | in Volume 3 of the Final Study. Following the Februarv seminars. meetinas were held at each villaae. as described above. Certain conclusions can be drawn from the comments submitted by the Native people. However, as with any group, there is a range of opinion; the comments herein may not reflect the full range. The following discussion was drawn from the Native people's comments as the study progressed. The Natives seem to feel that their interests could be better expressed in a Native position than by adopting one of the six preliminary options Prepared by the Task Force. In the comments made during meetings with the Natives they noted that planning assumptions should place emphasis on the Inupiat, not a larger public, emphasize a mixed cash and_ subsistence economy, recognize the mandated purpose of the Arctic Slope Regional Corporation and village corporations to make a profit, recognize an international Arctic in terms of the migratory wildlife, and consider the future of the Native people after resource development ceases. The Natives have stated that the study's time frame was too short and that they want more time to voice their opinions. They want to be kept informed of activities occurring in NPR-A. More public participation, especially in the 104(d) and 105(b) studies, is desired. In their opinion, fragmenting the study into three studies has made public review difficult. The Native people appear to support a go-slow approach to resource de- velopment; they have expressed support for the 20-year moratorium on mineral development. The Inupiat feel they can participate in economic development and retain their cultural values. The profit mandate of the Arctic Slope Regional Corporation and village corporations and the mixed cash-subsistence economy indicate they will take an active part in economic development. The Native people support immediate inventory and development of coal, sand and gravel for village use outside critical areas. The North Slope Borough advocates the subsistence lifestyle and is particularly concerned about game management. The Borough supports regional management of caribou and the subsistence provisions of HR 39 if there are regional and local councils created to assure the local people a voice in decisions. They are concerned that the subsistence analysis in the 105(c) study was generally limited to an economic analysis and did not evaluate subsistence as a total system whose foundation is grounded in social and cultural values. They want the subsistence lifestyle and Native culture protected from development, and note that subsistence requires unrestricted access to and throughout the Reserve. The Native people are in favor of granting Native allotments for traditionally used sites. There is also a strong feeling that all of NPR-A should be turned over to the Native people of the North Slope. The Natives object to the current oil and gas exploration program because it affects subsistence values; they feel they are not kept informed about the timing and location of activity. They are concerned that oil and gas exploration, development and transportation were not addressed in the 105(c) Study. During the last four months of 1978 public meetings and workshops were held in Anchorage, Fairbanks and virtually all North Slope villages to give as many people as possible the opportunity to review and express opinions, values and concerns on the use of NPR-A, the 105(c) study, and the preliminary land use options. The 105(c) staff also met with the Northwest Mining Association, at their request, in Spokane, Washington. In addition, 27 meetings of the Task Force and the Panel on Coordination were held to monitor the study's progress and to coordinate the 105(c) study with other NPR-A studies. Approximately 2,000 people attended the 78 meetings held. Radio and _ television were used to provide maximum coverage for announcements of public meetings. Ten video tapes, with Inupiat translations, were prepared to explain the 105(c) study and the resource values identified by each Work Group. The tapes were shown twice in Barrow at prime time and once at Anaktuvuk Pass. In addition to the meetings, numerous written and personal contacts were made to obtain information and to ask selected persons, groups and government agencies to review the technical data and study products. An approximate cumulative total of 2,400 copies of six draft documents (Socioeconomic Profile, Physical Profile, Ecological Profile, Values and Resource Analysis, Planning Area Analysis, and Preliminary Recommend- ations and Options) prepared for the study were sent out for review by villages, industry, environmental groups, sportsmen's groups, universities and federal, state and local government. The North Slope Borough prepared a questionnaire in cooperation with the Task Force to seek comments on the options, subsistence, mineral develop- ment, Wild and Scenic Rivers, Native culture, Native allotments, and Wilderness. More than 500 copies of the questionnaire were distributed to meeting participants; however, only 28 copies were returned. The questionnaire can be found in Volume 3 of the Final Study as Appendix ||. Public Opinion and Positions The public comments summarized in the following pages were taken from 28 questionnaires, 18 letters, and the verbal comments from 26 public meetings. The individuals, interest groups and federal, state, and local governments who submitted comments were divided, for analysis purposes, into four categories; a fifth category includes those who were not associated with a specific interest. North Slope Borough and Native Interest Groups The comments of the Native people were obtained throughout the planning process. Intensive efforts began with seminars on February 8 and 9, 1978, when village representatives were flown to Anchorage. Issues raised at the seminars became part of the foundation of the objectives, recommendations and land use options developed by the Planning Team. A listing of the issues appears as Appendix | in Volume 3 of the Final Study. Following the February seminars, meetings were held at each villaae, as described above. Certain conclusions can be drawn from the comments submitted by the Native people. However, as with any group, there is a range of opinion; the comments herein may not reflect the full range. The following discussion was drawn from the Native people's comments as the study progressed. The Natives seem to feel that their interests could be better expressed in a Native position than by adopting one of the six preliminary options prepared by the Task Force. In the comments made during meetings with the Natives they noted that planning assumptions should place emphasis on the Inupiat, not a larger public, emphasize a mixed cash and subsistence economy, recognize the mandated purpose of the Arctic Slope Regional Corporation and village corporations to make a profit, recognize an international Arctic in terms of the migratory wildlife, and consider the future of the Native people after resource development ceases. The Natives have stated that the study's time frame was too short and that they want more time to voice their opinions. They want to be kept informed of activities occurring in NPR-A. More public participation, especially in the 104(d) and 105(b) studies, is desired. In their opinion, fragmenting the study into three studies has made public review difficult. The Native people appear to support a go-slow approach to resource de- velopment; they have expressed support for the 20-year moratorium on mineral development. The Inupiat feel they can participate in economic development and retain their cultural values. The profit mandate of the Arctic Slope Regional Corporation and village corporations and the mixed cash-subsistence economy indicate they will take an active part in economic development. The Native people support immediate inventory and development of coal, sand and gravel for village use outside critical areas. The North Slope Borough advocates the subsistence lifestyle and is particularly concerned about game management. The Borough supports regional management of caribou and the subsistence provisions of HR 39 if there are regional and local councils created to assure the local people a voice in decisions. They are concerned that the subsistence analysis in the 105(c) study was generally limited to an economic analysis and did not evaluate subsistence as a total system whose foundation is grounded in social and cultural values. They want the subsistence lifestyle and Native culture protected from development, and note that subsistence requires unrestricted access to and throughout the Reserve. The Native people are in favor of granting Native allotments for traditionally used sites. There is also a strong feeling that all of NPR-A should be turned over to the Native people of the North Slope. The Natives object to the current oil and gas exploration program because it affects subsistence values; they feel they are not kept informed about the timing and location of activity. They are concerned that oil and gas exploration, development and transportation were not addressed in the 105(c) Study. There was no clear or strong support for designation of rivers as Wild and Scenic, but Native respondents stated that they wanted the rivers protected and left alone. The Natives acknowledge that the Reserve has wilderness values, but they also want it recognized that they utilize the Reserve extensively and need unrestricted access. Environmental Groups Opposition to Option |, as originally proposed, was expressed by environmental groups. This option would allow immediate development and, they felt, would provide no environmentally oriented designations. The groups did not prefer preliminary Option V1! (total Wilderness) because they believe that development is appropriate for some areas. Option || (multiple use, mineral leasing) was considered a commendable option but not acceptable at this time. Strongest support was for Options |V and V which provide environmental protection and a go-slow approach for mineral development or no mineral development. It was suggested that a stronger protective option be added that provides maximum protection for NPR-A wilderness, scenic quality, cultural values and most importantly, wildlife. Recommendations were desired in all options for use of off-road vehicles, a DEWLine program, Wild River designation for parts of the Colville, the Nigu-Etivluk and Utukok Rivers, and withdrawal of key archaeological sites. The comments generally favored delaying mineral development and accel- erating government inventory of mineral and wildlife resources. There was support for development of oil, gas, and coal for local use. The groups liked the idea of mineral leasing but felt the Environmental Mineral Management Area (EMMA, changed in final options to Mineral Leasing Area) designation was unnecessary. (See Glossary for explanation of Mineral Leasing Areas and other terminology used in this document. ) The subsistence provisions of HR 39 were considered to be suitable. It was generally agreed that subsistence hunting should be given priority over sport hunting. They also supported sport hunting where there is sufficient game. They felt none of the options would adequately protect the Native culture; granting of Native allotments by long-term leases and permits was preferred. Testimony showed environmental groups do not support total wilderness for NPR-A. They opposed the term Alaskan Wilderness (changed in final options to Wilderness but which includes specific access provisions) because it suggests less rigid standards than for National Wilderness. They preferred the standard term Wilderness Study Area to Interim Wilderness. In their opinion, Wilderness designation of the De Long Mountains is needed to protect caribou migration routes. It was suggested that motorized travel be allowed to Wilderness areas but not for recreational purposes after arrival. Wilderness was suggested as a means to protect critical wildlife habitat. Wildlife was considered by these groups to be the primary surface resource. They suggested that the U.S. Fish and Wildlife Service should manage NPR-A because they have experience in wilderness management, oil and gas development, and management of a subsistence area. They called for state-federal cooperative management of caribou. There was strong support The groups felt that transportation planning was needed to have a balanced land use plan and that such planning should precede mining development. However, they noted that transportation planning should not encourage transient visitors or year-round residents to come to the Arctic region. State and Federal Government The state government responses showed that they saw a major problem with the timing of the 105(c) Study, which did not allow the Planning Team to incorporate information from the 105(b) Study or give the Planning Team a chance to consider (d)(2) legislation. The State's consolidated position generally supported Option lll, favoring the 20-year status quo because development and any designations are pre- mature, given the present information. Option III, they felt, would give the Natives a chance to cope with pressures from coastai zone management, Alaska Native Claims Settlement Act (ANCSA), Outer Continental Shelf activities, hardrock mining and the Prudhoe Bay pipeline. Support was expressed by some individual agencies for Option | because it allows development, and Options ||, IV and V were opposed because they would prevent development. However, the fact that Option | would allow federal land to pass to private ownership was opposed. They stressed that the plan should be consistent with local and state plans and regulations and that an effort should be made by 105(c) to work with and get a unified North Slope Borough position. Along with a go-slow attitude toward mineral development, it was generally felt by the State that private industry was more capable than government of doing further mineral exploration. It was suggested that coal resource Projections were too high and that any environmental and social costs related to development should be paid by the developer. Mineral devel- opment was considered to conflict with subsistence. The EMMA (changed in the final option to Mineral Leasing Area) concept was considered good because it recognized significant environmental values and required intensive planning and mitigating measures. There was some question of whether the EMMA's were in the correct location and if other EMMA's would be designated. There was an objection to a blanket protective designation of barrier islands and the Colville delta which would hamper oil develop- ment. Some people in the government groups felt that the general guidelines for hardrock minerals would preclude development in the foreseeable future and negate the development options. The state representatives commented that wildlife values would be largely determined by the land use plan adopted. They suggested that caribou need a complete management plan, not just sporadic wilderness. More information was wanted on the proposed caribou and subsistence management boards, but it was generally felt that the boards were not needed because the Alaska Department of Fish and Game had increased its emphasis on subsistence utilization. Government groups did not consider it justifiable to designate all of NPR-A as Wilderness. In their opinion the wilderness evaluation should not have been conducted within political boundaries without considering the wilder- ness values of surrounding areas and (d)(2) lands. An objection they raised to Option | was that there would not be any areas of NPR-A suitable for Wilderness designation by 2000. The procedure used to evaluate scenic quality may not have been appro- priate, in their opinion, for the Arctic because it was developed for the temperate zones. The State of Alaska has prepared a position paper on the 105(c) Study and the preliminary options, presented as Volume I(a) of the Final Study document. It should be reviewed in addition to this synthesis of their comments. Federal agency comments were integrated in the study process through the Task Force and Planning Team. Thus their input was on a constant basis. Specific comments received via the questionnaire noted that little consid- eration had been given rare, threatened or endangered plants and that discussion of cultural values was not adequate. It was suggested that the Bureau of Land Management be included in cooperative management plans for caribou. It was also stated that the plan was assuming too much by Promoting the HR 39 definition of subsistence over other uses and assuming that the state government has the right to regulate hunting and fishing. Development Groups A true multiple-use option was desired by development groups. Such an option would allow immediate development under existing environmental laws. Options | and II were preferred, with changes, and Options II!, IV, V and VI were considered unacceptable because they would delay mineral de- velopment and allow further government inventories. They saw Option III as ignoring the mineral potential of NPR-A and giving a short-sighted viewpoint of the energy potential of NPR-A. They considered this serious because two-thirds of the federal lands are closed to mining and 50 percent of all mineral resources are on public lands. Option | was acceptable to them, but it was desired that Wild and Scenic Rivers and_ critical environmental areas be excluded from the option, that there be no Wilderness designated, and that the size of the critical habitat around peregrine falcon nest sites be reduced. They wanted a discussion of access included. The determination that mineral resources are subeconomic was not con- sidered accurate. They felt that coal for local use, hardrock minerals, oil and gas should be developed immediately. The 20-year delay on mineral development was strongly opposed. Some members of this group felt southern NPR-A would already have been staked by miners if it was not in withdrawn status. It was felt that socioeconomic conditions would dictate the timetable and type of mineral development. In their opinion, the De Long Mountains area is a _ potential world-class base metal district and changing economics could make NPR-A a leading mineral-producing area. There were objections to mineral leasing because the group believes there are adequate resource and environmental laws and the government could not administer leasing’ efficiently. They believe mineral exploration and development should be left to private industry. They felt mineral AawalaAn want Abe LR fee net e cte Ae teen otn.. bie hat 4h 250 options were too preservation oriented. Mining interests objected to the 1977 Council on Environmental Quality report on hardrock mining because it did not evaluate present mining practices or current laws. The EMMA (now Mineral Leasing Area, see Glossary) concept was not seen as acceptable because industry already has to obtain a production permit, provide maximum environmental and surface protection, and reclaim the area. They noted that the EMMA concept is covered by existing law and industry needs no help locating minerals. The use of HR 39 subsistence provisions and attempts to protect the Native culture were questioned by the groups. They 'cautioned against protecting a culture that wants change and felt subsistence users, whether Native or non-Native, should return to traditional modes (not defined) of travel. HR 39 was considered to be infringing upon Alaskan state rights. They felt development would occur slowly enough for the culture to change. Some comments supported granting allotments for traditional land use sites; others wanted to allow subsistence but not allotments. The groups objected to the Wilderness Areas as Proposed in the preliminary options. Many people felt that no more Wilderness was needed in Alaska. It was felt that the majority of NPR-A would remain wilderness after the minerals were developed and that areas where no minerals were found could be designated Wilderness. In their opinion, there is no difference between Wilderness Areas and Wilderness Study Areas because historically very nearly all Wilderness Study Areas have become full Wilderness. Designation of the Colville, Nigu-Etiviuk and Utukok as Wild Rivers was acceptable as long as transportation corridors were allowed. Slight physical and chemical change of surface water was also acceptable. Others opposed such designation because it would attract people and prevent other uses. The protection afforded by Wild or Scenic River designation was considered unnecessary because the rivers are protected by their remoteness. There was an objection to evaluating impacts on visual resources from the air because this is not a natural viewpoint. The amount of information about the 105(c) study that was made available outside Alaska was inadequate, in this group's opinion. Other Interests This section contains comments by individuals who were not (or did not indicate that they should be) associated with any major public group and by some groups whose few comments were not easily related to other concerns or issues. While qualified support was expressed for Options |, Il, Ill, IV, and V, respondents generally supported only parts of the options; Option VI was developed after public hearings were concluded. Changes in the options and recommendations were wanted that would stress a go-slow approach toward development. The time frame suggested for mineral development ranged from immediately to after 20 years. There was support for coal and gas development close to villages for local use. It was generally felt that mineral development should proceed when and where it was economically feasible. Those who opposed mineral development wanted areas of ecological concern and river areas protected, mining delayed for more than 20 years, and believed that the only acceptable area for development was the Barrow gas field. Land Use Options LAND USE OPTIONS Introduction The 105(c) Preparation Plan was adopted by the 105(c) Task Force and subsequently released on November |, 1977. The Alaska Policy Group was briefed on and reviewed the Preparation Plan. These guidelines stated, "One major concept of the process will be the development of up to five land plan alternates...this plan or series of plan options will be summarized as the final report". The Task Force on November 30, 1978, finally adopted six options. These options, labeled |, II, III, IV, V, and VI for ease of identification, are presented in the following pages. Even though the range of the options is broad and their differences large, each option is viable when considered from the viewpoints and goals of a particular interest group. Each of the six options is presented in three parts: First, a brief introduction and overview; second, specific guidelines; and third, an analysis of the effects, advantages and disadvantages. Through the course of this study and the evolution of various land use options a number of management constraints or concepts appeared which should be recognized as plans are developed and policies established for management of the National Petroleum Reserve in Alaska. To avoid endless repetition these findings, hereafter called General Guidelines, are grouped and presented preceding the options and will simply be referenced in each option. A brief rationale, identified by an asterisk (*) follows each statement. Additional support can be found in the Values and Resource Analysis section of this volume, in Volume 2 of this study, or in detailed background material. None of the options or their parts will answer all the reader's questions. Framework planning such as these options cannot address all issues nor answer all questions. Detailed management plans, site analysis and design, and specific actions on select parcels at precise times must be evaluated by the agency managing the area when and as appropriate. These options attempt to establish a framework around which an agency(s) may develop a management regime that will fulfill the intent of Congress when it adopts a specific plan for NPR-A. Next to the settlement of (d)(2) land issues arising out of the Alaska Native Claims Settlement Act, the single most important factor in the Arctic's future in the next 20 years may well be the development of Arctic petroleum resources and the way in which the local, state and federal governments anticipate problems and react to opportunities. However, this study does not, indeed could not, consider petroleum resources, and thus, does not suggest options for petroleum development. Finally, it should be noted at this point that Alaska, particularly Arctic Alaska of which NPR-A is only a part, is significantly different from the "Lower 48" states in many ways. While the Arctic appears to be rugged and harsh, it is at the same time easily damaged and slow to recover. Delicate as its ecosystems may be, it is apparent that some of the resource wealth of the Arctic region will ultimately be used. The process has already begun in the Prudhoe oil fields and the Barrow gas field. The maodA fan an acenmnth Awnat ee ~ tte te ~ NPR-A was recognized by Congress when it passed the act authorizing this study effort. Regardless of whether policy is developed for the Arctic or just for NPR-A, it must encompass the unique dimensions of the Arctic and at the same time relate to the interests of Alaska, the Natives and the nation. Any one or a combination of the following options, adopted by the Task Force, could be used in the future as a foundation upon which to build Arctic policy. Options Overview Many factors have been considered by the Task Force and its Planning Team during the course of the 105(c) study, the major exception being oil and gas. Existing inventory data were reviewed. Background information, for minerals and coal, wildlife and their habitat, water resources, recrea- tion, wilderness, scenery, archaeology, and socioeconomic aspects of NPR-A and its people, varied in detail. New studies were undertaken to provide additional background for some topics. Concurrent with this research, Public meetings and work sessions were held in all the villages in the North Slope Borough, in Kotzebue and Noatak, and in Anchorage and Fairbanks. Finally, the Team approached the original charge from the Task Force--to develop optional land use plans. Those options were to be broad framework plans on which more detailed management plans could be built and against which the information for oil and gas potentials and alternative development scenarios of 105(b) could be portrayed. As would be expected for such a large area with many resources and from persons representing diverse interests, no simple, clear set of goals and objectives was ascertainable. Each attempt at evaluation yielded different results, depending on the weight or value assigned to any resource. This led to development of options reflecting values and best uses as seen from different points of view. Many options and combinations of options were suggested and subjected to analysis. From this professional and technical analysis process, public review, and Task Force consideration, six options began to emerge. These six included, in one form or another, the major Provisions of each option that had been considered during the total Process. See figure || for a chronology of option development. Information regarding the significant resources of the Reserve is summarized in the summary of Values and Resource Analysis section of this volume. Those resources and values around which the greatest controversies or interest have centered are hardrock minerals, coal, wildlife (particularly caribou), wilderness-recreation, and subsistence lifestyle. General public, interest group, Native resident, state and federal agency, and professional interest in these resources and the area(s) in which they are found is reflected in these options. Tables 4 and 5 are summary comparisons of designations for selected areas and of selected issues. Option | Mineral resources are deemed of highest value in Option |. Many persons in the mining industry state that the current system of claim and patent under the 1872 Mining Law is an appropriate wav to develop the countrv's resources and that the development in NPR-A is ultimately in the national interest. They point out that current environmental protection laws, the Federal Land Policy and Management Act, and state and federal reclamation acts provide for environmental protection not addressed in the 1872 Mining Law. Others have suggested that the residents of the North Slope need jobs and dollars and that the early development of mineral resources will help meet this need. Option | responds to the mineral resources and the related set of public interests. Option 11 Option I! responds to interests of those who believe that many uses of a given area may occur at the same time if everyone will cooperate in the conservation of all resources. Mining, for example, can occur without destroying wildlife if advance planning and stipulations take this into consideration. Some in this group do not believe conservation of natural resources has occurred nor will it occur under the 1872 Mining Law even with modern laws. They also propose that the public should receive fair market value for its land and mineral resources. Thus, this group would exclude the area from the 1872 Mining Law and would allow mining to occur under a permit-lease system. Option Il responds to those concerned with minerals and multiple use, subsistence, wilderness and wildlife. Option 111 Many Inupiat are concerned that too many external forces are acting on their culture, that the cash economy, natural resource development, government regulations, and the ANCSA-created corporations are changing their lives. They ask that other change factors not be added at this time. Mineral interests point out that while surface resources and values are generally known, subsurface resources and values are not. The evaluation of mineralization within NPR-A is based upon surface values only. To fully evaluate mineral deposits, additional subsurface work such as drilling and geophysical surveys are needed to determine quality, quantity and economic viability of the occurrences. Knowledge about these resources is in the national interest, could affect decisions, and should provide a stronger base on which to make future decisions. Option II! recognizes these values and concerns. Option IV Some concern has been expressed that surface values of NPR-A are too important to permit intensive exploration (allowed in Options I-II1) to occur. This is particularly true for potential wilderness areas and for important wildlife habitat. It has been suggested that if exploration is to occur, it should be done in a manner that will not destroy the wildlife and its habitat nor eliminate subsistence use. Furthermore, exploration activities should Those with particular interest in the wildlife have suggested that the enhancement of wildlife populations should be undertaken and an emphasis should be placed on these values beyond simple protection. Option IV addresses these concerns and values. Option V Another group has expressed interest in preserving the undisturbed or primitive quality aspects, the recreation opportunities and wildlife of NPR-A. While the entire 23-million-acre area, being roadless, may qualify for wilderness use, some of the area is obviously better suited to Wilder- ness designation than other areas. It is these major wilderness, recreation, and wildlife resources that this group feels should be immediately and permanently protected. Option V responds to this interest. Option VI Option VI is based on the premise that the fish and wildlife resources and subsistence use have the highest value throughout the Reserve and are of exceptional regional and national significance. Thus, preservation and enhancement of these values are the paramount management objectives. The viewpoint has been expressed that management of the area for fish and wildlife should be unencumbered by Wilderness or Wilderness Study designations. Management, according to these interests, could include manipulation, if feasible and desirable, to enhance fish and_ wildlife populations and habitat. Minerals, developed under leasing, would be one of the values to be managed, provided such activities were compatible with wildlife. Option VI responds to these viewpoints. Table 4. Comparison of Land Use Options. Selected issues Issues Option I Il III IV Vv VI Subsistence Protected On Public Lands Yes! Yes! Yes Yes Yes Yes Wilderness NA2 Yes Yes Yes Yes NA Private Lands No NA NA NA NA NA Explore for Village Coal and Gravel Sources Yes Yes Yes Yes Yes Yes Minerals Federal Explore for Minerals No Yes? Yes Yes Yes? Yes Private Explore for Minerals Yes MLA* No No No No Permit Extraction Before 2000 Yes No No No No Yes® Maintain Clean Air Class _ Ir 18% 11 18 18 1& 78 Transportation Routes Permitted EL” 1uo®>9 EL? No! No? EL Use of Motorized Vehicles Continued for Subsistence Yes Yes Yes Yes Yes Yes All Lands Retained in Public Ownership No'! Yes Yes Yes Yes Yes — — = CSCWONANHP WH Option I provides for lands going into private ownership and mineral development; Options II provides for mineral development but not for private ownership. These activities could reduce the land area available for subsistence, as well as affect wildlife populations. Not Applicable. Limited in Wilderness Areas. MLA - Mineral Leasing Area. See Glossary. Only if compatible with wildlife and subsistence. Excludes immediate area of villages. EL - Under existing laws. IUO - Industrial use only under federal control. Not before 2000. Prevents construction of surface transportation facilities until 2000 except for airstrips for mineral exploration. Provides for transfer of some lands to private ownership, mining alate- -24 - a eae ana ] saa 2 Table 5. Comparison of Land Use Options Designation of Selected Areas Selected Areas Option I II III IV Vv VI Colville River Scenic! wild! sg? Wild Wild Wild Nigu-Etivluk River Scenic Wild SQ Wild Wild Wild Utukok River Scenic Wild SQ Wild Wild Wild Barrier Islands ps3 PS PS PS w4 PS Colville River Valley ACEC® ACEC sa® wsa’ W Fwma® De Long Mountains MUEL? = MLa?° SA WSA W FWMA Icy Cape Area ACEC W SA WSA W FWMA Kigalik-Titaluk Area MUEL MLA SA WSA W FWMA Teshekpuk Lake Area ACEC W SA WSA W FWMA Utukok Area ACEC W SA WSA W FWMA Peregrine Habitat 15-Mile Radius cH"! CH cH CH CH CH All other NPR-A Land MUEL WSA SQ WSA SQ FWMA Special Areas. SHCWOMNDOPWNH— oy See Glossary. See Glossary. See Glossary. Designation under the Wild and Scenic Rivers Act. Maintain existing NPR-A withdrawal for a status quo situation. To be placed in a protected status. Wilderness. See Glossary. Area of Critical Environmental Concern. See Glossary. See 43 CFR 2361, May 31, 1977. Wilderness Study Area. Fish and wildlife management area. Mining under existing laws. Mineral Leasing Area. Critical Habitat. General Guidelines to be Used With All 105 Options Existing Laws Unless otherwise indicated, there is a need to recognize all applicable laws and regulations applying to the management and use of NPR-A. *A myriad of laws, regulations and treaties presently apply to NPR-A. Changes in some of these "rules" have been implied by definition of terms used in this study, may be inferred from specific guidelines, or have been directly stated. All other "rules" are expected to apply. Any future land designations in the National Petroleum Reserve in Alaska need to address the authorities state and local governments currently maintain over the use of federal lands in Alaska. *State and local government have some authorities and responsibilities on federal lands under existing law, by interagency agreement, or in the absence of federal actions Ppreempting local authorities. This authority should be considered early in determining uses or programs on the lands. Much more local cooperation can be anticipated if local government has participated in the designation process. Minerals and Mining There is a need to recognize village requirements for gravel and coal including intensive local inventories of these resources, and the need for technical assistance in this inventory and for development of coal resources. *Local coal might relieve the economic impact of expensive ($125 per barrel) fuel oil. Gravel is in demand by local users and generally in short supply. A detailed inventory is needed to adjudicate among competing users while Protecting environmental values such as fisheries and archaeological sites. Inventory areas are shown on_ the options maps as Village Coal Inventory. There is a need to research and develop alternative construction techniques or materials to reduce the use of gravel. *Alternatives to large gravel airstrips, roads and pads such as used in mineral exploration are needed to conserve gravel, prevent destruction of surface values and possibly lower costs of operations. These may include uses of portable platforms and airstrips, use of piling, increased use of winter surface transportation and better project planning. Transportation There is a need to recognize the value of a balanced transportation system which, to the extent possible: I. Avoids principal reliance upon roads or any one mode of transportation to the exclusion of other modes; 2. Reduces and/or prevents the increase of adverse social, economic, environmental, and energy costs resulting from undue utilization of any one transportation mode; 3. Coordinates with comprehensive land use plans; and 4. Considers benefits as well as costs. There is a need to recognize that a comprehensive coordinated transportation plan for roads, airports, rail and marine facilities will be needed in the future. *Basic responsibility resides with the state and_ local government; however, there are national considerations (pipelines, air quality, etc.) and federal lands and programs involved. For the foreseeable future, there is a need to limit interregional surface transportation development to modes which will move natural resources or meet other desired transportation needs without creating concentrations of large numbers of either transient visitors or permanent residents. *Interregional surface transportation routes are generally neither needed nor wanted now in this area. In addition, the ecosystems of the area will not permit heavy usage and cannot support large numbers of people. Towns and Villages There is a need to recognize the impacts that new communities could have on both the natural and social environment of the region. *Given the inability of the land to support large numbers of people (hunting, fishing, ecological relationships), climate, and extremely high cost of providing community infrastruc- ture, resource development should follow the successful example established at Prudhoe Bay by the use of tempo- rary, dormitory type facilities. This study recognizes a need for a consolidated, coordinated planning effort by villages, borough, state and federal governments to amelio- rate impacts if changes in federal land management places stress on community infrastructure. ns a ae wee. arE ee aes *Local communities contain limited service facilities and currently have severe housing shortages, as well as limited abilities to provide services to private development or governmental operations. Native Livelihood and Subsistence Options are premised on existing state law including: I. Priority for the use of fish, game and other resources forming part of traditional subsistence base to be given to the subsistence user. (Subsistence may include resources other than meat harvest. ) 2. Use of local advisory committees to help form policy and assist in preparing subsistence management plans. *Sport hunting is not precluded, but persons requiring the wild resources for food supply are given a_ priority consideration. This does not necessarily extend to species which have not traditionally formed part of the subsistence base. Ongoing public participation is required to meet local needs and assure public cooperation in the management program. There is a need to recognize that subsistence users must have access to the land and resources. *The use of large areas is necessary to maintain subsistence lifestyle and public lands provide such areas. There is a need to recognize the traditional use of snow machines, motorboats and other methods of surface transportation to collect subsistence resources and the necessity of controling transportation to prevent abuse, waste or damage of fish and wildlife, habitat or other natural values. *NPR-A is larger than some states. Requiring non-motorized travel over such a large area is unreasonable. Motorboats and snow machines are essential for today's subsistence activities. There is a need to recognize that resources are used by both subsis- tence and other users and that when the resource base is insufficient to provide for all users, there needs to be an allocation system. Such a system needs to be based on customary and direct dependence upon the fish and wildlife resources as the mainstay of livelihood, local residency, and the availability of alternative resources. *Subsistence is related to the availability of natural resources on a continuing, sustained basis. Biological and natural resource management principles can be applied to manage subsistence harvest, as well as combinations of sport and subsistence use. Fish and Wildlife It is recognized that NPR-A contains significant fish and wildlife resources and that it is in the public interest to maintain these values for the use and enjoyment of present and future generations. The statements that follow address some specific areas of greatest significance and identify courses of action that future management plans need to address. There is a need to protect critical fish and wildlife habitat areas. Five such sensitive areas are illustrative of those identified in the summaries of Values and Resource Analysis in this study. The coastal wetlands, especially in the general areas of Icy Cape and Teshekpuk Lake, are important to waterfowl and other migratory birds. The coastal area is important to polar bear denning. (Article Il of the International Polar Bear Conventions requires protection of habitat.) All barrier islands, lagoons and bays are significant to migratory birds, marine mammals and anadromous fish. Alteration of conditions in the lagoons could significantly affect productivity and impact internationally important species. The barrier islands protect the lagoons and provide habitat for other species. The Colville River floodplain is important to resident game, fisheries and endangered species. The Utukok uplands form one of the principal caribou calving areas in Alaska and possess other unique wildlife habitat values. There is a need to recognize that additional permanent protection of barrier needed. islands and lagoons, including possible formal withdrawal, is *This would legally ensure that the islands and lagoons are protected by preventing applications under mineral leasing or sale provisions, or otherwise being removed from public ownership. There is a need for federal-state cooperative research, inventory and Management planning to prevent the depletion of fish populations, restore decimated resources, and provide sustainable yields of fish. *Freshwater fisheries regulation is primarily a _ state responsibility; however, a combined federal-state effort is needed until good data are _ available. Comprehensive fisheries management planning needs to be coordinated with land and resource owners and managers in order to deal with management responsibilities associated with the water column, the beds of water bodies, and surrounding land. Residents of villages on or adjacent to NPR-A report reduced fish Populations at traditionally used sites. This study did not establish if these changes are caused by natural or man-induced environmental change or harvest pressure. There is a need to establish comprehensive caribou management plans involving cooperative state-federal efforts and strong local participation. In addition to the Utukok calving area, areas needing special management consideration are the Teshekpuk Lake area and migration routes in the De Long Mountains. *Caribou use all parts of the Reserve, but NPR-A forms only a portion of the range of the Western Arctic Herd. Migration routes provide critical links between ranges on NPR-A and winter ranges as far south as the Kobuk and Koyukuk drainages. There is a need to establish a mechanism to facilitate the coordination of state, federal and local interests in caribou management throughout the range of the western Arctic caribou herd. *Northwest Alaska is becoming increasingly fragmented into units of private lands and public lands administered by a variety of federal, state, and local agencies. A _ regional approach to caribou habitat management is required that can be accomplished only with improved coordination and cooperation among these private and public bodies. This study recognizes that the State of Alaska will continue its traditional role as manager of resident species. *The State of Alaska has built up regulatory mechanisms and professional expertise required to manage wildlife. There is a need to establish an improved subsistence harvest reporting system for key wildlife species to provide data for management. *Analyses of the data available for management of several key wildlife species indicate that harvests are not being fully reported. Full harvest information is needed for sustained yield management. There is a need to recognize that undesirable competition occurs between wild caribou and domestic reindeer and other management problems arise whenever their areas of use overlap. *Reindeer range must be exclusively used by reindeer because the mixing of reindeer and caribou results in loss of reindeer to caribou herds and other management problems. Therefore, it is considered undesirable to introduce reindeer into areas used by caribou. This study recognizes that a |I5-mile radius needs to be designated as a critical habitat zone around all nesting sites currently or historically used by peregrine falcon. *The Endangered Species Act requires formal designation of critical habitat for each endangered species. A _ 1[5-mile radius around each nesting site in NPR-A has been recom- mended for designation, based on the estimated area used for feeding by nesting peregrines. Within this zone, the area immediately surrounding the nest is most important and Proposed activities here will receive closest scrutiny in the review process required by law. Recreation This study recognizes that intensive recreational use and development should not occur on NPR-A. *There is no identifiable demand for anything other than continuation of present low key, dispersed recreation in the Reserve and the environment will not support heavy use. Wilderness This study identified a need for special provisions on Wilderness Areas permitting subsistence activities and motorized access in the mode and to the extent in use at the time of designation. (See Glossary). *Motor vehicles such as snow machines, motorboats, and aircraft provide the only practical means of access to and for travel within most of NPR-A. Continuation of much of the present use of the Reserve is dependent upon use of motorized vehicles. Archaeology and Paleontology There is a need to recognize the significance of archaeological and paleontological values in the Arctic. *Thus far 26 archaeological sites within the Reserve have been identified for nomination to the National Register of Historic Places for their scientific value. (Seven of these are located on the land owned by village corporations.) Others are expected to be found and nominated. This study identified archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) as having special significance requiring further protection through appropriate designation or segregation. *The stratified village site and associated caribou drive fences are the best preserved examples of late prehistoric and early historic inland Eskimo lifestyle in the Arctic. A number of archaeological questions concerning cultural history, environ- mental adaptation, and population movements can be answered through a limited systematic excavation program. Interpre- tive potential is outstanding. There is a need to recognize the value of continuing assessment of archaeological values. *Areas receiving intensive archaeological investigations in NPR-A have been very limited. The evaluation of the impor- tance of a given site becomes more objective as the know- ledge of the resource on a regional level increases. Land Status This study identifies a need to resolve the boundary issue on NPR-A. *Management responsibilities cannot be defined until boundary questions are settled. Unresolved boundaries also preclude the development of necessary land use plans required to protect and manage the resources on the Reserve. There is a need to protect the lands involved in allotment litigation. *No Native allotments have been approved for NPR-A. Litigation against the federal government is pending. There is a need to consider land exchanges between the federal government and other land owners. Such exchanges could include the trade of subsurface for subsurface or surface values, as well as land both inside and outside of NPR-A. *Management conflicts may be found with land patterns selected by the Natives under ANCSA. All mineral rights on NPR-A (including gravel) have been retained by the federal government. If the Natives wish and the Secretary finds such a trade will facilitate better land use, trades should be authorized. Agency Management A administrative mechanism is needed to facilitate cooperation where more than one agency is involved in management of lands. *NPR-A was previously managed by the Navy. Two Interior agencies are now managing NPR-A. Local groups have had some difficulty knowing who to contact and how to get access to the managing agencies. If the NPR-A is not managed by one agency, a coordination mechanism is needed to get the agencies to work together and provide one-stop service to the public. It is recognized there is a need to develop a detailed management plan including necessary controls for off-road vehicle use. *Management plans for all resources will provide both a guideline for activities, as well as allay fears of local residents that could develop in the absence of such plans. Mechanical means of surface transportation have increased substantially during the past decade. Assuming this trend continues, state, federal and local governments with public involvement need to determine the limits and extent of use which can be recognized without damaging the land or adversely impacting natural resources. Future land use decisions need to consider the North Slope Borough land use inventories and minimize conflicts between land use and cultural values. *The North Slope Borough has statutory authority to conduct inventories and develop land use plans and has developed an inventory of existing and historic sites important to the Inupiat culture. This data and information can be used to identify resource values and uses. This study identified a need for agencies having management responsibilities for the Reserve to have professionally staffed field offices accessible to the residents of the area. *Public contacts have stressed the importance of an adequate staff living in the area. Constantly changing, part-time personnel cannot provide needed information and build public support. Visual Resources This study recognizes a need to manage lands within Wilderness Areas and adjacent to Wild and Scenic Rivers so that any changes caused by management activities will not attract attention. *wilderness Areas and Wild Rivers permit only very limited facilities or changes in the landscape. Scenic River designation permits more changes in the landscape than Wild River, but the present scenic quality is retained. This study recognizes that when management activities have disturbed landscapes, rehabilitation may be required to restore the area. *Disturbed areas sharply contrast with the characteristic landscape and in some places natural processes will not restore the area in a reasonable time. International Agreements There is a need to recognize that the international range of marine and terrestrial biotic resources which reside seasonally on or adjacent to the Reserve is critical. International planning and agreements may be *Caribou, waterfowl, marine mammals, polar bear and other species are of international interest. Resources on which they depend, as well as the people which depend upon them, may be harmed by pollution, overharvesting, or over-regula- tion. Some agreements have been established on a species basis. These need to be combined and species included in a comprehensive international agreement. There is a need to consult with local and state governments and local residents when federal harvest quotas are being developed to comply with international agreements. *Harvest quotas should involve local and state government to properly analyze potential local and regional impacts and considerations. The fact that the United States and Canada are now revising their Migratory Birds Treaty to provide for people dependent on subsistence resources should be acknowledged. *Waterfowl hunting provides an important food resource to Native peoples. The old treaty results in a hardship to the local people because it prohibits spring hunting when other food resources are scarce. Cooperative Planning There is a need to consider cooperative planning and management agreements for the Colville River delta and the Colville River valley. *Internationally important waterfowl habitat occupies the delta which has been selected by the State of Alaska and Natives. The Colville River is the dividing line between NPR-A and other land ownership or jurisdictions to the east and south. The resources of the river, including peregrine falcons, moose habitat, Wilderness, and Wild River values, are dependent upon management of the habitat on both sides of the river. There is a need to recognize that Arctic research needs to continue. *Arctic research has been conducted at NARL under the Navy. Since the Navy no longer controls NPR-A, the administration of NARL may need to be diversified to permit other Arctic land managers to participate. Land Use Options | - Vl Option | Introduction Option | is based upon lifting the reserved status of the federal lands in NPR-A and opening them to the general public under existing laws and regulations. This would allow private interests to explore for, claim, and develop mineral resources under the 1872 Mining Law or to otherwise acquire mineral resources through lease or purchase five years after Congressional action on NPR-A. With some exceptions, the land would be open for the filing of applications for lease, sale, entry, settlement, or selection that existing laws allow. Fish and wildlife would receive the protection provided by existing laws. Areas containing significant resource values, such as those designated as key archaeological sites, Areas of Critical Environmental Concern, and critical habitat areas, would, by law, receive more intensive land manage- ment and protection. Subsistence activities would be permitted to continue on public lands but could be limited on private land or claims. Areas not having development potential could receive additional consid- eration for special designation after 2000, e.g., Wilderness or Wild River. Figure 1!2 shows the generalized distribution of land use envisaged for Option |. Specific Guidelines - Option | Existing Withdrawals Existing Public Land Orders, Executive Orders and statutes that withdraw NPR-A lands from the public domain are to be rescinded and the lands restored to operation of the public land and mineral laws. *The statutory withdrawal creating NPR-A must be rescinded to permit other land and mineral laws to function. Wilderness Wilderness Areas are not to be designated. Beginning in 2000, areas found not to have development potential should be considered for Wilderness designation. *Immediate Wilderness designation is not proposed in_ this option in order to allow full opportunity for development and land disposal to non-federal interests. Wild or Scenic Rivers The Colville, Nigu-Etiviluk, and Utukok Rivers should be designated as Scenic Rivers. *This recognizes the values of these rivers, but limits the management restrictions on land uses within the river corridors. Areas of Critical Environmental Concern The barrier islands and lagoons, Icy Cape, Utukok, and Teshekpuk Lake areas should be designated as Areas of Critical Environmental Concern. *Because of their unique wildlife values, these areas must receive special management attention establishing whether or not change may occur and under what conditions. Recreation See General Guidelines. Archaeology and Paleontology The archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) should be withdrawn from the public domain. *See General Guidelines. Native Livelihood - Subsistence Subsistence uses of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority consumptive use. *See General Guidelines. Key subsistence sites such as spits, points of land, hunting or fishing campsites used by more than one family shall be identified, verified and trust title, restricted to subsistence use, given to the recognized tribal organization(s). *Specific and relatively small areas have been and are intensively used by groups for subsistence activities. Single ownership over these sites could preclude age-old activities. A process and criteria should be established to identify sites. Trust title given to the tribal organizations would Preserve this group site. Not all sites will be eligible for transfer, e.g., barrier islands, scenic rivers; these sites would have to be resolved on a case by case basis after an adequate inventory. The use of subsistence sites by a family or individual shall be allowed by permit. However, nothing in this recommendation is intended to prevent the user from obtaining ownership of a site if such is per- mitted under existing laws. ALASKA ¥S CHUR CNT. SEA Re ( es . en GO yf. ah eet SLANT B ‘en \ Bon Fi ty Qo | | Yyui: Cooperative Wildlife Management Area *Specific sites are used year after year by a single family for harvesting food resources. If this lifestyle is to continue, this use of public lands must be allowed. Permits could be issued for 5-, 10-, or 20-year periods or ownership could be established if law permits. The land manager, in cooperation with a local advisory committee, local government and the affected village, shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. *Subsistence sites used by permit will require some use of rules to protect environmental values and other interest in the sites. Land Ownership All lands other than those designated or segregated by these recommendations shall be available for entry, selection, state selection, and location under the general land laws and mining and mineral leasing laws including the 1872 Mining Law. Entry, selection or the like is subject to all existing laws including but not limited to the National Environmental Protection Act (NEPA), Endangered Species Act, Antiquities Act, Wild and Scenic Rivers Act, Clean Air Act, Federal Water Pollution Control Act, Alaska Native Claims Settlement Act (ANCSA), Federal Land Policy and Management Act (FLPMA), and others. *This is a recognition that, even though the lands are no longer withdrawn by executive orders, etc., there are many statutes which require responsible action on public lands. Minerals and Mining Mining and mineral entry shall be permitted under existing laws and regulations beginning five years after Congressional action. *Opening of the Reserve to operation of the 1872 Mining Law and the mineral leasing act provides the most incentive for direct and rapid development (economics permitting) through the private sector. Operation would be subject to FLPMA and state and federal environmental laws. The five-year delay permits obtaining detailed environmental baseline data and detailed resource data in mineralized areas. This will permit the development of reasonable stipulations for development operations. A government resource and planning program should be developed and carried out. This program will include systematic geochemical and geophysical investigations supported by geologic mapping (1:250,000) to determine structural and stratigraphic relationships of the terrane, as well as sampling to determine occurrences of mineralization. *Industry generally wishes to do its own inventory work. Nevertheless, a general government evaluation of resources is necessary if the managing agency is to be prepared to handle resource conflicts. There should be a basic premise that all land will be returned to natural (non-development) uses when mineral development is terminated. Therefore, it is essential that ecosystems and the living resources which are a part of those systems not be overly disturbed or compromised during the development period. *Mineral extraction at a particular site is generally not a long-term process. Stipulations and _ mitigating measures specified by state and federal environmental and surface protection regulations would provide for rehabilitation. Full production costs including a variety of environmental and social costs should be borne by the industry. *Industrial costs in a free market ecocomy are to be passed on to the consumer of a product rather than the taxpayer. Transportation The De Long Mountains and the coal belt across the center of NPR-A should be studied to identify feasible transportation corridors to serve mineral development. *Transportation routes could have a major impact on_ this Arctic environment. Rights-of-way, if any, must be carefully located and constructed with caution. Towns and Villages Support facilities for resource development should be of a temporary, dormitory nature. *See General Guidelines If, as a result of changes on federal land, a significant impact is expected on a village(s), the Borough, state, and federal government should undertake a cooperative effort with the village to meet or ameliorate those impacts. *Federal actions benefiting the nation could have severe negative impacts on a local village. This must be recognized and steps taken in advance to mitigate impacts. Air Quality Class || air quality shall be maintained. *Existing air quality class is to be maintained. Fish and Wildlife General Guidelines for all NPR-A options are to be applied to wildlife and fishery values to the extent possible, but these guidelines will require some interpretation in keeping with mineral exploration and development. *Adherence to the General Guidelines, to the extent consistent with this option, would provide some mitigation of detrimental impacts on wildlife. All barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by marine mammals, in- cluding the endangered bowhead whale, and by anadromous fish. Alteration of conditions in the lagoons could signifi- cantly affect productivity and thus impact these international- ly important species. The islands protect these lagoons and provide habitat for other species. Caribou shall take precedence over any reindeer herding on public herding. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and_ prohibiting reindeer herding so long as a significant regional caribou populations exists. A management plan should be implemented to protect caribou migration routes in the De Long Mountains zone. *Caribou of the Western Arctic Herd use all of NPR-A. The De Long Mountain zone is used _ intensively by caribou migrating to summer and winter range. Agency Management Planning and management for the area should be conducted within the context of the larger region consisting, at least, of the North Slope Borough, Noatak and Kobuk River valleys. *Decisions about NPR-A_ cannot ignore the resources and values of the rest of the Arctic. Major examples of this are the caribou herd, transportation, and resource develop- ment. After Congressional action the land managing agency(s), with full state, federal, local and public input, should develop a detailed management plan. *As soon as Congress selects a land managing agency(s) it will be imperative to quickly develop a management plan that will provide a guideline for activities. Management plans should be developed for all areas including Wild or Scenic Rivers, critical habitat and critical environmental areas. Such plans must protect the wildlife, as well as provide for continued vehicle access, and subsistence use. An interagency overview and policy group should be developed for the Present Naval Arctic Research Laboratory (NARL) to represent broad government interests in this key center of Arctic research. Steps should be taken to assure designation and permanent protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resources Management Inyorurak Pass archaeological area should be managed as VRM Class Il. See Glossary. *This archaeological area is to be managed intact, in a natural environment. Change needs to be adequately restricted so that visually the area remains a natural landscape. The remainder of NPR-A should be managed as VRM Class IV. See Glossary. *Change is expected to occur and be evident in the land- scape. All landscapes have some scenic qualities; thus the Primary character of the landscape should be retained. Analysis of Option | In Option | the lands are returned to the public domain for management and disposal under the general land and mineral laws. This action would permit the mineral resources of NPR-A to be claimed, patented and mined in the traditional manner as market conditions permit. Not long ago and in a more benevolent climate, this could have precipitated a mass influx of home- steaders and significant damage from mining-related activities. This is not the case in Arctic Alaska or anywhere else with today's environmental regulations including the Federal Land Policy and Management Act. Mining claims can no longer be patented on lands having no mineral value, nor can minerals be stripped from the earth without regard for resulting environ- mental damage. Critical habitat for endangered species must be identified and activities reviewed so that wildlife and habitat are not destroyed. Areas of Critical Environmental Concern must be identified and manaaed federal permits or programs may proceed only with due regard for archaeological sites. Thus, Option | is a "wide-open" development option only as that term is defined in 1978. Basically the option reflects a mineral slant to multiple use management of the area under FLPMA. Option | is viewed by its proponents as having the following major advan- tages: First, maximum flexibility for mineral resource development under existing statutes; second, job creation; and third, the provisions of regional infrastructure. Disadvantages are included as part of the following discussion. Minerals The development of the mineral resources which have been identified in NPR-A (lead, zinc, coal, silver, barite, fluorite, and possibly uranium) can be accomplished with technology which has been developed in other areas of the world under similar Arctic conditions. Mining, both underground and surface, is technologically feasible from a minerals viewpoint in permafrost areas. Mining activities, however, would be severely affected during the winter because of an inadequate water supply. Impoundment facilities for water supply would have to be provided. Compliance with existing air and water quality regulations would ensure the least disruption to these resources. Mining activities would probably affect only relatively small areas. Due to the remoteness of the area, it is conceivable that temporary structures in support of the mining (dormitories, processing facilities, etc.) would be established, rather than the typical "mining town." A network of roads would be necessary, but a lack of suitable gravel may necessitate less conventional transportation modes, such as the use of Rolligons or air cushion vehicles. Rehabilitation of surface disturbances resulting from the mining activities would occur during or at the conclusion of activities. This, of course, adds to the cost of the mining venture. Option |! provides the government five years to gather baseline data on resources such as archaeology, air and water quality, and wildlife. Only after those five years would areas be opened to application and mining claims. Undoubtedly claims would be filed and other sites would be selected or applied for under existing laws permitting federal lands to be trans- ferred to state or individual ownership. No development and _ little significant change can be predicted in this initial five years. Up through 1978 many factors including uncertain lands status, land freezes and a general ignorance about "Seward's Folly" may have slowed or stopped certain types of development. Even when these have become non-issues, the high cost of doing business in Alaska, the climate, long distances and limited transportation infrastructures will remain. Hardrock mineral or coal development could occur before 2000, but a time frame for development cannot be established from the current data base. Present economic condi- tions do not appear to favor the development of coal or minerals in NPR-A before 2000; thus little change is expected in the next 20 years. National requirements, compelling need, or other unforeseen circumstances could, of course, change this. This option would also open the Reserve to operation of the mineral leasing laws for certain minerals, e.g., coal and petroleum. Immediate interest in oil and gas leases is possible, but petroleum production would probably not take place for I5 to 20 years or until after intensive exploration. One can only speculate about the period following 2000. At some indefinite time after 2000, assuming the discovery of commercial mineral deposits, one can imagine lead and zinc mines in the Brooks Range, strip or deep coal mining in the central area (northern foothills) and oil wells on the coastal plain. Pipelines, roads, and a railroad or some innovative transportation system are part of this picture. (See the Mineral Resource summary for more information.) Conflicts between transportation routes or modes and other land uses may well arise, depending on the status of lands in north- western Alaska. These would definitely affect mining operations in NPR-A. The land adjacent to the Reserve on the west and east boundaries is, for the most part, Native selected, and the land adjacent to the southern boundary is land that has been withdrawn under the Antiquities Act. Thus, it is generally thought that establishment of conventional surface transportation methods will be extremely difficult. Therefore, other, possibly unconventional methods, usually expensive, will have to be developed. Until these issues, i.e. management of presently withdrawn public lands and management plans on Native lands (both of which surround NPR-A), are resolved, mining is going to be severely restricted by con- straints on transportation modes and access to the Reserve. Such issues promise to be complex. Mining activities do disturb the land's surface. The extent of the disturb- ance varies with local environment, the type of mining, location and extent of a deposit, depth of overburden, number of employees, number of mines in an area, transportation system used, amount of water required, amount of gravel extracted and used, and so forth. The rate of extraction may also have important consequences. For example, the quantity of water required and the treatment and disposal of wastewater from a small mining Operation may be a relatively minor consideration depending on the type of ore and treatment. A large extraction complex with massive requirements for water presents a totally different problem of supply, treatment, dis- posal, and subsequent environmental effects. Even with all the protective environmental laws and_ reclamation requirements, many changes will occur under this option. Many of these could be localized, relatively short-term, and subject to mitigation. Others will not be. Some of these effects are described in the subsequent material. Fish and Wildlife In Option |, wildlife values would not receive protection beyond that provided by existing laws except for the barrier islands and lagoons and three Scenic Rivers. These specific areas are excluded from development activities. Existing laws require the identification and classification of critical habitat for endangered species and Areas of Critical Environmental Concern. Identification of Areas of Critical Environmental Concern and critical habitat will provide valuable assistance to the land manager, but once development beains it will affect wildlife habitat and. nossiblv. nonulations These critical areas are managed to protect the wildlife species without stopping other uses. Protection under these conditions cannot be expected to be complete. Should mining or other development activities occur in mountain passes used by migrating caribou or in other important habitat areas, long-lasting detrimental conflicts could occur with caribou, wolves and grizzly bears or other species linked with caribou. The Utukok River area is an important caribou calving ground, a critical environmental area, and is believed to contain the best grades and deposits of coal. Coal is subject to leasing. Leasing authority could be used to aid or preclude development. The possible effect of coal mining on caribou and other species cannot be stated with certainty but is being viewed with concern by Natives and biologists. Culture Option | has the greatest potential for affecting the lives and lifestyles of the Inupiat people of any of the options. All the impetus for change on NPR-A will rest with the private sector, and the Native people may have only limited or no ability to stop change. However, the North Slope Borough, through its planning and zoning powers, could be instrumental in regulating land use. The change potential is, certainly, not entirely adverse by any means. Should mineral extraction occur, jobs would be created and a public trans- portation infrastructure and service industry would be developed. These jobs could be filled by local residents, thereby providing cash now necessary to live in the Arctic and easing the transition from subsistence to a subsistence-cash economy (or to a cash economy for those who choose it) for the people of the North Slope Borough and northwestern Alaska. The development of skills, provision of transportation infrastructure and the creation of a service industry could assist the Arctic Slope Regional Cor- poration (ASRC) and Northwest Alaska Native Association (NANA) in meeting profit objectives and in the development of mineral resources on their lands outside NPR-A. When any of this might occur cannot be stated. On the other hand, development of NPR-A mineral resources could force premature development of or could preclude development of ASRC, NANA or state lands by preempting markets or sources for financing. Jobs that become available may require skills not available in the local labor pool, may be controlled out of the state's urban areas, or may attract an influx of new job seekers. Jobs, then, could go to outsiders having requisite skills, leaving local persons unemployed and dependent on a subsistence resource that could be adversely affected by land transfers and an increasing population as a result of development. Subsistence activities could be severely hampered and subsistence resources reduced in a number of ways. The removal from the public domain of lands on which ownership has been acquired or claims have been filed would limit or eliminate the areas available for subsistence hunting, fish camps and gathering activities, and other traditional land uses. The random or delib- The impact of development may serve to concentrate game and fish resources as well as desirable country for recreation and subsistence into residual areas. This concentration of game and users might lead to increased conflict between subsistence users and sport hunters or recreationists. There might also be increased pressure from national or state conservation groups to curtail subsistence by regulation of harvest or by changing the priority rank of subsistence use. Rapid change from a subsistence lifestyle to a cash economy-social structure will be disruptive. If both jobs and subsistence resources are not available, the effect on the Inupiat will be quite serious. Wilderness and Wild Rivers The entire area qualifies for Wilderness designation. Option | does not protect any of the wilderness values except as they may be protected under existing environmental laws and regulations. Some of the largest potential Wilderness Areas remaining in the United States would likely be lost through development and conversion of land ownership from federal to non-federal. Except for the trans-Alaska pipeline corridor, the entire Brooks Range is still in a wilderness condition. This option would threaten the wilderness integrity of this part of the range. While it is unlikely that all wilderness values would be destroyed, particularly in the next 20 years, mines, road, other development, and the transfer of lands will cut the wilderness lands into smaller and smaller parcels and would particularly affect the De Long Mountains. No rivers would be designated as Wild Rivers. Three are designated Scenic even though they qualify as Wild Rivers. The scenic designation is expected to make it somewhat easier to develop, if needed, a mineral trans- portation system crossing these rivers. Recreation and Scenery The major recreational and scenic, potential wilderness, and mineral values occupy the same areas. As discussed under Wilderness, development would not eliminate all recreation and scenic resources. It is impossible to say at what location, over what area or to what degree this may occur. Only the Utukok, Colville and Nigu-Etiviuk Rivers are protected by Scenic River designation. Geographic Areas of Potential Conflicts Except for the barrier islands and lagoons and the Utukok, Nigu-Etivluk, and Colville Rivers which are withdrawn from most development, all areas are given only the protection provided under existing laws. Conflicts may occur between development, private lands and wilderness, recreation, subsistence, and wildlife values. These are generally addressed in the section entitled Existing Problems and Potential Conflicts. De Long Mountains. The potential for conflict has increased in this area because of the recent designation of the contiguous Noatak National Monument. Development of nonrenewable resources may be perceived to conflict with the wildlife populations and wilderness values that are shared Summary The major attribute of Option | is that it provides the opportunity to develop the mineral resource of NPR-A in the manner traditional to the nation if and when economic conditions are appropriate. It places a high value on developing mineral resources and associated jobs at the earliest possible date and a lesser value on subsistence, wildlife and wilderness. Option 11 Introduction Option || attempts to recognize (I) the potential economic value of NPR-A's known or potential mineral resources, (2) that few, if any, of the NPR-A's (non-petroleum) mineral resources may be economically extracted over the next 10 to 20 years, (3) that these mineralized areas coincide with areas having wildlife, recreation, and other important surface values, (4) that some areas are highly qualified for designation as Wilderness, (5) that detailed knowledge of the mineral and other resources values is lacking and study and exploration of specific zones is appropriate, and (6) that the next 20 years may be very important to the Native population as a period of adjustment to the change that is going on in their culture. Some areas particularly important to wildlife species would be immediately designated Wilderness with special provisions for travel and subsistence. Large areas in the upper Colville River drainage and the coastal lowlands would become Wilderness Study Areas until 2000. A final determination on those study areas would be made after 2000. Segments of three major rivers would be designated as Wild Rivers. The De Long Mountains have important wildlife, wilderness, and recreational values, as well as a known and potential value for hardrock minerals. Other areas of NPR-A are known to contain coal. The mining and development of coal and base metal resources is likely to cause change in the ecosystems, wilderness and the subsistence culture. There is mixed scientific opinion whether intensive development in the Arctic can take place without significant ecosystem impacts. After detailed evaluation and planning, mining would be permitted in the De Long Mountains and a coal belt north of Colville River identified as the Kigalik-Titaluk area. Mining for hardrock minerals would be by leasing similar to that done on acquired public lands. Coal leasing would follow present leasing authorities and Procedures. Development could be planned in phases so that both resource and social impacts are mitigated. Actual leasing, development, and production would not be planned to take place until after 2000. The mix of Wilderness, Wilderness Study Area, critical habitat, Wild Rivers, and areas for mineral leasing reflects the need to protect ecosystems, wildlife, and the dependent subsistence user for at least one more generation, i.e., until 2000. This option provides protection and, at the same time, through continued government inventory and detailed planning for mineral production, does not foreclose the future alternative of jobs, cash income, and tax base for a changing Inupiat culture that is becoming as dependent on cash as on subsistence. For Option I! to operate, legislation is required exempting the area from the 1872 Mining Law and permitting hardrock (locatable) mineral leasing and a cooperative partnership of government, local residents, and industry to achieve the twin objectives of (I) protecting wildlife, wilderness, ecosystems, and culture over the long term, and, (2) providing state, local, and national socioeconomic benefits. | Role NATIONAL PETROLEUM RESERVE - ALASKA us. orragtwent of He INTERIOR NPRIA STUDIES Mounra¥ J \ BROoORxg &e wae / i. Critical Habitat-Endangered Species if 7 . eqns Wild River L~Y —~ J, JS eR CS*S nour Pass YW: Cooperative Wildlife Management Area The glossary contains a detailed definition and discussion of the intent and operation of a mineral leasing area, as well as a definition of Wilderness and Wilderness Study Area. Figure 13 displays the general distribution of land usage under Option !!. Specific Guidelines - Option || Existing Withdrawals Existing Public Land, and Executive Orders and statutes withdrawing lands of NPR-A, except for NARL tract |, are to be superseded by executive or Congressional actions outlined below. *The NPR-A_ designation is to be rescinded so the following actions and designations may take place. Wilderness All federal land in the Utukok, Icy Cape, and Teshekpuk Lake areas and adjacent barrier islands and lagoons are to be permanently designated as Wilderness. See Glossary. *These areas were singled out for wilderness recommendations because of the wilderness-associated values each possesses in relation to other known values. The remainder of the federal lands outside the above Wilderness areas and mineral leasing areas (see Minerals and Mining) is to be designated a Wilderness Study Area until 2000. This land classification is to be reconsidered at that time. *Although these lands qualify for Wilderness designation, other nonsurface values are not adequately identified. Postponing a decision until 2000 on whether to develop or preserve these lands permits other values and needs, if any, to be identified. In the interim they must be managed in a manner so as not to impair their suitability for preservation as wilderness. Wild or Scenic Rivers The Colville, Nigu-Etiviuk, and Utukok Rivers should be designated as Wild Rivers. *These rivers possess remarkable scenic, recreational, geo- logical, fish and wildlife, historical, cultural, or other similar values and are free of impoundments and generally inaccessible except by trail, with watersheds or shorelines essentially primitive and waters unpolluted. Existing river uses including access by motorboat, snow machines and airplane, hunting, fishing and trapping, subsistence activities, fish camps, and recreation are not affected by Wilda River dacianatian Areas of Critical Environmental Concern The barrier islands and lagoons should be designated as Areas of Critical Environmental Concern. *lslands and lagoons outside Wilderness Areas are designated as critical habitat to emphasize their importance. Recreation Protect wildlife viewing areas by restricting development activities which diminish or disperse wildlife numbers in those areas known to contain an abundant seasonal population of wildlife or a particular wildlife species. *The opportunity to view wildlife in its natural habitat is perhaps the most exciting recreation opportunity in NPR-A. Archaeology and Paleontology The archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) should be withdrawn from the public domain. *See General Guidelines. Native Livelihood - Subsistence Subsistence uses of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority consumptive use. *See General Guidelines. Key subsistences sites such as spits, points of land, and hunting or fishing campsites used by more than one family shall be identified and verified. The use of these sites shall be allowed by permit issued to the recognized tribal organization(s). *This provision is identical to Option | except that use would be allowed only by permit since all land is to remain in public ownership. The use of subsistence sites by a family or individual shall be allowed by permit. *This provision is identical to Option | except all land is to remain in public ownership. The land manager, in cooperation with a local advisory committee, local government and the affected village, shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. wre Aa Land Ownership Except as a result of litigation and lands to be transferred under the Alaska Native Claims Settiement Act, all land will be retained in federal ownership. *The boundary and all allotments are in dispute, and some lands remain to be transferred under ANCSA. These must be resolved. Minerals and Mining Congress should create mineral leasing areas which are withdrawn from the 1872 Mining Law and in which minerals may be extracted only under a lease or permit system. (See the Glossary for Mineral Leasing Areas. ) *Designation of mineral leasing areas is in concert with a recent Council of Environmental Quality (CEQ) report [Council on Environmental Quality, 1977, Hardrock mining on the public land: U.S. Government Printing Office, 37 p.]. The concept provides for protection of wildlife and subsis- tence for a minimum of 20 years or one more generation, detailed preparation for mineral production after that time, and adequate time for studies of other values. Jobs for local residents are possible in both the exploration and the later production phases. Creating an area where the 1872 Mining Law does not apply but mining is permitted by leasing allows production of minerals with maximum administrative flexibility for government to protect other values through discretionary leasing schedules. In order to assure an equal evaluation of mineral and other environ- mental factors, detailed study, analysis, and planning for all other resources, e.g., fish, wildlife, hydrology, archaeology, must proceed simultaneously with mineral data collection. *The basic premise of management by mineral leasing is that wilderness, wildlife habitat and scenic values can be rehabil- itated over the long run (100-200 years) if proper planning is implemented and secondary uses (such as a new town) are not allowed to develop. Areas for mineral leasing shall be designated in the De Long Mountains (hardrock minerals) and Kigalik-Titaluk River area (coal). A government resource and planning program should be developed and carried out. This program will include: I. Systematic geochemical and geophysical investigations sup- ported by geologic mapping (1:250,000) to determine struc- tural and stratigraphic relationships of the terrane, as well recommendation applies to the entire area, mineral assessment in Wilderness Areas shall be given a low priority. 2. Areas within mineral leasing areas which are determined to Possess potential for mining will receive more detailed geologic mapping (1:20,000), close-spaced geochemical sampling and delineation by drilling to obtain definition of resources or reserves. 3. A plan for resource development based on accumulated knowledge, to include reserve delineation and mining, transportation, environmental and reclamation considerations, shall be developed for mineral leasing areas. There should be a basic premise that all land will be returned to natural (non-development) uses when mineral development is termi- nated. Therefore, it is essential that ecosystems and the living re- sources which are a part of those systems not be overly disturbed or compromised during the development period. The phasing of mineral development must be regulated to ensure that no single area or type of renewable resources is impacted too heavily at one time. *See Option |. Full production costs including a variety of environmental and social costs should be borne by the industry. *See Option |. Exploration and mining efforts should be concentrated initially in areas that have high mineral potential which coincide with areas having rela- tively low wildlife habitat or scenic values, thereby minimizing resource use conflicts. Exploration and development efforts should also be focused on areas where transportation systems may be most logically established with the least environmental cost. *Mineral leasing recognizes both minerals and other values and administers them both through a planned process. The concept of time and geographic zoning under lease provisions provides the capability of minimizing resource conflict. Transporation During the third phase of mineral assessment a study should be undertaken to determine transportation routes to serve the De Long Mountains and Kigalik-Titaluk mineral leasing areas. Any such route(s) shall be for industrial use only, under federal control. Other uses could be permitted as appropriate. *Surface transportation has potential for environmental effects exceeding those of mineral development. Surface uses should be carefully regulated to protect wildlife resources and to prevent impact on villaaes. Towns and Villages Support facilities for resource development should be of a temporary, dormitory nature. *See General Guidelines. If, as a result of changes on federal land, a significant impact is expected on a village(s), the Borough, state, and federal government should undertake a cooperative effort with the village to meet or ameliorate those impacts. *Federal actions benefiting the nation could have severe nega- tive impacts on a local village. This must be recognized and steps taken in advance to mitigate impacts. Air Quality Class | air quality shall be maintained in Wilderness areas, and Class Il air quality shall be maintained in all other areas. *Existing air quality should be maintained in all Wilderness Areas, but some change could occur in areas of mineral extraction. Fish and Wildlife The General Guidelines are to be applied to mineral leasing areas consistent with the purpose for which they are created. Detailed fish, wildlife, and ecosystem studies and planning (as provided for under Minerals and Mining in this option) will provide the basis for determining lease areas, stipulations and mitigation measures necessary to protect fish and wildlife values in mineral leasing areas. *The mineral leasing concept requires equal treatment for en- vironmental values and mineral development. Successful mit- igation of mineral extraction impacts will only be possible if long-term studies provide a thorough understanding of eco- logical systems and fish and wildlife requirements. It is recognized that Wilderness and Wilderness Study Areas proposed in this option would in general provide needed habitat protection in Wilderness areas. However, any wilderness management program should give consideration to the special needs of wildlife resources. The General Guidelines are to be applied in these areas. All barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by whale, and by anadro- mous fish. Alteration of conditions in the lagoons could einnifinnnai.. -2e- 4 nationally important species. The islands protect these la- goons and provide habitat for other species. Caribou shall take precedence over any reindeer herding on public land. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and prohibiting reindeer herding so long as a significant regional caribou population exists. A management plan should be implemented to protect caribou migration routes in the De Long Mountains zone. *Caribou of the Western Arctic Herd use all of NPR-A. The De Long Mountain zone is used intensively by caribou migrating to summer and winter ranges. Agency Management Planning and management for the area should be conducted within the context of the larger region consisting, at least, of the North Slope Borough, Noatak and Kobuk River valleys. *Decisions about NPR-A cannot ignore the resources and values of the rest of the Arctic. Major examples of this are the caribou herd, transportation, and resource development. After Congressional action the land managing agency(s) with full state, federal, local and public input, should develop a detailed management plan. *As soon as Congress selects a land managing agency(s) it will be imperative to quickly develop a management plan that will provide a guideline for activities. Management plans should be developed for all areas including Wild or Scenic Rivers, critical habitat and Areas of Critical Environmental Concern. Such plans must protect the wildlife, as well as provide for continued vehicle access and subsistence use. An interagency overview and policy group should be developed for the present NARL to represent broad government interests in this key center of Arctic research. Steps should be taken to assure designation and permanent protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resource Management All Wilderness, Wilderness Study Areas, and Wild Rivers should be managed so that any contrast created within the characteristic en- vironment will not attract attention [Visual Resource Management (VRM) Class |]. See Glossary. *wilderness Areas, Wild Rivers, and Wilderness Study Areas as defined in this report permit only very limited facilities or changes in the landscape. Mineral leasing areas should generally be managed as VRM Class IV. See Glossary. *See Option |. That portion of the De Long Mountains mineral leasing area that is of Class A scenic quality (as described in the section summarizing the Values and Resource Analysis) should be managed as VRM Class II. (See Glossary.) However, mineral and/or development sites requiring up to a VRM Class IV may be permitted, but rehabilitation must be to VRM Class II. *Class A represents the highest scenic quality found in the planning area. Change of the landscape must be restricted so development does not attract attention or lower the scenic quality. Analysis of Option 11 Option II's major emphasis is a balanced approach to resource use, development and _ protection. Its major objectives are the protection of environmental values over the long term and mineral development. It recognizes both the multiple values of NPR-A and the inadequacy of the existing data base for various resources. Major wildlife habitat and undisturbed areas, except the De Long Mountains, are to be protected by Wilderness designation. The major potential hardrock mineral area in the De Long Mountains and a portion of a potentially significant coal area are designated for mineral leasing so that mining may occur, but also so that potential impacts on wildlife and habitat and other values may be identified in advance and mitigative measures planned and carried out. Large areas in the central and coastal plain portions of the Reserve are designated as Wilderness Study Areas, permitting government exploration for and assessment of mineral resources to continue for 20 years. Option || is viewed by its proponents as having six major advantages. First, it permits minerals to be extracted but under a system and at a rate that will permit environmental protection. Second, it provides immediate Wilderness protection for major areas. Third, it provides Wild River pro- tection to three rivers. Fourth, it protects subsistence for another generation and fifth, it provides a 20-year period in which to determine the mineral values of foothill and coastal plain areas. And sixth, it provides the opportunity for economic development. Disadvantages are included as Part of the followina discussion. Minerals The technical feasibility of and requirements for extracting minerals in the Arctic were discussed in the Analysis of Option |. Stating the obvious, but often ignored fact, minerals are found where they were placed by geological processes, and, regardless of any other values, the location of a mineral deposit can not be changed. If minerals are to be used by society they must be mined where they occur. Thus mineral extraction and other resource values may come in direct conflict. Even the most carefully designed mineral resource extraction will cause some change in the local environment. This change may be temporary or long term, or occur on a small or extensive area. Under Option |, minerals may be extracted where found as the market demands and environmental laws permit; and public lands and _ mineral resources may be claimed and patented into private ownership. Option || retains the land in public ownership and establishes two areas in which mineral leasing could occur. Legislation is required to permit hardrock mineral leasing and to set in motion a 20-year program preparing for mineral development. The federal government, in this option, could obtain site-specific mineral, wildlife, and environmental data in the initial ten years. During the last ten years, industry, under permit, would commence mineral assessment. No development and little change could occur before 2000. This program would lead to leasing after 2000, assuming it would be economically feasible to extract at that time. Thus minerals may be ex- tracted in Option I1!, but industry loses the freedom offered by Option |. Government by lease, stipulation, or the like, would have greater control over the area(s) to be developed, rate of development, and impacts that could occur on the land and to the wildlife. Fish and Wildlife With the exception of the De Long Mountains and the Kigalik-Titaluk area, the fish and wildlife resources are protected by Wilderness, Wilderness Study Area, or Wild River designation. Mineral development within the lease areas may affect wildlife values on a site-specific basis or by a transportation network. However, the intent of development by leasing is to permit mineral extraction while at the same time protecting the wildlife resources of NPR-A. Protection may not be complete but should hold adverse effects to a minimum. Culture Many portions of this study have pointed to the need of the Inupiat people for time in which to make adjustments to increased economic and _ social Pressures. Permanent Wilderness, Wilderness Study Areas and the 20-year Preparation before mineral leasing all respond to the needs of the subsis- tence culture and its resources base. Under Option I! subsistence use is to be specifically permitted. Thus time is provided for another generation of the Inupiat to deal with the changes affecting their lives while providing the setting for the creation of job opportunities. Exploration activities could create some jobs prior to 2000. How long any would last or whether they could or would be filled by local people is uncertain. As with Option |, one can only speculate about the period following 2000. Carried to some indefinite time after 2000 and with the discovery of mineable mineral deposits, one can imagine lead, zinc, and copper mines in the De Long Mountains, and strip or deep coal mines in the Kigalik-Titaluk area of NPR-A. Roads, a railroad, or some form of transportation would, probably, have to be constructed although technology may provide some form of air transportation by that time. Should mineral extraction occur after 2000, jobs would be created and, to some extent a transportation infrastructure would be developed. These jobs could be filled by local residents, thereby Providing cash now necessary to live in the Arctic and easing the transition from subsistence to a cash economy for the people of the North Slope Borough and northwestern Alaska. The development of skills, provision of transportation infra- structure and the creation of a service industry could assist the NANA and ASRC in the development of mineral resources on their lands. When any of this would occur cannot be stated. Development of NPR-A mineral resources could preclude development of ASRC or state lands by preempting markets or sources of financing. Jobs that become available may require skills not available in the local labor pool, be controlled out of the state's urban areas, or attract an influx of new job seekers. Jobs, then, could go to outsiders having requisite skills, leaving the local persons unemployed and dependent on a subsistence resource that could be adversely affected by land transfers, development, and an increasing population. Wilderness and Wild Rivers The wilderness values of these major areas - Icy Cape, Utukok uplands and Teshekpuk Lake - and of three rivers - Utukok, Nigu-Etiviuk, and Colville - will be protected. Even though protected, the very designation of these areas may attract additional recreational interest resulting in in- creased usage and possible conflict with subsistence uses. One of the most significant areas - the De Long Mountains and portions of the Ikpikpuk and Colville River drainages will be affected by mineral leasing and development. However, much of the wilderness values of even these areas can be maintained by appropriate development and staging of leasing and development. A basic premise of Option I! is that wilderness values can be retained over the long term if mineral development is effectively administrated. Mined areas, if rehabilitated, can revert to wilderness over time; in the Arctic, that time may be quite long. Discussed earlier in this study, and remaining to be resolved is the effect that Wilderness and Wild Rivers will have on the ability to transport minerals both through and out of NPR-A. Decisions regarding the Wilderness Study Area would be made after 2000 and would be based on new data and the nation's needs at that time. Recreation and Scenery Recreation and scenic values will be protected in those areas designated as Wilderness and/or Wild Rivers. The Wilderness Study Area designation will Provide substantial protection during the 20-year study. It can be expected that, over the short term, mineral extraction in the mineral leasing areas will reduce scenic and recreation quality and over the long term will change the resource. However, under appropriate leasing policies, it should be possible to both extract minerals and maintain many of the recreation and scenic values. Geographic Areas of Potential Conflict De Long Mountains. Mineral leases within the mountains will affect specific areas and cut potential wilderness into smaller segments. Some effect may be expected on wildlife populations, but the pre-leasing inventory and the ability to guide placement and rate of development should hold this to a minimum. On the other hand, because of environmental factors, it is probable that some of the minerals may not be mined. Subsistence use of this area may be adversely affected. Potential for conflict recently increased in this area because of the designation of the contiguous Noatak National Monument. Development in the De Long Mountains may be perceived as conflicting with wildlife populations and wilderness values shared by the Noatak and NPR-A portions of the De Long Mountains. Utukok and Icy Cape Area. Wilderness designation will protect all the natural values of the area, but it will thus preempt use of one of the areas of highest potential for coal resources and preclude development of roads or railroads. Kigalik-Titaluk Area. Mineral leasing (coal) will affect the wilderness values of site-specific areas and will divide the wilderness into smaller pieces. Some effect may be expected on wildlife populations and subsistence use. However, the pre-leasing inventory and the ability to guide placement and rate of development should hold this to a minimum. On the other hand, because of environmental factors, it is probable that some of the minerals may not be mined. Barrier Islands and Lagoons. These biologically important areas are withdrawn from mineral exploration and extraction, but the protection prohibits the extraction of gravel, the use of the islandsas drill sites, or construction of permanent structures. Ikpikpuk River and Colville River Valley. A portion of the area is to be placed within a mineral leasing area. Wilderness values would be affected. However, environmental safeguards would provide some protection and could preclude development of some of the coal resources. Subsistence use of this area may be adversely affected. Summary The major attribute of Option II is that it protects the entire area and wildlife, wilderness, and subsistence values for at least 20 years, key for mineral extraction and economic development in the future. The option initiates a joint industry-government preparation program for mineral development, thus preparing for environmentally managed mineral extraction to occur after 2000, as well as for continuing exploration and delineation of mineral resources. Option II Introduction Option II! basically maintains the "status quo" and provides for protecting wildlife, subsistence and other surface values by permitting the land area of NPR-A to remain essentially as it is at the present time without additional designation for use. The land status is to be reviewed by 2000 for possible future designation. The option is based on known existing information; those reasons for delaying land designation include: --Lessening the potential for impact on social and subsistence values due to designation of Wild Rivers or Wilderness. Native residents of the area are very concerned that such designations would attract national attention to the designated areas and result in increased use by nonresidents. This, they feel, would impact their subsistence use. --Economic considerations which preclude mineral development now but which may change within the next 20 years due to increased demand and new technology. --Rapid and pervasive, ongoing changes in the lifestyle and culture of the people living within NPR-A. Subsistence harvest of meat and other products still accounts for a good part of the food supply of NPR-A residents; to eliminate such subsistence activities would cause physical hardships and cultural disruption. --The recent decline of the caribou herds in Arctic Alaska. This could be a periodic decline or one caused by human activities. Within the next 20 years more information may be available for caribou population management. --The pending (d)(2) legislation, the designation of the area south of NPR-A as a National Monument, as well as key archaeo- logical sites located in the passes, may close possible transpor- tation routes and affect the future movement of commodities from the region to potential markets. --In the event that the Outer Continental Shelf sales take place and oil is discovered, parts of NPR-A and lifestyles may be affected. From a regional viewpoint, development of both OCS and NPR-A would substantially increase the magnitude of impacts on the people of the area. Thus the retention of the lands in their present NPR-A designation for at least one more generation or until about 2000 would permit a period of adjustment for the people living within NPR-A and would leave many alternatives open to the federal government and the State of Alaska. Activities presently occurring on the Reserve such as government oil and gas exploration could be continued. However, as in all options except | and VI, no resource development would be permitted before the vear 2000 ms CO a a il ey a ae eS re ARIE 162" 160" 1s x 70 ALASKA LOCATION MAP CHUKCHI SEA RW SEA iyo” NATIONAL PETROLEUM RESERVE - ALASKA US. OcpartwENT OF THE INTERIOR Figure 14. s ¥ é . * at 2 Py ¢ < 3 \ i 1% NPR-A STUDIES DISTRIBUTION OF LAND USES UNDER OPTION II] Village Coal Inventory Native Village Lands Critical Habitat-Endangered Species UU A Archaeological Sites | Cooperative Wildlife Management Area 70° habitat and populations could be protected and managed and appropriate research conducted so that decisions could be made with greater confidence in 2000. Figure !4 shows the general distribution of land uses in NPR-A as suggested in Option II. Specific Guidelines - Option 111 Existing withdrawals Existing public land withdrawals are to be continued except as noted in the following recommendations. *The land would remain withdrawn as NPR-A, but some additional measures would be taken to protect surface values. Wilderness No areas are to be designated as Wilderness now. All lands are to be reconsidered for Wilderness designation in 2000. *The intent is to postpone decisions on the future of this entire area until at least 2000 to permit subsurface resource values and human needs to become better known. Wild or Scenic Rivers No rivers are to be designated as Wild or Scenic Rivers. *See rationale with Wilderness, above. Areas of Critical Environmental Concern Special Management Areas designated along the Colville River and in the Teshekpuk Lake and Utukok areas shall be continued except as modified based on new information. *Special management Areas have been designated under P.L. 94-258 and published in the Federal Register 43 CFR 236l, May 3l, 1977. New information suggests changes are now needed. Recreation Protection of wildlife viewing areas can be offered by restricting deve- lopment activities which diminish or disperse wildlife numbers in those areas known to contain an abundant seasonal concentration of wildlife or a particular wildlife species. *See Option II Archaeology and Paleontology The archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) should be withdrawn from the public domain. *See General Guidelines. Native Livelihood - Subsistence Subsistence uses of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority comsumptive use. *See General Guidelines. Key subsistence sites such as spits, points of land, and hunting or fishing campsites used by more than one family shall be identified and verified. The use of these sites shall be allowed by permit issued to the recognized tribal organization(s). *See Option II. The use of subsistence sites by a family or individual shall be allowed by permit. *See Option II. The land manager, in cooperation with a local advisory committee, local government and the affected village, shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. *See Option || Land Ownership Except as a result of litigation and lands to be transferred under the Alaska Native Claims Settlement Act, all land will be retained in federal ownership. *See Option II. Minerals and Mining No mineral extraction shall occur on federal lands prior to the year 2000, except coal and gravel for local use and government programs. *The area is to be maintained as it presently exists as much as possible. However, local coal could possibly relieve the eco- nomic impact and uncertain supply of very expensive fuel oil. Gravel is in short supply and is needed in most construction, as well as in oil exploration. A permit system would be developed to permit extraction for local canecimntian Fark natantial mininan cita andl tranenantatinn A government resource and planning program should be developed and carried out. This program will include systematic geochemical and geophysical investigations supported by geologic mapping (1:250,000) to determine structural and stratigraphic relationships of the terrane, as well as sampling to determine occurrences of mineralization. *Continued inventory of minerals is essential to completion of a values reassessment in the year 2000. Transportation No surface corridors should be designated. *Surface transportation corridors are not needed until addi- tional resource data are available. Air Quality Class | air quality shall be maintained. Fish and Wildlife All barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by marine mammals, _ in- cluding the endangered bowhead whale, and by anadromous fish. Alteration of conditions in the lagoons could signifi- cantly affect productivity and thus impact these interna- tionally important species. The islands protect these lagoons and provide habitat for other species. Caribou shall take precedence over any reindeer herding on public land. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and prohibiting reindeer herding so long as a significant regional caribou population exists. Agency Management An interagency overview and policy group should be developed for the present NARL to represent broad government interests in this key center of Arctic research. Steps should be taken to assure designa- tion and permanent protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resource Management That portion of the De Long Mountains that is of Class A scenic quality should be managed as VRM Class II. See Glossary. *See Option ||. The federal lands along the Chukchi Sea coastline and the area of elongated lakes south of Barrow shall be managed as VRM Class ||. See Glossary. *No major changes of the landscapes will be permitted for 20 years, but some change is inevitable. Areas of Class B scenic quality that are frequently seen should be managed so change in the landscape does not attract attention or lower scenic quality. The remainder of NPR-A should be managed as VRM Class IV. See Glossary. *No major changes of the landscape should occur for 20 years, but some change is inevitable and it would be better if it occurred in areas of Class C scenic quality or areas that are seldom seen. Even then the primary character of the landscape and its scenic quality should be retained for the occasional observer. Analysis of Option III The basic premise of Option II! is that external forces on the Inupiat residents of the North Slope are such that a period of acculturation - a period in which to select and choose from both their own and western lifestyles - is needed. Recognition of these current and potential changes permeates the specific guidelines of this option (and, indeed, affects all options except |). Subsistence values are to be respected and subsistence resources protected for at least another generation. Since the future needs of the local residents, and the cultural decisions they will make are not known, non-renewable resource exploration will continue, as well as research on fish and wildlife. Option II! is viewed by its proponents as having five major advantages. First, it protects subsistence aspects of the Inupiat lifestyle for at least 20 years. Second, it protects the land, wildlife and other resources for the same period. Third, exploration could continue, resulting in a better knowledge of the area before decisions are made. Fourth, all options would remain open for future decisions; and fifth, with no formal designation of Wilderness and Wild Rivers the area will tend to be kept out of the limelight in regard to recreation use. Disadvantages are included as part of the following discussion. Minerals Exploration for minerals would continue over the next 20 years, thereby adding to the nation's knowledge of its resources. Extraction, however, would not be permitted until after a review of data and decisions on land use in NPR-A have been made in or after 2000. Few local or permanent jobs would be created during this 20-year period. Some change in the landscape would occur due to exploration, but with Proper management this should be held to a minimum and be short term. Fish and Wildlife Since development is not permitted, the only conflicts that may arise will be with exploration or wildlife harvest. Wildlife values will receive the protec- tion provided by existing laws; the barrier islands and lagoons are ex- cluded from exploration and development activities. Existing laws or regulations identify Special Areas and require the identification and classi- fication of critical habitat for endangered species and Areas of Critical Environmental Concern. Identification of Special Areas, Areas of Critical Environmental Concern and critical habitat will provide valuable assistance to the land manager in permitting mineral exploration, but protection under these conditions cannot be expected to be complete. Culture The Inupiat culture is far more than subsistence hunting, fishing and gathering of food, clothing and shelter from the land. Yet, the relation- ship with the land, sea, wildlife, and seasons is a major portion of that culture and a tie to its historic foundation. Change, rapid change, either imposed or voluntarily selected, is a major part of today's life for the Inupiat. Some time is needed in which they may adjust to a new’ world without losing touch with their past and the value system that makes up their lives. Option II| may not be a panacea but it attempts to eliminate one source of imposed change on their lives. This option provides that the existing withdrawal continue until 2000 to provide one more generation in which the Inupiat may deal with change before additional change may be imposed by actions on NPR-A. Some cash income is now necessary to subsist in the Arctic, and some jobs will be continued or created by the exploration program. Current petroleum exploration is a source of income to the Arctic Slope Regional Corporation. However, fewer permanent jobs will be created before 2000 than if mineral extraction were permitted immediately. Therefore, this option differs little from Options | and I! in its effects prior to 2000. The opportunity remains for economic development after 2000. Wilderness and Wild Rivers Existing laws and the NPR-A_ withdrawn designation provide significant protection against degradation of wilderness values, but some. loss may acciin Aiea ta tha minananl avntanantin~an nannnwn-— wee aH -£ ta -- aoe depend on the magnitude of exploration programs. If present programs were continued or increased, an impact could be expected on several hundred possible sites scattered throughout the wilderness areas of NPR-A. Since tourists and recreationists are attracted by land designations such as Parks, Wilderness, or Wild Rivers, no designations are to be made now. The entire area would be reconsidered for Wilderness and Wild River designation after 2000. Recreation and Scenery Recreation and scenic areas and values have the protection of existing laws and the NPR-A reserve designation. The regulated mineral exploration should have little effect on these values except that exploration affects wilderness values on a site-specific or area basis. Geographic Areas of Potential Conflict Barrier Islands and Lagoons. These islands and lagoons will be withdrawn from mineral exploration and extraction. The protection of these biolog- ically important areas precludes the extraction of gravel, use of the islands as drill sites, or construction of permanent structures. Special Areas. Designation as Special Areas does not necessarily preclude other uses including mineral exploration. However, it does mean that the land manager must assure that other uses respect existing surface values. All other areas are given the protection of existing laws and NPR-A's designation and, since mineral exploration is to be conducted under government sponsorship, conflicts, change or damage should be extremely limited. Other Considerations The fact that these lands are not designated to a management system (other than NPR-A) will be viewed by many as a significant disadvantage of Option Ill. Designation assures a management regime and permanent protection. This is not provided by Option II! although current laws and regulations should preclude significant environmental degradation. Since no specific management designation occurs, funds for management and _ enforcement Programs could be limited unless included in new legislation for the area. Summary The major attribute of Option II! is that it provides a status quo situtation for 20 years for the permanent residents, without restricting any of the federal government's options for the future. All the resources and values would be protected for 20 years. Inventory activities would be continued. Shortly before or after 2000 it will be necessary to review the status of the Reserve. The results of such a review, the consequent effects on subsis- tence, wildlife, wilderness, resource development, and jobs will be a function of that time, the nation's needs, and data available. Option IV Introduction Option IV is based on the same rationale as Option II|, that is, the highest known value of NPR-A is the habitat it provides for fish and wildlife populations, and thereby protects subsistence resources for the Inupiat of northwestern Alaska. Option IV provides for an interim management plan by designating the entire area a Wilderness Study Area. The overriding policy of this option shall be the protection of wilderness values and enhancement of fish and wildlife populations over the entire Reserve. Other activities, including mineral exploration performed by the govern- ment, would be permitted to the extent they are not detrimental to management objectives. In about 2000, a review process would be undertaken to determine the future uses and designations of the Reserve. This review process would culminate in Congressional action. Therefore, no significant, irreversible alterations of wilderness qualities would be permitted until the 20 years have elapsed. At the same time, it is recognized that government assess- ment of mineral and other resources should be continued as necessary to Provide the data base needed for the review process. Government- sponsored oil and gas exploration could continue under the Wilderness Study Area definition; assessment and exploration would continue only under strict wilderness protection provisions. Option IV protects wilderness, recreation, and wildlife values, ensures subsistence use until 2000, promotes wildlife enhancement, continues inven- tories and exploration, and leaves all options open for decision in the year 2000. Figure I5 indicates the general distribution of land uses proposed in Option IV. Specific Guidelines - Option IV Existing Withdrawals Existing Public Land Orders, Executive Orders, and statutes with- drawing lands of NPR-A, except for NARL tract |, are to be superseded by executive or Congressional actions outlined below. *The NPR-A designation is to be rescinded so the following actions and designations may take place. Wilderness All federal lands are to be designated as a Wilderness Study Area until 2000. This land classification is to be reconsidered at that time. No significant, irreversible alterations of wilderness qualities will be permitted during this period. *Wilderness qualities are well known, but subsurface values are not. The study period is to permit other values to be identified. No development is permitted, and wilderness weal om mat ba aaneun... Areas for extraction of coal for village use or gravel for use in village or government programs may be designated on federal lands if it can be demonstrated either that these resources are lacking on village lands or that the environmental costs of extraction on village lands are greater than those associated with extraction from alternate sites on federal lands. An environmental analysis shall be conducted prior to designation of such sites, including analysis of impacts of resource transport to place of use. Impacts on fish and wildlife resources and wilderness qualities shall receive prime consideration in this analysis. *The use of several areas may be necessary for coal and gravel extraction to reduce village fuel costs and provide construction materials. Such areas cannot be _ identified without a detailed assessment. Actual location of mining sites depends upon an environmental analysis. Wild or Scenic Rivers The Colville, Nigu-Etiviuk, and Utukok Rivers should be designated as Wild Rivers. *See Option II. Areas of Critical Environmental Concern All federal lands in the Colville delta, barrier islands and lagoons, and the Icy Cape, Utukok, and Teshekpuk Lake areas should be designated as Critical Environmental Areas. *Although protected under Wilderness Study Areas, the addi- tional designation provides a special emphasis to these im- portant wildlife areas. Recreation *See General Guidelines. Archaeology and Paleontology The archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) should be withdrawn from the public domain. *See General Guidelines. Native Livelihood - Subsistence Subsistence uses of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority consumptive use. *See General Guidelines. SEA abitat-Endangered Species al Inventory lage Lands ical Sites Figure 15. UTION OF LAND USES UNDER OPTION IV Soe ee Vi al ao 2 8S @ & a v a S 2 + £2 se! | tes] || | | > 2° « * BEAUFORT zy © oh 28 WZ EZZ-N*N KS téjtz6 » “HAA ge aL SoS ZZ2A- a7 rs XN UMR?AH 7, ee a » F LZ r p g Xt DISTRIB V—-_—_—_— ees mee A Ee LEB RIVER UJ ic i. Lo. eo S. eC i SS ely 0™—=>xv-—2).->»—; =" C[°,>... = , TT —CE>»P jwtmnm™@M>7?Prr7rt2>2>>, ->—— > ‘s BS] WHAat{[H[aaagqy Z22-20”— — a 3 By ?>Q° ®£»0°PP-}hhhnh)WNr—>”>? DC .- — " WZ, SYv?#7rzzkezZZ2///-4 ep 7 ° “\ ° wa ~Q \ Be. (™?» WN.“ >=—-- =. : LaiitMTY]YyYyVyF7>7—""&—O , RL LL q fF ob ifssa a rose gy er 2° | as NY Sr a a a Locatio! CHUKCHI SEA \ Key subsistence sites such as spits, points of land, or hunting or fishing campsites used by a more than one family shall be identified and verified. The use of these sites shall be allowed by permit. *See Option |1. The use of subsistence sites by a family or individual shall be allowed by permit. *See Option 11. The land manager, in cooperation with a local advisory committee, local government, and the affected village shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. *See Option ||. Land Ownership Except as a result of litigation and lands to be transferred under the Alaska Native Claims Settlement Act, all land will be retained in federal ownership. *See Option I1!. Minerals and Mining No mineral extraction shall occur on federal land prior to 2000, except coal and gravel for local use and government programs. *See Option tll. A government resource and planning program should be developed and carried out. This program will include systematic geochemical and geophysical investigations supported by geologic mapping (1:250,000) to determine structural and stratigraphic relationships of the terrane, as well as sampling to determine occurrences of mineralization. *See Option II1. Transportation No surface corridors should be designated. *See Option Il!. Air Quality Class | air quality shall be maintained. Fish and Wildlife In addition to the habitat protection provided bv Wilderness Studv petuation and enhancement of fish and wildlife resources is the primary management objective. *The major thrust of this option is to protect and enhance fish and wildlife resources on the entire Reserve over the next 20 years. See the Introduction to Option IV. All barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by marine mammals, in- cluding the endangered bowhead whale, and by anadromous fish. Alteration of conditions in the lagoons could signifi- cantly affect productivity and, thus, impact these inter- nationally important species. The islands protect these lagoons and provide habitat for other species. Caribou shall take precedence over any reindeer herding on public land. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and prohibiting reindeer herding so long as a significant regional caribou population exists. Agency Management An interagency overview and policy group should be developed for the Present NARL to represent broad government interests in this key center of Arctic research. Steps should be taken to assure designation and permanent protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resources Management Wilderness Study Areas and Wild Rivers should be managed so that any contrast created within the characteristic environment will not attract attention [Visual Resource Management (VRM) Class |]. See Glossary for explanation of classes. *wild Rivers and Wilderness Study Areas as defined in this report permit only very limited facilities or changes in the landscape. Analysis of Option IV Option IV, like Option III, treats the Reserve as one unit. However, Option IV would place a Wilderness Study Area designation on the entire area. The purpose of Wilderness Study designation is to assess and explore mineral resources without destroying wilderness values. Under this designation, exploration would be more restricted than in Options | and III and parts of Il because the land must be managed to keep it relatively unchanged until 2000. In addition, this option stresses the enhancement of wildlife populations and provides a time period in which this may be attempted. However, even in these programs nothing may be done which would prevent Wilderness desig- nation after 2000. An enhancement program could occur in any of the Options Il through VI, given funds and interest on the part of the respon- sible state and federal agencies. This option, however, combines both opportunity and interest although not to the degree envisioned for Option Vi. The option also recognizes the need for a 20-year moratorium on major change in the Reserve to protect subsistence (for residents) and avoid increased pressures on the Inupiat people. Option IV is viewed by its proponents as having five major advantages. First, it protects subsistence lifestyle for 20 years. Second, it protects the land, wildlife and other resources for the same period. Third, explora- tion could continue, resulting in a better knowledge of the area before decisions are made. Fourth, all options would remain open for future decisions; and fifth, it provides Wild Rivers protection to three rivers. Disadvantages are discussed as part of the following material. Minerals Mineral investigations could continue over the next 20 years, thereby adding to the nation's knowledge of its resources as long as wilderness values are protected. Extraction, if any, could not occur until after a review of NPR-A following 2000. Both the national and local interests in mineral extraction and resultant jobs are forgone for 20 years. Few local or permanent jobs of any kind are expected to be created on NPR-A before 2000 in any of the options. However, given minerals and an appropriate market, it is possible that jobs would be created much faster after 2000 in Options | and II than in this instance. Fish and Wildlife Since development is not permitted, the only conflicts that may arise would be between wildlife (and habitat) and exploration or division of wildlife harvest among competing users. The withdrawal of the barrier islands and lagoons and three Wild Rivers provides specific and immediate protection for fish and wildlife. Other wildlife areas and values receive the protection provided by existing law and by designation of the remaining portion of the Reserve as a Wilderness Study Area. Although not critical, designation as a Wilderness Study Area could pre- clude some types of management of habitat or populations that would not be in harmony with wilderness values. Culture Option IV is similar to Option III in that it protects the fish and wildlife resources while providing 20 years in which the Inupiat may make adjustments to economic and social pressures without closing all future economic opportunities. See Option Ill. Unless specifically indicated in new legislation, conflicts over extent, season, or means of subsistence harvesting may arise. Wilderness and Wild Rivers No areas are to be designated as Wilderness, but the entire area is to become a Wilderness Study Area. This designation permits mineral inves- tigations, prohibits mineral extraction and requires that activities be con- ducted in such a manner so as not to preclude Wilderness designation after 2000. The Wild River designations protect the values of the three major rivers but may attract additional usage. Designation as a Wilderness Study Area will be viewed by many as a signi- ficant disadvantage. Wilderness designation, for example, assures a management regime and permanent protection. While a management system for wildlife and wilderness is a part of this option, permanent protection is not. Recreation and Scenery These values have the protection of existing laws and Wilderness Study Area designation. Mineral investigations would continue, but since they are limited to those which will not detract from wilderness values, they are unlikely to affect recreation or scenic values. Conversely, while these values are protected, no actions are to be taken before 2000 to specifically designate an area(s) for recreation or scenic purposes other than three Wild Rivers. Geographic Areas of Potential Conflict Barrier islands and lagoons are withdrawn from mineral exploration and extraction. These biologically important areas are protected; the protection denies the extraction of gravel, the use of the island as drill sites, and the construction of permanent structures. All other areas are given the protection of existing laws and designation as a Wilderness Study Area, and since mineral exploration is to be conducted under government sponsorship, conflicts, change or damage should be extremely limited. Other Considerations Desianation to a Wilderness Studv Area will be viewed bv manv as a Refuge, or the like, assures a management regime and permanent protec- tion. This is not provided by Option IV, although the option precludes degradation of wilderness values. Since no specific management designation occurs, funds for management and enforcement programs could be limited unless included in new legislation. Summary The major attributes of Option IV are that it protects all resources and values for 20 years, provides greater protection for wilderness values than does Option Ill, protects the land, encourages the enhancement of wildlife, and provides a 20-year moratorium for the Inupiat without restricting any of the federal government's options for the future. Shortly before or after 2000 it would be necessary to review the status of the Reserve. The results of such a review, its effects upon subsistence, wildlife, wilderness, mineral resources, development, and jobs will be a function of that time, the nation's needs and the data available. Option V Introduction This option is based on the premise that portions of the Reserve are appropriate for immediate and permanent protection by Wilderness desig- nation because of outstanding wilderness characteristics. The De Long Mountains area, the Utukok River uplands, the Icy Cape area, the Teshekpuk Lake area, the Colville River valley and all barrier islands and their lagoons are recommended for Wilderness status. These areas offer Primitive recreation opportunities and possess outstanding ecological, geo- logical, and historical features, important wildlife habitat and other attributes. Subsistence use is one of the purposes for establishing these Wilderness Areas. Therefore, designation as Wilderness with special provisions (see Glossary) for these areas permits existing motorized vehicular transportation to continue, subject to necessary regulation to preserve resource values. Federal land not proposed for Wilderness or Wild River designation, some one-half of the Reserve, is to be managed in the same way as lands in Option II! and remains withdrawn under existing Executive and Public Land Orders and P.L. 94-258 for the next 20 years. Inventory and exploration would continue, but no development would be permitted. Wilderness designation and continued withdrawal of the remaining lands would protect outstanding wilderness, recreation, and wildlife resources and permit subsistence to continue until 2000. A final determination on the future use of non-Wilderness lands would be made after 2000. Such determination could be assisted by inventory data accumulated during this period. Figure |I6 depicts the general distribution of land uses proposed by Option V. Specific Guidelines - Option V Existing Withdrawals Existing Public Land and Executive Orders, and statutes withdrawing lands of NPR-A are to be continued, except as noted in the following recommendations. *Lands to be designated Wilderness should be withdrawn from the NPR-A designation. Wilderness All federal lands in the De Long Mountains, Colville River valley, the Utukok, Icy Cape, and Teshekpuk Lake areas, and all barrier islands and their lagoons are to be designated as Wilderness. (See Glossary.) *These areas were singled out for Wilderness designation be- cause of wilderness aualities each contains and because of © 4 : . \ iy 0 iZ - , —— aR NX \Y aed, WN: \ Vf rn eos — \\ \ af AY = NS : Co Nati —f A PRN ak Pass A 7 \S: 7 Wa Ys Cooperative W ildlife M anagement Are Areas for extraction of coal for village use or gravel for use in villages or government programs may be designated on federal lands if it can be demonstrated either that these are lacking on village lands or that the environmental costs of extraction on village lands are greater than those associated with extraction from alternative sites on federal lands. An environmental analysis shall be conducted prior to designation of such sites, including analysis of impacts of resource transport to place of use. *See Option IV. Wild or Scenic Rivers The Colville, Nigu-Etiviuk and Utukok Rivers should be designated as Wild Rivers. *See Option ||. Areas of Critical Environmental Concern None are recommended as all are protected by Wilderness designation. Recreation See General Guidelines. Archaeology and Paleontology See General Guidelines. Native Livelihood - Subsistence Subsistence use of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority consumptive use. *See General Guidelines. Key subsistence sites such as spits, points of land, or hunting and fishing campsites used by more than one family shall be identified and verified. The use of these sites shall be allowed by permit issued to the recognized tribal organization(s). *See Option I1. The use of subsistence sites by a family or individual shall be allowed by permit. *See Option ||. The land manager, in cooperation with a local advisory committee, local government and the affected village, shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. Land Ownership Except as a result of litigation and lands to be transferred under the Alaska Native Claims Settlement Act, all land will be retained in federal ownership. *See Option I!. Minerals and Mining Mineral extraction is not permitted on Wilderness lands and none shall be extracted from the remaining federal lands prior to 2000 except for coal and gravel for loca! use. *Wilderness designation affects only Nuiqsut directly; there- fore, a special exclusion is required in order to mine subsis- tence coal. This village and all other villages will require gravel. Government use or contractor use of gravel or sand for exploration on federal lands outside the Wilderness lands is allowed. See Options | and IV. A government resource and planning program should be developed and carried out. This program will include systematic geochemical and geophysical investigations supported by geologic mapping (1:250,000) to determine structural and stratigraphic relationships of the terrane, as well as sampling to determine occurrences of mineralization. Although this recommendation applies to the entire area, minerals assessment in Wilderness shall be given a low priority. *See Option II1. If the decision is made to permanently des- ignate one-half of the area Wilderness, the relative priority of mineral inventory would be low compared to other areas of the state or nation left open to potential mineral develop- ment. Transportation No surface corridors should be designated at this time but should be part of the study of non-wilderness lands. *See Option Il. Air Quality Class | air quality shall be maintained. Fish and Wildlife It is recognized that Wilderness proposed in this option would in general provide needed habitat protection in Wilderness areas. How- ever, any wilderness management should give consideration to the special needs of wildlife resources. All *Even on Wilderness Areas conflicts may arise between the needs of fish and wildlife and other resources or activities. The general guidelines should be applied in dealing with such conflicts and in the development of wilderness manage- ment plans. barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. Caribou shall *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by marine mammals, in- cluding the endangered bowhead whale, and by anadromous fish. Alteration of conditions in the lagoons could signifi- cantly effect productivity and thus impact these internation- ally important species. The islands protect these lagoons and provide habitat for other species. land. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and prohibiting reindeer herding so long as a significant regional caribou population exists. take precedence over any reindeer herding on public Agency Management Planning and management for the area should be conducted within the context of the larger region consisting, at least, of the North Slope Borough, Noatak and Kobuk River valleys. *Decisions about NPR-A cannot ignore the resources and values of the rest of the Arctic. Major examples of this are the caribou herd, transportation and resource development. After Congressional action the land managing agency(s) with full state, federal, plan. local and public input, should develop a detailed management *As soon as Congress selects a land managing agency(s) it will be imperative to quickly develop a management plan that will Provide a guideline for activities. Management plans should be developed for all areas including Wild or Scenic Rivers, critical habitat and areas of Critical Environmental Concern. Such plans must protect the wildlife, as well as provide for continued vehicle access and subsistence use. An interagency overview and policy group should be developed for the Present Naval Arctic Research Laboratory to represent broad govern- taken to assure designation and permanent protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resource Management All Wilderness and Wild Rivers should be managed so that any contrast created within the characteristic environment will not attract attention [Visual Resource Management (VRM) Class |]. (See Glossary. ) *wilderness areas and Wild Rivers as defined in this report permit only very limited facilities or changes’ in the landscape. Federal lands along the Chukchi Sea coastline and the elongated lakes area south of Barrow shall be managed as VRM Class Il. (See Glossary. ) *See Option Ill. The remainder of the non-wilderness lands should be managed as VRM Class 1V. (See Glossary.) *See Option |. Analysis of Option V Designating major areas, approximately one-half of the Reserve, as Wilderness provides permanent protection for all the outstanding wilderness, wildlife, and recreation areas, and, with the special travel and access pro- visions, for the subsistence lifestyle and the Inupiat culture. These major areas and resources would be available for the use, study, and enjoyment of future generations. The northern half of the Reserve, excluding areas around Teshekpuk Lake, remains under the current NPR-A status. The option recognizes the need for a 20-year moratorium on change to protect subsistence and minimize change pressures on the Inupiat people. As in Options II, Ill and 1V, inventory and exploration are permitted on a portion of the area, but development is not. Thus, all resources and subsistence are protected for 20 years. Option V is viewed by its proponents as having five resident's major advan- tages. First, it protects subsistence aspects of the resident's lifestyle for 20 years. Second, it protects the land, wildlife and other resources for the same period. Third, it provides immediate Wilderness protection for approximately one-half of the Reserve. Fourth, it provides Wild River protection for three rivers. Fifth, exploration could continue on a portion of the Reserve, resulting in a better knowledge of the area before preser- vation or development decisions are made. Disadvantages are discussed as part of the following material. Minerals The major areas of hardrock minerals (southern part of NPR-A) and coal potential are permanently precluded from development under this option. Government-sponsored mineral investigations could continue. Few, if any, local or permanent jobs would be created in the northern part before 2000. However, as pointed out in the introduction, this does not appear to differ from other options. A re-evaluation after 2000 would determine what, if any, mineral extraction would occur in any of the non-Wilderness areas. Fish and Wildlife Wilderness Area designation will provide significant protection for wildlife values within the designated boundaries. Migration routes through the De Long Mountains, the caribou calving grounds in the Utukok uplands and Teshekpuk Lake areas and the waterfowl area around Icy Cape and Teshekpuk Lake are protected. The remainder of the area, including large areas of caribou summer and winter habitat and the coastal waterfowl areas, have the protection of existing laws and the NPR-A designation as a Reserve. Culture Option V designates some one-half of the Reserve as Wilderness and, although permitting mineral exploration, protects the entire Reserve for 20 years. This provides time for at least one additional generation of Inupiat to deal with their changing world. (See Option II1, Analysis.) Few jobs would be created before 2000 on NPR-A. However, the oppor- tunity would remain for development to occur on the northern half. if resources are discovered and it is necessary and economically feasible to extract them after 2000. Unless specifically addressed in new legislation, conflicts may arise over extent, season, and means of subsistence harvesting. Wilderness and Wild Rivers Icy Cape, Utukok, De Long Mountains, the Colville River valley, the Teshekpuk Lake and the barrier islands and lagoons are designated Wilderness. Thus, the most important and spectacular of NPR-A's wilder- ness, recreation, scenic, and _ wildlife values are given permanent Protection. The balance of the area, although roadless, is not of the quality of those areas to be designated under this option. While providing strict protection for these areas, the very designation may tend to attract an increased number of visitors. The three major rivers are protected by Wild River designation. Discussed earlier in this study, and remaining to be resolved, is the question of the effect Wild Rivers, particularly the Colville in this Option, will have on the ability to transport minerals both through and out of NPR-A. Recreation and Scenery Major wilderness, recreation and scenic values are given maximum protection under Wilderness designation for the southern portion of NPR-A. The central and northern portion has the protection of existing laws and the NPR-A designation. Mineral exploration may continue on these lands, but since it is government-sponsored, minimum conflict should occur. Geographic Areas of Potential Conflict The southern portion of NPR-A and the upper Colville River and Teshekpuk Lake area are designated Wilderness. Potential conflicts due to resource development in the Icy Cape and Utukok-Awuna River area (coal), De Long Mountains (hardrock minerals), and Teshekpuk Lake (oil) are eliminated by prohibiting development activities. This prohibition, however, does not eliminate the nation's need for mineral and energy supplies and thus this option may be in conflict with the national need to expedite solution of its energy supply problem. The remainder of the area is open to mineral exploration under the NPR-A's Reserve designation. Other Considerations Non-designation of the northern portion of NPR-A will be viewed by many as a_ significant disadvantage of Option V. Designation assures a management regime and permanent protection. This is not provided by Option V_ outside the Wilderness area. Since no_ specific management designation occurs, funds for management and enforcement programs could be limited unless included in new legislation. Summary The major attribute of Option V is that it permanently protects major wilderness, wildlife, and recreation areas. Subsistence lifestyle and other values would be protected over the entire Reserve for 20 years. All resources of the northern half of NPR-A would be protected until 2000 without closing options for economic development after 2000. After 2000 it will be necessary to review the status of the non-Wilderness portion of the Reserve. The result of such a review, its effect on subsistence, wildlife, wilderness, resource development, and jobs will be a function of that time, the nation's needs, and data availibility. Option VI Introduction This option, like Option II] and IV, is based on the premise that the highest known value of NPR-A is the habitat it provides for fish and wildlife populations, and that the Native peoples living in NPR-A and throughout northwestern Alaska are largely dependent upon these fish and wildlife resources. However, this option provides for a permanent manage- ment system by designating the entire area as a fish and wildlife manage- ment area. The overriding policy of this option is the protection and enhancement of fish and wildlife habitat and populations over the entire Reserve. Other activities, including mineral exploration and development, would be permitted to the extent that they are compatible with these primary management objectives. The absence of Wilderness Area or Wilderness Study Area designation allows management flexibility in dealing with a variety of ongoing and future uses or activities on NPR-A such as mining, off-road vehicle use, and scientific research. However, it is recognized that many wildlife species using NPR-A thrive best under wilderness conditions and this fact should receive due consideration in management plans. This option stipulates a commitment on the part of the managing agency or agencies to actively enhance fish and wildlife resource values, and, to make positive efforts to support continuance of subsistence lifestyles at least over the next two decades It is assumed that opportunities for economic development and wage-based lifestyles in the region in the next two decades will be derived from resources located on private and state lands to the east and west of NPR-A. Nonrenewable resources of NPR-A may be developed if this can be done so as to be compatible with fish and wildlife management. This has the potential of providing future economic opportunity for the local residents. The distribution of land usage proposed is shown in figure I7. Specific Guidelines - Option VI Existing Withdrawals Existing public land withdrawals are to be continued except as noted in the following. *The policies of this option are best served by retaining pre- sent withdrawals with some exceptions. The NARL tract, DEWLine sites, etc., remain withdrawn. Wilderness RA aAnane ann ta KA Anntn nated 2] urine *Greater management flexibility is possible without Wilderness or Wilderness Study Area designation. Wild or Scenic Rivers The Colville, Nigu-Etiviuk, and Utukok Rivers should be designated as Wild Rivers. *See Option II. Areas of Critical Environmental Concern No such areas are proposed. *Because this option requires that protection and enhancement of fish and wildlife take precedence over all other uses and activities, the designation of critical environmental areas for wildlife in selected parts of NPR-A is unnecessary. Recreation See General Guidelines. Archaeology and Paleontology The archaeological sites associated with Inyorurak Pass (Kinyiksukvik Lake) should be withdrawn from the public domain. *See General Guidelines. Native Livelihood - Subsistence Subsistence uses of fish, game, and other resources forming part of the traditional subsistence base shall be the first priority consumptive use. *See General Guidelines. Key subsistence sites such as spits, points of land, or hunting or fishing campsites used by more than one family shall be identified and verified. The use of these sites shall be allowed by permit issued to the recognized tribal organization(s). *See Option I!. The use of subsistence sites by a family or individual shall be allowed by permit. *See Option II. The land manager, in cooperation with a local advisory committee, local government and the affected villages, shall develop and adopt such minimum regulations for the use of subsistence sites as are necessary to protect the values of the surrounding land and water. *See Option Il. At the end of 20 years the subsistence management provisions should be reviewed in light of current regional economics and lifestyles. *Rapid economic and cultural changes may occur over the next two decades due to developments outside and possibly inside NPR-A._ It will be appropriate to review the subsis- tence management objectives in the context of these regional events. Land Ownership Except as a result of litigation and lands to be transferred under the Alaska Native Claims Settlement Act, all land will be retained in federal ownership. *See Option |!. Minerals and Mining Minerals extraction shall be permitted under a lease program only. This requires Congressional establishment of a mineral leasing authority for locatable minerals. It should further be provided that leasing and extraction will be permitted only when it is determined by the Secretary that such activities are compatible with the major management objectives for the areas and under such regulations as are necessary to ensure that compatibility. *Allowing mining to occur, but under a leasing program rather than the 1872 Mining Law, permits production of minerals with maximum government administrative flexibility to protect other values, particularly fish and wildlife. A government resource and planning program shall be developed and carried out. This program will include systematic geochemical and geophysical investigations supported by geologic mapping (1:250,000) to determine structural and stratigraphic relationships of the terrane, as well as sampling to determine occurrences of mineralization. Transportation No surface corridors shall be designated, except where it is de- termined by the Secretary that such corridors can be established and used in a manner compatible with the major management objectives and that no feasible alternative exists. *See Option II. Air Quality Class | air quality shall be maintained. Towns and Villages Support facilities for resource development should be of a temporary, dormitory nature. *See General Guidelines. If, as a result of changes on federal land, a significant impact is expected on a village(s), the borough, state, and federal government should undertake a cooperative effort with the village to meet or ameliorate those impacts. *Federal actions benefiting the nation could have severe nega- tive impacts on a local village. This must be recognized and steps taken in advance to mitigate impacts. and Wildlife Fish The General Guidelines apply except that all of NPR-A will be managed so that the perpetuation and enhancement of fish and wildlife resources is the primary management objective. *The major thrust of this option is to protect and enhance fish and wildlife resources on the entire Reserve. See introductory notes. All barrier islands and lagoons shall be withdrawn from the public domain and placed in a protective status. *The lagoons associated with NPR-A are used seasonally by vast numbers of migratory birds, by marine mammals, in- cluding the endangered bowhead whale, and by anadromous fish. Alteration of conditions in the lagoons could signifi- cantly affect productivity and thus impact these internation- ally important species. The islands protect these lagoons and provide habitat for other species. Caribou shall take precedence over any reindeer herding on public land. *Conflicts have arisen between wild caribou and domestic reindeer wherever these have overlapped, to the detriment of both. Caribou of the Western Arctic Herd use the entire Reserve and in turn are key to the subsistence needs of the residents throughout northwestern Alaska. The greater public interest will be served by reserving the public lands for use of caribou and prohibiting reindeer herding so long as a significant regional caribou population exists. A management plan should be implemented to Protect caribou migration routes in the De Long Mountains zone. *Caribou of the Western Arctic Herd use all of NPR-A. The De Long Mountains zone is used intensively by caribou migrating to summer and winter range. Agency Management Planning and management for the area should be conducted within the context of the larger region consisting, at least, of the North Slope Borough, Noatak and Kobuk River valleys. *Decisions about NPR-A cannot ignore the resources and val- ues of the rest of the Arctic. Major examples of this are the caribou herd, transportation, and resource development. After Congressional action the land managing agency(s) with full state, federal, local and public input, should develop a detailed management plan. *As soon as Congress selects a land managing agency(s) it will be imperative to quickly develop a management plan that will provide a guideline for activities. Management plans should be developed for all areas including Wild or Scenic Rivers or critical habitat. Such plans must protect the wildlife, as well as provide for continued vehicle access, and subsistence use. An interagency overview and policy group should be developed for the Present NARL to represent broad government interests in this key center of Arctic research. Steps should be taken to assure designation and permanent Protection of field sites associated with the laboratory. *There is a continuing need for a national laboratory to sup- port a broad range of Arctic research. Visual Resources Management Wild Rivers should be managed so that any contrast created within the characteristic environment will not attract attention [Visual Resource Management (VRM) Class |]. See Glossary for explanation of classes. *wild Rivers permit only very limited facilities or changes in the landscape. That portion of the De Long Mountains that is of Class A scenic quality should be managed as VRM Class I]. (See Glossary.) The remainder of NPR-A should be managed as VRM Class IIl. (See Glossary. ) Analysis of Option VI Option VI's major emphasis is on the fish and wildlife resources of NPR-A and the dependence of the Inupiat on these resources. The entire Reserve would be permanently managed as one unit to preserve and enhance the wildlife and fisheries values, without any other designation except three Wild Rivers. The unique attributes and requirements of wide-ranging Arctic species, notably caribou, suggest that fragmentation of the area into units with different management priorities would not provide an optimum regime for wildlife. In Option VI the lands of the Reserve would be retained in public ownership. With its overriding purpose being the protection and enhancement of fish and wildlife resources and protecting the basis of subsistence, this option appears, on first examination, simple. Nevertheless, because other resource development and economic activities would be permitted, if compatible with wildlife and subsistence objectives, a precise analysis for this option is difficult to develop. The test of compati- bility will be greatly influenced by technological innovation, long-term results of development in the Prudhoe Bay area and elsewhere, and the political, economic and legal climates at any given time. Option VI is seen by its proponents as having five major advantages. First, it provides strong protection for wildlife and fisheries over the entire Reserve, and enhancement authorities. Second, it protects subsistence aspects of the residents' lifestyle for at least 20 years. Third, it provides Wild River status for three rivers. Fourth, mineral exploration could continue, providing improved information on these resources. Fifth, some possibilities remain open for economic development if such is compatible with the fish and wildlife resource. Disadvantages are included as part of the succeeding discussions. Minerals Option VI permits mineral exploration and inventories to continue, thereby adding to the nation's knowledge of its resources, and provides for the leasing of minerals including hardrock types. However, current Department of the Interior policy for certain lands, including national wildlife refuges and certain other lands managed for wildlife, excludes coal leasing. Existing policy and statutes also preclude hardrock mining on refuge lands except in some cases involving use prior to designation. Oil and gas leasing has been permitted on the Kenai National Moose Range but not on the Arctic National Wildlife Range. Thus, although the option appears to permit immediate development on NPR-A, if the option were implemented by inclusion of the area in the National Wildlife Refuge System, some Depart- ment of the Interior policy changes would be required. For hardrock mineral leasing, legislation similar to that described under Option 1! would be required regardless of how the option was implemented. In addition, because of the test of compatibility requirements, a thorough and extended analysis process would ensue before any such mineral extraction actually occurred. Immediate mineral development is unlikely. The development of resources and jobs, market conditions permitting, depends upon locating the resource and the determination of “compatibility . " Draciimahly tha hiindan af nnanf nf camastihilite; with fill anali nw oanf fie and wildlife values will be placed on the mineral industry. However, one land manager could issue mineral leases while another would find all uses other than wildlife and subsistence to be incompatible and no resources de- velopment would occur. Thus, development of mineral resources on the area would not be likely to occur unless it was clearly and significantly in the national interest, and was associated with economic incentives sufficient to support the cost of full mitigation and still be profitable. Since even under the most facilitative of options (Option |), mineral development is not expected in less than 20 years, it can be assumed that a similar or longer time span would ensue under Option VI. In short, even assuming economic mineral deposits are located, this option will limit development to those that are of highest economic value or that have significant national or strategic value. Fish and Wildlife The intent of this option is to provide the optimum conditions for fish and wildlife resource enhancement. In the short-term, this intent will be expressed mainly through protection and a go-slow approach to other activities. Implementation is likely to involve closer monitoring of status of fish and wildlife populations and increased research, both of which could have long-term benefits to wildlife on the Reserve and beyond the bound- aries. Abundance and diversity of fish and wildlife could be increased, although some limits imposed by events and conditions outside of the Reserve could still unfavorably impact many species such as caribou and migratory birds. Thus, even adoption of Option VI would by no means assure the optimal conditions for fish and wildlife. Option VI provides for the opportunity and management which will permit enhancement of the wildlife values to be attempted without the time constraints of the Wilderness Study Area designation of Option IV. Adoption of this option would entail a strong mandate for increased funding of fish and wildlife management needs, including regulatory and research functions. Initially, habitat enhancement or rehabilitation is not likely to be necessary or desirable. However, enhancement efforts could include such activities as reintroduction of muskoxen, tundra hare, and snow geese and rehabilitation of possibly depleted fisheries stock. Such efforts would not be labor intensive and thus would contribute relatively few local jobs, but the program could be used as a basis for developing a cadre of local residents with professional skills in fish and wildlife management. Mineral development may affect wildlife values on a site-specific basis or by its transportation network and is technically in conflict with wilderness- dependent species such as caribou, wolf and grizzly bear. However, the intent of development by leasing in this option is to permit mineral extrac- tion which meets the compatibility test, thus protecting the wildlife resources of NPR-A. Presumably, protection may not be absolutely com- plete but it should be able to hold adverse effects to such a minimum as to be judged fully compatible. Culture This option would protect the subsistence base, subject to changes induced by potential mineral leasina, and thus provide for the continuation of cul- tural elements tied to this base. In this sense, this option would tend to slow down imposed cultural change, but wage-based economic inputs would have to come from areas far removed from the villages in NPR-A. The effects on ASRC and village corporations of shifting the wage and cash base to more distant geographic points are not clear. It is posssible that conflicts between the desires and perceptions of local residents regarding the fish and wildlife resources and the perceptions of the managers of these same resources will lead to problems unless manage- ment plans and problems are carefully worked out step by step. This option also recognizes that due to the rapidly changing conditions in the Alaskan Arctic the entire subsistence question should be re-examined in 20 years. Should mineral extraction occur, jobs would be created and a transportation system would be necessary. These jobs could be filled by local residents, thereby providing cash now necessary to live in the Arctic and easing the transition from subsistence to a cash economy for the people of the North Slope Borough and northwestern Alaska. The development of skills, Provision of transportation infrastructure and the creation of a service industry could assist ASRC and NANA in the development of mineral resources on their lands. When or if any of this would occur cannot be stated with any certainty. The development of NPR-A mineral resources could preclude development of ASRC, NANA, or state lands by preempting markets or sources of financing. Jobs that become available may require skills not available in the local labor pool, or be controlled out of the state's urban areas, or attract an influx of new job seekers. Jobs, then, could go to the outsiders having requisite skills, leaving the local persons unemployed and dependent on the subsistence resource. Wilderness and Wild Rivers No _ formal Wilderness designations are included in this option. Nevertheless, because of the mandate to protect fish and wildlife habitat and because many of the key species thrive best under wilderness condi- tions, it is likely that much of the Reserve would remain in a wilderness condition. The development activities, however, are to be compatible with fish and wildlife, not with wilderness, per se. In the foreseeable future, fish and wildlife management practices are not likely to significantly detract from wilderness values. All in all, this option is likely to result in rela- tively few irreversible losses to wilderness within the next 20 years. Three major rivers are protected by Wild River designation. Discussed earlier in this study, and remaining to be resolved, is the question of the effect Wild Rivers will have on the ability to transport minerals both through and out of NPR-A. Recreation and Scenery In general, the mandate for fish and wildlife enhancement would indirectly tend to promote maintenance of scenic values and wilderness-type recrea- tional onnortunities. Conflicts maw arice heatweaan wildlifa-ralatad racraa- tional use and wildlife-related subsistence use. The resolution of such conflicts may result in some loss of recreational opportunities. Geographic Areas of Potential Conflict At any location within the Reserve where wildlife and wilderness values occur in concert with mineral values, there is potential for a conflict to develop. Any such potential conflict should be examined under the "compatibility" test prior to development. Areas of conflicts should then be eliminated. However, as explained under Minerals, this has a high likelihood of precluding extraction and development activities. Summary The major attribute of Option VI is that it protects the fish and wildlife resources and encourages their enhancement, protects subsistence, and still provides some opportunity for resource development. Although this option appears to permit immediate development by leasing, in fact, because of the requirement for compatibility, a thorough and extended analysis process would ensue before any such mineral extraction actually occurred. Due to the rapidly changing conditions in Arctic Alaska, the entire subsistence question would be re-examined after 2000. Glossary and Appendix Glossary Areas of Critical Environmental Concern This terminology does not reflect a legal classification or withdrawal of federal lands managed under a precise set of regulations, but rather suggests an area identified by intensive inventory and assessment to require management of critical environmental values. For some values, such as critical habitat for endangered species, protection is legally mandated while for other values protection is discretionary. Critical environmental values are addressed in a number of laws including the Federal Land Policy and Management Act (FLPMA), the National Wild and Scenic Rivers Act, the Endangered Species Act, the Antiquities Act and Historical Preservation Act. FLPMA, representing the latest Congressional environmental mandate (to the Bureau of Land Management), defines Areas of Critical Environ- mental Concern (ACEC) as: -.-areas...where special management attention is required...to protect and prevent irreparable damage to important historic, cultural, or scenic values, fish and wildlife resources or other natural systems or processes, or to protect life and safety from natural hazards. Under this concept, high priority is given to designating critical environmental areas in order to highlight values requiring special management considerations. The mandate is not single-resource oriented. It allows for management spanning a wide range of environmental values where critical non-commodity values must be calculated at the same level of importance as commodity-related values. ACEC's offer a means of protection other than through specific withdrawals and may be more flexible than specific withdrawals as other uses are not precluded if consistent with needed protection of critical values. The land manager is required to weigh optional forms of protection of the designated area, as well as protection versus use or _ development. Identification or designation of ACEC's highlights the values involved and mandates a thorough evaluation of single and cumulative effects of any proposed action. Such actions could be permitted, permitted under certain conditions, or prohibited depending on the evaluation of anticipated change. Critical Habitat Critical habitat is defined as habitat or environment of an endangered plant or animal species. When any federal action may result in the change or destruction of such habitat, the responsible federal agency must: ...take such action necessary to insure that actions authorized, funded or carried out by them do not jeopardize the continued existence of such endangered species or result in the destruction or modification of habitat...determined by the severity...to be critical. (P.L. 93-205.) Mineral or Mineral Resources The terme mineral ar mineral racaireac ac ticad in thie ranart refer ta Mineral Leasing Areas A mineral leasing area is a designated mineralized area having distinct boundaries and high known or potential mineral values in combination with significant surface resource and environmental values. The area is a Planned mineral production area administered within a framework of intensive resource inventory, planning, and mitigative measures. The objective of the area's management is exploration, development, and Production of minerals while protecting to the greatest extent possible other resource and environmental values as viewed in both the near and long term. The basic philosophy of designation of such an area is that a balanced approach to natural resource development and protection involves not only complete preservation of some areas, but also a positive approach to management of mineral resources based on the acknowledgement that certain areas have apparent high value for mineral exploration and production. These areas often also have significant environmental values requiring special governmental overview. One is not entirely exclusive of the other when mineral leasing is permitted. Key points in selecting areas for mineral leasing are: I. Impacts of mining or mineral extraction should be evaluated in the context of both human and historic time and perspective, i.e., one day's mining is another day's history, and the cut bank or bluff created by natural geologic processes is very similar to the one created by a mining operation. Alaskan experience indicates that within 75 years many of the early day mining impacts have been naturally rehabilitated. The public should be encouraged to look past the current moment, and planning must be tied to long-term objectives, as well as to immediate mitigation. 2. Mining cannot be carried on without some disturbance of the earth's surface and_ ecosystems. Comprehensive | resource inventory and = planning, as well as the implementation of stipulations, land zoning and mitigating measures, can ensure protection of critical values such as water quality, archaeology, key wildlife habitat, and rare and endangered wildlife. This would be a major difference between mineral management in a mineral leasing area and past mining under the 1872 Mining Law. Modern technology can be employed to inventory, monitor, and plan mineral development to alleviate many of the traditional mining impacts. Access roads can be developed in coordination with total plans; critical areas can be identified and zoned as closed to mining. Secondary aspects such as_ dormitory development can be designed, controlled and directed based upon recommendations and decisions arrived at in the detailed land-use plan. ci The mineral leasing program should reflect a commitment by government and industry to demonstrate that important mineral values can be developed without wholesale destruction of environmental values. Designation for mineral leasing would include a commitment of the government to take the steps necessary to facilitate mineral development. This would include a high priority on inventory, planning, environmental assessment, funding and_ staffing to Provide adequate administration of the areas. The Priority and intensity of development effort is a key component of the mineral leasing concept. The first 10 years after designation would be spent on detailed government inventory of minerals in the mineral leasing area and detailed study of other resource values. The second 10 years would include commencement of industry evaluations under permit, identification of lease areas, analysis and planning of transport- ation routes, compliance with NEPA and preparation for leasing at the end of the 20-year period. Legislative and regulatory needs: 2. Congressional designation of mineral leasing areas. Establish mineral leasing authority for locatable minerals. Clarify agency roles - i.e., BLM, USGS, OSM, BOM, EPA, USFWS, etc. Agency overlap in authorities and programs is a major factor to be covered in administration of the areas. Provide authority for funding and administration. Direct the Interior Department to develop an inventory and plan for the area which would provide for short- and long-term mineral and envi- ronmental objectives, mitigative measures and stipulations, and coordination with state, regional, or local planning authorities. Provide authority for designation of additional areas through a detailed multi-resource planning system. Prohibit patenting of the surface estate. Basic rights to prospecting (or exploration) and to title of minerals discovered shall be vested in the leasee for a set time period. Provide classification and zoning authority for the agency managing the leasing area sufficient to regulate mining. Implement surface protection regulations such as used by the U.S. Fish and Wildlife Service or as drafted under (FLPMA). Subsistence Subsistence use means the noncommercial customary and traditional utiliza- tion within Alaska of wild, renewable resources for (Il) direct personal or family use for food, shelter, fuel, clothing, tools, or transportation; (2) the making and selling of handicraft articles (including clothing), but only out of nonedible byproducts of fish and wildlife taken for such personal or family use; or (3) customary trade, barter, or sharing among subsistence users for personal or family use. The continuation of the opportunity for subsistence uses by Natives of Alaska and by other residents on the public lands is essential to their physical, economic, cultural, or traditional existence. This situation is unique to Alaska in that there is usually no practical alternative means to replace food and other items gathered from fish, wildlife, and vegetation on which subsistence users are dependent. The overriding objective for continuation of subsistence activities is to cause the least adverse impact possible on rural people who traditionally and consistently depend upon subsistence activities consistent with proper management of the resource and the purpose for which any area is withdrawn or classified. However, nothing in this definition shall be construed as permitting any subsistence use of the resources of any portion of the public lands, whether or not within any conservation system unit, if any such use was not permitted on the date of the adoption of this plan. Visual Resource Management Classes Class |. This class provides primarily for natural ecological changes; however, it does not preclude very limited management activity. Any contrast created within the characteristic environment must not attract attention. Class | applies to Wilderness Areas, some natural areas, Wild Rivers, and other similar situations where management activities are to be restricted. Class Il. Changes in any of the basic elements (form, line, color, texture) caused by a management activity should not be evident in the characteristic landscape. A contrast may be seen but should not attract attention. Class Ill. Contrasts to the basic elements (form, line, color, texture) caused by a management activity may be evident and begin to attract attention in the characteristic landscape. However, the changes should remain subordinate to the existing characteristic landscape. Class |V. Contrasts may attract attention and be a dominant feature of the landscape in terms of scale; however, the change should repeat the basic elements (form, line, color, texture) inherent in characteristic landscape. Class V. Change is needed or change may add acceptable visual variety to an area. This class also applies to areas where the natural character has been disturbed to a point where rehabilitation is needed to bring it back into harmony with the surrounding landscape. This class would apply to areas identified in the scenic evaluation where the quality class has been reduced because of unacceptable cultural modification. The contrast is inharmonious with the characteristic landscape. Wilderness Wilderness as designated in this study shall be administered in accord with the applicable provisions of the Wilderness Act but with two special provisions: First, vehicular, including snow machines, airplanes and motor- boats, access to and travel over the area, as well as subsistence access in the mode and extent in use at the time of designation shall be permitted, subject to administrative responsibility to protect basic resources; and second, provision shall be made for allowing, by permit, nonpermanent structures necessary for subsistence activities, traveler safety, and the like. Wilderness Study Area Wilderness Study Area (WSA) means a roadiless area found to have wilderness characteristics and the potential for being included in the National Wilderness System, and is an area which will be subjected to intensive analysis, mineral surveys to determine mineral values, and public review to determine Wilderness suitability, and is not yet the subject of a Congressional decision regarding its designation as Wilderness. Since NPR-A lands are Presently withdrawn from appropriation under the mining laws, WSA's would continue this withdrawal until a final determina- tion is made after 2000 [Sec. 603(c), P.L. 94-597]. Should all or any portion of NPR-A be designated a Wilderness Study Area, it would be for these reasons: I. A high degree of protection for the area for one generation (20 years) is needed in light of known regional wildlife and cultural concerns. 2. Resource’ values, particularly non-wilderness values, while generally determined in the 105(c) land plan, require further evaluation before a development or permanent protection decision is made. A measured pace of resource analysis with a final decision in 20 years will complement other regional land activities, such as OCS, regional corporation and state land development, Trans-Alaska Pipeline System corridor-Prudhoe Bay development, and (d)(2) enactments. The following points outline the extent of activities envisioned in Wilderness Study Areas: I. Continued access via mechanical means will be permitted for subsistence and other uses, including recreation and resource evaluation, provided resource values are not destroyed or significantly altered. 2. No corridors could be designated, and no permanent highways or roads, powerlines, or pipelines could be built. 3. The area would continue to be closed to mineral entry and leasing. 4. Continued mineral exploration would be allowed under stipulation; 1 aata such thinas as seismic linac tact Arillinn AvanianA tance surface vehicle, temporary snow and ice roads, and temporary camps would be permitted. Permanent roads, airfields and drilling pads would not be allowed except where these could be rehabilitated to Class | VRM standards or would naturally be obliterated over a short period of time. Areas of Critical Environmental Concern, critical habitat, and archaeological areas identified in the resource studies would be the basis for special stipulations for mineral exploration, subsistence, recreation and scientific use. Appendix TASK FORCE MEMBERS Curtis V. McVee, Chairman State Director, Bureau of Land Jacob Adams * William Thomas Clarence Antioquia Brian Harry *+ Robert Peterson Eben Hobson * Herb Bartel Harry Hulsing * Charles Sloan Robert E. LeResche * Jack Roderick * Douglas Z. Mutter John J. Mulligan * Donald Blasko William R. Thomas *+ Bill Welch Management (BLM) Chief, Lands Division, Arctic Slope Regional Corporation (ASRC) Administrative Asst. Lands Division Area Director, Bureau of Indian Affairs Alaska Area Director, National Park Service (NPS) Acting Director (NPS) Mayor, North Slope Borough (NSB) Planning Director (NSB) District Chief, Water Resources Division, Geological Survey (USGS) Hydrologist (USGS) Commissioner, Alaska Department of Natural Resources (ADNR) Deputy Commissioner (ADNR) Principal Planner (ADNR) Chief, Alaska Field Operations Center, Bureau of Mines (BOM) Supervisory Physical Scientist (BOM) Area Director, Heritage Conservation and Recreation Service (HCRS) Acting Director (HCRS) Gordon Watson Area Director, U.S. Fish and Wildlife Service (USFWS) *+ Leroy Sowl Associate Director (USFWS) * Representative + Successor to above REPRESENTATIVE OF THE SECRETARY OF THE INTERIOR Jerry Gilliland Special Assistant to the Secretary, Alaska, U.S. Department of the Interior PLANNING TEAM STAFF WG = Work Group WGL = Work Group Leader Date indicates the time participation ended. Jerry Wickstrom - Study Team Leader Roger Brubaker - Study Team Leader Horace Sanders - Asst. Study Team Leader J. David Dorris - Regional Planner Leroy Anderson - Game Biologist (WG 3) Dick Anderson - Realty Specialist Don Baggs - Mining Geologist (WG 5) Lorraine Beetus - Clerk Typist Donald Blasko - Supervisory Physical Scientist (WGL 5) Catherine Bolds - Receptionist Barbara Cook - Receptionist Anita Cox - Receptionist Grace Croley - Clerk Typist Craig Davis - Archaeologist (WG 4) Jan Erickson - Resource Analyst - State of Alaska Representative (ADNR) Bill Ewing - Fish & Wildlife Biologist (WG 3) Alvin J. Feulner - Hydrologist (WG 6) Greg Fisk - State of Alaska Representative (WG 1) Ginger Giardano - Clerk/Word Processor James K. Gilliam - Fish & Wildlife Biologist (WG Thomas Hablett - Fishery Biologist (WG 3) BLM Apr. 1978 BLM BLM BLM USFWS BLM BOM BLM BOM BLM June 1978 BLM Sept. 1978 BLM Nov. 1977 BLM NPS ADNR USFWS USGS Sept. 1978 ADNR BLM 3) USFWS USFWS Dick Ping Hsu - Archaeologist (WGL 4) Uldis Jansons - Mining Geologist (WG 5) Peter Lent - Supervisory Fish & Wildlife Biologist (WGL 3) Dana Linck - Archaeologist (WG 4) Elaine Loopstra - Clerk Typist Bertha Lowe - Interpreter Brian McMillen - Recreation Specialist (WG 2) Jim Morris - Recreation Specialist (WGL 2) Jack Mosby - Recreation Specialist (WG 2) Tom Mowatt - Geologist (WG 5) Jim Mroczek - Illustrator Vicky Oliver - Editorial Assistant Art Patterson - Regional Economist (WG |) Katherine Reed - Editor William Schneider - Archaeologist (WG 1) Charles Sloan - Hydrologist (WGL 6) Dorthy Strickland - Clerk/Word Processor Mary Ella Stuart - Illustrator Allan Thomas - Fish & Wildlife Biologist (WG 3) Melitta C. White - Office Manager Bob Worl - NSB Representative Duc VanTran - Illustrator NPS BOM USFWS NPS June 1977 BLM Jan. 1979 BLM BLM HCRS HCRS BOM BLM Aug. 1978 BLM BIA USGS NPS USGS BLM BLM BLM BLM NSB May 1978 BLM ERRATA SWEET Final Study Volume 1. Summaries of Values & Resource Analysis and Land Use Options (Excluding Petroleum Values & Uses) SEVERAL CORRECTIONS SHOULD BE MADE ON THE MAP LEGEND BLOCKS OR ON THE COLOR MAPS LISTED BELOW. Page 17 35 37 43 55 65 81 91, 95, 97, 101 and 109 Map Heading Section 1, Plate 2 (Native Livelihood and Dependence) Section 3, Plate 2 (Recreation) Section 3, Plate 3 (Recreation) Section 4, Plate 1 (Wilderness) Section 4, Plate 7 (Wilderness) Section 5, Plate 2 (Visual) Section 6, Plate 3 (Fish and Wildlife) Section 6, Plates 7, 8,9, 10 and 14 (Fish and Wildlife) Correction To Be Made The gold area around Sagwon, near the right edge of the map, should not in- clude the words ‘‘No Data’. “‘No Data” should be raised above the colored area to to the white area (about 1 inch). Area identified in the key as ‘1’ should read ‘‘Dabler and diving ducks, shorebirds, phalaropes, all four species of loons (September); walrus, beluga whales and gray whales’’. Area identified in the key as a black pattern should read ‘‘Areas of Exclusive Guiding Rights’. Area outlined on the map without color or pattern should be identified as “Oil and Gas Lease Applications (on file as of 8/1/78)". Refer to Section 10, Plate 1 (Land), page 145. In the key “‘Ikpipuk River’ should read ‘‘Ikpikpuk River’’ and ““Teshepuk Lake Area” should read ‘‘Teshekpuk Lake Area”’. Statement to be added to the legend block: ‘’See Tables 5-2 and 5-3 for information which supersedes that which is boxed on the map”. The identification of the light and dark green areas in the key should be reversed. Light-green indicates ‘Southern Foothills Zone’’ and dark green shows ‘‘Mountains Zone”. Statement to be added to the legend block: ‘Systematic aerial surveys of migratory birds were not undertaken on the offshore islands as part of the 105(c) study”. NPR-A 105(¢) Planning Team u.S.D.1., Bureau of Land Management Anchorage Fue ral office Building (910) posTAGE AND FEES PAID 701 ¢ Street, Box 13 Anchorage, Alaska 99513 u. 6. DEPARTMENT oF THE INTERIOR INT 415 emAIL PENALTY FOR PRIVATE use, $300 Ul! geese National Petroleum Reserve - Alaska 105(c) Planning Team U.S.D.1., Bureau of Land Management Anchorage Federal Office Building (910) 701 C Street, Box 13 Anchorage, Alaska 99513 i ¥Ffie report titled Views of the State of Alaska, Final Study Volume 1(a), is still in progress. Please assist us in adding this information to your set of reports by completing the post card attached. NATIONAL PETROLEUM RESERVE IN ALASKA 105(c) FINAL STUDY FOR THE SECRETARY OF THE INTERIOR VOLUME 1 Summaries of Values and Resources and Land Use Options (Excluding Petroleum Values and Uses) VOLUME 2 Summaries of Studies VOLUME 3 Record of Public Participation (By the National Petroleum Reserve in Alasisa Task Force) VOLUME w VIEWS OF THE STATE OF ALASKA (By the State of Alaska)