Notice of Application for State Water Quality Certification

Public Notice (PN) Date: January 16, 2026             PN Reference Number: POA-2024-00092 v1.0
PN Expiration Date: February 16, 2026                                             Waterway: Tongass Narrows

Any applicant for a federal license or permit to conduct an activity that might result in a discharge into waters of the United States, in accordance with Section 401 of the Clean Water Act (CWA), must also apply for and obtain certification from the Alaska Department of Environmental Conservation that the discharge will comply with the CWA and the Alaska Water Quality Standards (18 AAC 70). The scope of certification is limited to the water quality-related impacts of the activity subject to the Federal license or permit (40 CFR 121.3, 18 AAC 15.180).

Notice is hereby given that a request for a CWA §401 Water Quality Certification of a Department of the Army Permit application, Corps of Engineers’ PN Reference Number indicated above, has been received[1] for the discharge of dredged and/or fill materials into waters of the United States (WOTUS), including wetlands, as described below, and shown on the project figures/drawings. The public notice and related project figures/drawings are accessible from the DEC website at https://dec.alaska.gov/water/wastewater/.

To comment on the project or request a public hearing with respect to water quality, submit comments via (preferred method) DEC website https://dec.alaska.gov/commish/public-notices/ or email to the DEC email address: DEC-401Cert@alaska.gov with the subject line referencing Public Notice Reference Number: POA-2024-00092 v1.0 or on or before the public notice expiration date listed above.

Applicant: Elden Loop Development, LLC, Wayne Sharp, 10831 100th Street NE, Lake Stevens, WA 98258, (206) 931-7745; Wayne.Sharp@jw-residential.com

Agent: ABR, Inc.--Environmental Research & Services, Zach Huff, 1225 E. International Airport Road, Suite 110, Anchorage, AK 99518; (907) 764-4941; zhuff@abrinc.com.

Project Name: Elden Loop Subdivision, Gravina Island – Elden Loop Development

Dates of the proposed activity are planned to begin and end: 01/01/2026 to 12/31/2026

Location: The proposed activity is located within Section 31, T. 75S, R. 91E, Copper River Meridian, in Ketchikan Gateway Borough, Alaska. Section 6, T. 76S, R. 91E, Copper River Meridian, in Ketchikan Gateway Borough, Alaska.  Project Site (Latitude, Longitude): 55.317660, -131.65220.

Purpose: The applicant’s stated purpose is to construct the infrastructure necessary to build a housing subdivision with new single-family residential homesites in the Ketchikan, Alaska area. The proposed development would be composed of ten (10) single-family homes with associated access roads, utilities, and a new boat launch and dock for the homeowners.

Description of Proposed Work: The applicant proposes to discharge 26,107 cubic yards of shot rock, gravel, and riprap material into 2.79 acres of waters of the U.S. to construct ten (10) new gravel house pads, two access roads, a community boat launch parking lot, and associated utilities for the Elden Loop Subdivision.  The applicant also proposes to construct a boat launch ramp, a fixed dock, and three breakwaters in and above the Tongass Narrows mean high-water mark.

Specifically, the proposed project would discharge 14,078 cubic yards of shot rock, gravel, and riprap material into 1.22 acres of wetlands for the construction of access roads. One 24-foot-wide by 1,980-footlong gravel access road would extend north from the existing Gravina Highway. The roadway would be narrowed to 12 feet wide for the final 800 feet for use as a utility access trail. A turnaround area and gate would be constructed where the utility trail would start. The utility access trail would include a single 24- foot-wide by 60-foot-long bridge spanning an unnamed anadromous stream. Another 24-foot-wide by 1,100-foot-long gravel road would serve the subdivision road. One (1) 24-foot-wide by 60-foot-long bridge and one (1) 24-foot-wide by 50-foot-long skewed bridge would be constructed to cross an unnamed anadromous stream along the subdivision road. The bridges and supporting embankments would be constructed outside the stream channel and above the ordinary high-water mark (OHWM), though approximately 20 cubic yards of riprap may be placed below OHWM for embankment protection.

Gravel Roads: The project will construct one new 24-foot-wide gravel-surfaced access road (Stensland Avenue), extending north from the existing Gravina Highway approximately 1,250 feet to the northern intersection with Elden Loop Road. Two culverts will be placed across Stensland Avenue to maintain existing drainage patterns. From this point, the roadway will narrow to 12 feet wide and extend approximately 800 feet further north to be used as a utility access trail, providing construction and maintenance access for overhead power and communications lines. The utility access trail will be gated at the intersection with Elden Loop and include a small gravel turnaround area. The utility access trail will include installation of a single bridge spanning approximately 60 feet to cross an unnamed stream (Alaska Department of Fish and Game Anadromous Waters Catalog [AWC] number 101-47-10306); this stream has been noted as supporting rearing habitat for coho salmon. No piles or piers will be constructed below the OHWM, and no in-water work is anticipated at this location, including bridge construction. Approximately 60 yards of riprap will be placed above the streambank as added protection for the bridge embankments.

The 24-foot-wide Elden Loop Road will serve the Elden Loop Subdivision, with the road intercepting Stensland Avenue at two locations. Elden Loop will be approximately 24 feet wide and 1,100 feet long gravel surfaced subdivision road that will provide access to 9 new homesites and 1 existing homesite (Block 1, Lot 6). One culvert will be placed crossing underneath Elden Loop Road to convey surface water flows toward the Tongass Narrows. Two prefabricated bridges will be placed on Elden Loop Road at the unnamed stream (AWC 101-47-10306) crossing. The bridges and supporting embankments will be constructed outside of the stream channel and above the OWHM; however, approximately 200 yards of riprap will be placed below the OHWM as streambank protection.

Gravel Road Details: The project will construct one new 24-foot-wide gravel-surfaced access road (Stensland Avenue), extending north from the existing Gravina Highway approximately 1,250 feet to the northern intersection with Elden Loop Road. Two culverts will be placed across Stensland Avenue to maintain existing drainage patterns. From this point, the roadway will narrow to 12 feet wide and extend approximately 800 feet further north to be used as a utility access trail, providing construction and maintenance access for overhead power and communications lines. The utility access trail will be gated at the intersection with Elden Loop and include a small gravel turnaround area. The utility access trail will include installation of a single bridge spanning approximately 60 feet to cross an unnamed stream (Alaska Department of Fish and Game Anadromous Waters Catalog [AWC] number 101-47-10306); this stream has been noted as supporting rearing habitat for coho salmon. No piles or piers will be constructed below the OHWM, and no in-water work is anticipated at this location, including bridge construction. Approximately 60 yards of riprap will be placed above the streambank as added protection for the bridge embankments.

The 24-foot-wide Elden Loop Road will serve the Elden Loop Subdivision, with the road intercepting Stensland Avenue at two locations. Elden Loop will be approximately 24 feet wide and 1,100 feet long gravel surfaced subdivision road that will provide access to 9 new homesites and 1 existing homesite (Block 1, Lot 6). One culvert will be placed crossing underneath Elden Loop Road to convey surface water flows toward the Tongass Narrows. Two prefabricated bridges will be placed on Elden Loop Road at the unnamed stream (AWC 101-47-10306) crossing. The bridges and supporting embankments will be constructed outside of the stream channel and above the OWHM; however, approximately 200 yards of riprap will be placed below the OHWM as streambank protection.

The house gravel pads would require placing 12,742 cubic yards of shot rock and gravel material in 1.43 acres of palustrine forested and scrub-shrub wetlands. Ten (10) new gravel pads (approximately 15,000 to 19,000 square feet each) would be constructed for single-family residences, including driveways and space required to install associated on-site utilities. Each gravel driveway would include an 18-inch culvert. Block 1, lot 6, has a pre-existing single residence structure installed on pilings. A 30-foot by 50- foot driveway and a 30-foot by 40-foot utility pad would be constructed to access the existing house.

Gravel Pad Homesite Details: Each homesite includes a gravel pad and driveway. The nine new gravel pads will support future home construction and will include space required to install associated utilities (e.g., sanitary sewer septic systems, rain catchment cisterns). Piped utilities (e.g., sanitary sewer, potable water service) are not available, and all homesites will require on-site utility services. Gravel pads for homesites are intended to accommodate a 40-foot by 40-foot, single-family residence. Each homesite gravel pad includes a driveway connected to Elden Loop and a driveway culvert to maintain hydrologic connections. Individual residential lots range from approximately 15,000 square feet to 19,000 square feet. Each homesite will also provide a small amount of yard space, though most lots will only be approximately 50% filled, with the remaining lot portions kept in their current, natural state.

A boat ramp, associated turnaround, and parking lot would be constructed near the southeast corner of the project area. The boat launch and parking area would require 1,155 cubic yards of shot rock, 61 cubic yards of gravel, and 164 cubic yards of concrete planks, which would be discharged into 0.12 acres of wetlands. The boat launch structure would be a 170-foot-long by 26-foot-wide ramp constructed from 85 precast concrete planks (26-feet-long by 2-feet-wide by 1-foot-deep) that would extend into the Tongass Narrows (-6.5 feet mean lower low water [MLLW]). Site preparation to place the pre-cast planks would involve using a tracked excavator at low tide. Also, 323 cubic yards of riprap (wave attenuation boulders) would be placed into a 225-feet by 16-feet area below the high tide line (0.015-acre of the Tongass Narrows [+15MLLW to -4 feet MLLW]) parallel to the boat launch.

Existing, Partially Constructed Home Details: On Block 1, Lot 6, there is an existing, partially constructed residence (see Photos 1 and 2, below). This homesite was constructed by the previous property owners in the uplands. At the time the applicants acquired the property, the home site was partially constructed but exposed to the elements. The current property owners “closed in” the structure to prevent environmental degradation, but no further work at this site has been conducted. Examination of the existing disturbance suggests the previous owners did not import fill material for the homesite, but instead cleared the vegetation and underlying organic soils away and then graded the existing soils to provide a level surface to construct the home’s foundation. No additional ground-disturbing activities have been conducted by the applicants.

Boat Launch Ramp and Dock: A boat launch ramp and associated gravel turnaround and parking area will be constructed near the southeast corner of the project area. The boat launch facilities will also include a floating dock and walkway paralleling the boat launch, a riprap breakwater, and three floating tubular wave attenuators. A total of six concrete blocks weighing approximately 25,000 pounds each would be placed in marine waters to anchor the two floating breakwaters.

The current property owners previously sought to transfer the McNabb permit (POA-2018-00379) for dock construction to the Elden Loop Subdivision. Further investigation into the previously permitted project and the partially installed piles has identified that the dock as proposed would be insufficient to support multiple private residences with concurrent use of the facilities. As such, the Elden Loop Subdivision project proposes to construct an expanded boat launch ramp, dock, and support facilities that would meet the needs of a subdivision (versus a commercial skiff rental and tour operator).

A 3-foot by 130-foot steel pipe double tube floating breakwater would be installed parallel to the floating boat launch. The double tube float would be anchored in place with three (3) 25,000-pound concrete blocks. Two (2) 3-foot by 130-foot steel pipe float tube breakwaters would be installed parallel to the dock. The two (2) breakwaters would be connected with 7-foot by 12-inch diameter galvanized steel tubes. The single tube floats would be anchored using three (3) 25,000-pound concrete blocks. All three breakwaters would be used to reduce wave action and turbulence.

1. A 39-foot-long by 29-foot-wide boat launch apron that would provide the transition from the boat launch parking area to the boat launch ramp. The apron would be constructed from clean, locally sourced shot rock (3-inch minus).

    

2. A 170-foot-long by 26-foot-wide concrete boat ramp extending from the boat launch apron into the Tongass Narrows at an approximate 13.0% gradient, from an elevation of approximately 18.0 feet to an elevation of -6.5 feet. The boat launch ramp would be constructed using 85 pre-cast concrete planks (26-feet-long by 2-feet-wide by 1-foot-deep). The concrete planks would be placed directly on the prepared ground surface, which would require some excavation and the placement of fill to smooth the surface. Shot rock will be used as fill where needed. Excavated material is anticipated to largely consist of fractured rock, and it will be beneficially disposed of and used as Project fill (e.g., road embankment, homesite pad). Site preparation to place the concrete planks will be completed using a tracked excavator working from the beach at low tide, and the precast concrete planks will also be placed from the tracked excavator at low tide.

    

3. Removing six previously installed 16-inch steel piles (placed during initial construction by McNabb under POA-2018-00379). It is anticipated that the existing piles will take one to two days to remove using a barge-mounted crane with a vibratory hammer. The steel piles will be reused to support the construction of the new floating dock facilities. A total of twelve (12) 16-inch piles would be used to support the boat launch, walkway, and dock. Piles would be installed from a construction barge using a crane-mounted vibratory hammer. Some piles would require rock sockets, which would be drilled using a large-diameter rock drill from the construction barge. A 260-foot-long by 12-foot-wide floating boat launch would be constructed parallel to the boat ramp and connect to the boat dock. A 12-foot-wide by 200-foot-long floating boat dock would be placed perpendicular to the boat launch, with seven (7) designated parking bays, holding up to fourteen (14) boats total. Additional boat and seaplane parking would be available on the north side of the dock.

    

4. A total of 12 16-inch piles (6 reused and 6 new) is planned for installation to support the floating dock. Piles would be installed from a construction barge (traveling from its homeport in Ward Cove) using a crane-mounted vibratory driver. Some of the proposed piles will likely require rock sockets, which will be drilled using a large-diameter rock drill from the construction barge. It is anticipated that installing the 12 piles will take approximately 12 days to complete, though this timeframe may be shortened if some of the piles do not require rock sockets.

    

5. An approximately 260-foot-long floating boat launch walkway paralleling the boat launch ramp, which will connect the shoreline to the floating boat dock. The floating boat launch walkway will be constructed off-site and towed or barged to the site, where it will be secured in place to the piles. The floating boat launch walkway will likely be removed from its anchored location during winter to avoid the potential for damage from winter storms. The dock would either be pulled from the water and placed on land in the boat launch parking area or potentially towed to a more sheltered site (e.g., cove) where it can be safely secured.

    

6. A floating boat dock (12-feet-wide by 200-feet-long) placed perpendicular to the boat launch dock with 7 designated parking bays capable of handling up to 14 boats total. Additional boat and seaplane parking would be available on the other side of the dock. The floating boat dock will be constructed off-site and towed or barged to the site, where it will be secured in place with the piles. The floating boat dock will likely be removed from its anchored location during winter to avoid the potential for damage from winter storms. The floating dock would either be pulled from the water and placed on land in the boat launch parking area or potentially towed to a more sheltered site (e.g., cove) where it can be safely secured.

    

7. Heavy riprap wave attenuation boulders placed from the shoreline, parallel to the boat launch ramp (from approximately +15-foot mean lower low water (MLLW) elevation to -4 MLLW elevation). A total of 21 heavy riprap wave attenuators would be installed, with each being approximately 15 cubic yards. The 21 heavy riprap attenuators would be discontinuously spread over an approximately 225-foot by 16-foot area.
8. A 3-foot by 130-foot steel pipe double-tube floating breakwater will be installed parallel to the floating boat launch walkway to reduce wave action and turbulence at the floating dock and boat launch ramp. The double tube float would be anchored in place with three 25,000-pound concrete blocks.

    

9. Two 3-foot by 130-foot steel pipe float tube breakwaters will be installed parallel to the floating dock to reduce wave action and turbulence at the floating dock and boat launch ramp. The single-tube floats would be anchored using three total 25,000-pound concrete blocks.

Fill Material Types and Volumes: Gravel, riprap, and shot rock fill will be placed by a combination of dump truck, front-end loader, and excavator, and this material will be spread using excavators and bulldozers before being roller compacted. The precast concrete planks, concrete anchor blocks, and breakwater riprap will be placed by an excavator.

Construction for the subdivision would begin in April-May 2026 and is anticipated to be completed in June 2026. All in-water work is expected to begin in April 2026 and end in July 2026. Pile installation would be completed in May 2026.

Applicant Proposed Mitigation: The applicant proposes the following mitigation measures to avoid, minimize, and compensate for impacts to waters of the United States from activities involving discharges of dredged or fill material.

1. Avoidance: The applicant states that, given the nature of southeast Alaska and the temperate rainforest of Ketchikan, Alaska, it would be difficult to completely avoid impacting wetlands. The applicant had a wetland delineation completed in 2023, which was used to help inform engineering design. The applicant states that only 4.8 acres of the 19.0 acres delineated in the study area were comprised of uplands, and complete avoidance of wetlands is not possible.
2. Minimization: Efforts were made to mitigate impacts to wetlands and waters by providing only the necessary fill to construct the access road, subdivision road, residential driveways, residential home sites, and boat launch facilities. Specific minimization measures include:
   • The access road (Stensland Avenue) was narrowed at its second intersection with Elden Loop, as this portion of the roadway is only required to support utility construction access.
   • Gravel house pads have been designed to be in uplands, where feasible.
   • The gravel house pads and driveways were designed to accommodate the anticipated home footprints and utilities each home site will require (e.g., septic system, cistern).
   • Project design has been updated to remove one homesite that would have impacted the unnamed anadromous stream.
   • The Project will install three prefabricated bridges for each of the crossings of the unnamed anadromous stream. The bridges will be installed without piers or piles placed below the ordinary high-water mark to ensure fish passage is maintained while minimizing the stream crossing’s footprint.
   • The proposed breakwater would be constructed from individual large riprap placements (versus constructing a solid linear feature).
   • The project proposes including three tubular, floating breakwaters to help with wave attenuation at the dock and boat launch (versus constructing additional breakwater from riprap).
3. Mitigation: The Applicant has a preliminary agreement with Trillium Mitigation Bank (POA-2013-00395) to purchase compensatory mitigation credits for the unavoidable fill of Waters of the U.S., including wetlands.

Table 1. Acres of Wetland and Upland Fill by Type (Cowardin Code)

Table 2. Fill Material and Fill Type Summary

Table 3. Fill Areas and Volumes by Project Element

After reviewing the application, the Department will evaluate whether the activity will comply with applicable water quality requirements (any limitation, standard, or other requirement under sections 301, 302, 306, and 307 of the CWA, any Federal and state laws or regulations implementing those sections, and any other water quality-related requirement of state law). The Department may certify (or certify with conditions) with reasonable assurance that the activity and any discharge that might result will comply with water quality requirements. The Department also may deny or waive certification.

The permit application and associated documents are available for review. To inquire about or request copies of the documents, contact dec-401cert@alaska.gov or call 907-269-6285.

Disability Reasonable Accommodation Notice

The State of Alaska, Department of Environmental Conservation, complies with Title II of the Americans with Disabilities Act (ADA) of 1990. If you are a person with a disability who may need special accommodation in order to participate in this public process, please contact ADA Coordinator Kristin Mabry, kristin.mabry@alaska.gov, 1-907-334-0884; or TDD Relay Service 1-800-770-8973/TTY or dial 711 at least 3 days prior to the expiration/closure date of this public notice to ensure that any necessary accommodations can be provided.

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