Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan and Environmental Assessment

              U.S. Fish & Wildlife Service
Seedskadee
Draft Comprehensive
Conservation Plan and
Environmental Assessment
National Wildlife Refuge
Seedskadee National Wildlife Refuge
DRAFT COMPREHENSIVE CONSERVATION PLAN
and
ENVIRONMENTAL ASSESSMENT
September 2001
Prepared by U.S. Fish and Wildlife Service
Seedskadee National Wildlife Refuge
P.O. Box 700
Green River, Wyoming 82935
and
Division of Refuge Planning
Region 6, Mountain-Prairie Region
P.O. Box 25486, DFC
Denver, Colorado 80225
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Table of Contents
Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
I. Introduction / Background
1.1 Refuge Overview: History of Refuge Establishment, Acquisition and Management
1.1.1 Seedskadee NWR Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
1.1.2 History of Seedskadee NWR Establishment, Acquisition, and Management . . . . . . . . . . . . . . . . . . 4
1.2 Purpose of and Need for Comprehensive Conservation Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
1.3 U.S. Fish and Wildlife Service Mission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
1.4 National Wildlife Refuge System Mission, Goals, and Guiding Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
1.5 Seedskadee National Wildlife Refuge Purpose(s) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
1.6 Seedskadee National Wildlife Refuge Vision Statement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
1.7 Legal and Policy Guidance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
1.8 Existing Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
1.9 Potential for Refuge Expansion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
II. Planning Process
2.1 Description of the Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
2.2 Planning Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
2.2.1 Wildlife and Habitat Management Issues
2.2.1.1 Threaten ed and E ndanger ed Wildlife an d Plants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
2.2.1.2 Riparian H abitats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
2.2.1.3 Wetlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
2.2.1.4 Upland H abitats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
2.2.1.5 Riverine H abitats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
2.2.1.6 Weeds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
2.2.1.7 Predators and Nuisance Species . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
2.2.1.8 Fire Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
2.2.2 Public Use and Recreation Issues
2.2.2.1 Access Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.2 Universal Access . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.3 Wildlife Viewing and Photography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.4 Hunting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.5 Recreational Trapping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.6 River Access . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2.2.2.7 Sport Fishing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.8 Commercial Guide Fishing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.9 Camping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.10 Boating . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.11 Visitor Use Level . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.12 Environmental Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
2.2.2.13 Environmental Interpretation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
2.2.2.14 Public Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
2.2.2.15 Cultural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
2.2.2.16 Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
2.2.3 Administrative Management Issues
2.2.3.1 Land Acquisition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
2.2.3.2 Miner als . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
2.2.3.3 Right-of-Way . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
2.2.3.4 Livestock Access . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
2.2.3.5 Grazing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
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III. Refuge and Resource Descriptions
3.1 Geographic / Ecosystem Setting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
3.1.1 Climate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
3.1.2 Geological Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
3.1.3 Soil Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
3.1.4 The S eedsk adee P roject a nd Mitig ation - E arly Pro posals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
3.1.5 Fontenelle Dam and Reservoir and River Hydrology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
3.1.6 Area Socio-Economics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
3.1.7 Population Grow th . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
3.1.8 Income . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
3.1.9 Economic Development Trends and Pressures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
3.1.10 Changes in Demand for Outdoor Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
3.2 Refuge Resources, Cultural Resources, and Public Uses
3.2.1 Water Rights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
3.2.2 Refuge River Jurisdiction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
3.2.3 Reserv ed Rights and Private ly Owne d Minera l Estate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
3.2.4 Refuge Vegeta tion and W ildlife Habitats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
3.2.4.1 Riverine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
3.2.4.2 Wetlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
3.2.4.3 Seedsk adee M anaged Wetland Units
3.2.4.3.1 Hamp We tland U nit . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
3.2.4.3.2 Hawley, Low er Haw ley, and D unkle W etland Un its . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
3.2.4.3.3 Pal W etland U nit . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
3.2.4.4 Riparian . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
3.2.4.5 Upland . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
3.2.4.6 Other Habitat Features . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
3.2.4.7 Threatened, Endangered, Candidate or W yoming Plant Species of Special Concern . . . . . . 57
3.2.5 Wildlife Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
3.2.5.1 Avian . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
3.2.5.1.1 Predator Management and Nest Success . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62
3.2.5.2 Mammals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63
3.2.5.3 Fish . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63
3.2.5.4 Reptiles and Amphibians . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64
3.2.5.5 Invertebrates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64
3.2.5.6 Threatened, Endangered, Candidate Species and Other W ildlife Species of Special Concern67
3.2.6 Cultural Resources Inventory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70
3.2.6.1 Prehist oric . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73
3.2.6.2 Histor ic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74
3.2.6.3 Lombard Ferry . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74
3.2.6.4 Paleontological Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
3.2.6.4.1 Bridger Formation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
3.2.6.4.2 Green River Formation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80
3.2.7 Public Use Facilities and Program Inventory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80
3.2.7.1 General Public Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83
3.2.8 Compatible Wildlife-Dependent Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84
3.2.8.1 Wildlife Observation and Photography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84
3.2.8.2 Hunting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84
3.2.8.3 Fishing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
3.2.8.4 Non-Motorized Boating . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
3.2.8.5 Commercial Guiding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
3.2.8.6 Environmental Education/Outreach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
3.2.8.7 Interpretation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
3.2.9 Non Wildlife-Dependent Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
3.2.9.1 Camping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
3.2.9.2 Swimming and Power Boating . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
3.2.9.3 Off-Road Vehicles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
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3.2.10 Administrative Support
3.2.10.1 Current Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
3.2.10.2 Current Staffing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
3.3 Special Management Areas
3.3.1 Special Legislated Designations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88
IV. Management Direction
4.1 Refuge Management Direction: Goals, Objectives, and Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
A Wildlife
A1 Goal - Threatened and Endangered Species . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91
A1.1 Bald Eagle Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91
A1.2 Mountain Plover Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92
A1.3 Whooping Crane Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92
A1.4 Ute ladies’-tresses Orchid Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92
A2 Goal - Wildlife . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
A2.1 Trumpeter Swan Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
A2.2 Moose and Mule Deer Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94
A2.3 Sage Grouse Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94
A2.4 Migratory Bird Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95
A2.5 Other Indigenous Wildlife Species Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95
B Habitat
B1 Goal - Riparian . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
B1.1 Restoration Plan Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
B1.2 Forest Protection Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97
B1.3 Riparian Regeneration/Planting Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 98
B2 Goal - Wetland . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99
B2.1 Hamp and Hawley Wetland Units Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100
B2.2 Sagebrush Pools and Dunkle Wetland Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
B2.3 Pal Wetland Unit Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102
B2.4 Oxbow Channel Wetlands Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102
B3 Goal - Uplands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103
B3.1 Sagebrush/Salt Desert Shrub Habitat Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103
B3.2 Upland Tallgrass/Great Basin Wild Rye Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 104
B4 Goal - Riverine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 105
B4.1 Riverine Habitat and Fish Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 105
B4.2 Riparian Corridor Restoration Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106
B5 Goal - Invasive Species . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107
B5.1 Control Exotic Plant Populations Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107
C Public Use, Recreation, and Resource Protection
C1 Goal - Wildlife-Dependent Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108
C1.1 Wildlife Observation and Photography Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108
C1.2 Hunting and Fishing Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109
C2 Goal - Environmental Education and Interpretation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
C2.1 Environmental Education and Interpretation Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
C3 Goal - Resource Protection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111
C3.1 Public Use Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111
C3.2 Designated Road Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111
C3.3 Refuge Information and Regulations Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112
C3.4 Livestock Management/Fencing Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112
C3.5 Land Acquisition/Development Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115
C3.6 Mineral and Oil Exploration Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115
C4 Goal - Cultural Resource . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116
C4.1 Cultural Resource Protection Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116
C5 G oal - Par tnership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
C5.1 Partnerships, Volunteers, and Leadership Objective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
iv
V. Implementation and Monitoring
5.1 Funding and Personnel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118
5.2 Comprehensive Conservation Plan Implementation and Step-down Management Plans . . . . . . . . . . . . . 121
5.3 Partnership Opportunities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 123
5.4 Monitoring and Evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125
5.5 Plan Amendment and Revision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126
Environmental Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . EA-127
Appendices
A. Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . A-1
B. Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . B-1
C. RONS and M MS Pr ojects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . C-1
D. Compatibility Determinations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . D-1
E. Legislation and Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . E-1
F. Species List of Seedskadee NWR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . F-1
G. Mailing List . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . G-1
H. Hydrographs of Green River . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . H-1
I. List of Preparers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1
J. Intra-Service Section 7 Consultation Documentation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . J-1
Figures
1. Historic Peak Flows - Upper Green River . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Maps
1. Vicinity Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
2. Ecosystem Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
3. Dominant Habitat Types . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43
4. Habitat M anagem ent Units . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
5. Water Management Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .51
6. Special Hunting and Fishing Zones . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65
7. Historical Site Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
8a. Public Use Map - Northern Component . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75
8b. Public Use Map - Southern Component . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 77
9. Refuge Roads - Alternative 1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81
10. Refuge Roads - Alternative 2 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113
11. Refuge Roads - Alternative 3 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . EA-153
Tables
1.1 Total Acreage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
3.1 Winte r Flow s in cfs A bove a nd Be low F ontene lle Res ervoir . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34
3.2 Summary of Water Rights Held by the Refuge . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
3.3 Vegetation Type and Acreage on Seedskadee NWR, July 1997 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
3.4 Plant species which may occur on Seedskadee National Wildlife Refuge which are Threatened,
Endangered, Candidate or of Special Concern in Wyoming . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
3.5 Re-introductions and nesting history of trumpeter swans on Seedskadee NWR . . . . . . . . . . . . . . . . . 59
3.6 Nest Success Compared With Trap Effort On Seedskadee NWR (1987-1998) . . . . . . . . . . . . . . . . . . . 62
3.7 Special Status Wildlife and Fish Species Potentially Occurring on Seedskadee NWR . . . . . . . . . . . . . 67
3.8 Bald Eagle Production on Seedskadee National Wildlife Refuge . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69
3.9 Summary of Surface Geologic Deposits and Paleontological Resources Seedskadee NWR Area . . . 79
3.10 Estimated Annual Visitors to Seedskadee NWR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83
3.11 Current Personnel (2000) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
5.1 Staffing Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118
5.2 RONS Project Summary for Seedskadee NWR (2000) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119
5.3 Reclam ation Coo perative M itigation Projec ts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 120
5.4 Management Plan Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121
5.5 Status of Step-down Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 1
Summary
Seed skade e Natio nal W ildlife Re fuge (NWR) is 26,38 2 acres in size an d locate d within the Gre en Riv er Bas in in
southwestern Wyoming (Map 1). The Refuge is a unique and ecologically important component of the National
Wildlife Refuge System (System) which includes more than 530 refuges totaling over 93 million acres across the
United States. Seedskadee NWR w as established in 1965 through the Colorado River Storage Project Act of
1956. Section 8 of this Act provided for the establishment of wildlife habitat development areas to offset the loss
of wildlife habitat resulting from reservoir development in the Colorado River Drainage. The Seedskadee
Recla mation Act of 1 958 sp ecifically a uthorize d acqu isition of lan ds for S eedsk adee NWR.
In 1997, Congress passed the National Wildlife Refuge System Improvement Act. This Act required development
of a Comprehensive Conservation Plan (CCP) for each refuge and that management of each refuge be consistent
with the CCP. In addition, the Act required that each refuge be managed to fulfill the mission of the National
Wildlife Refuge System as well as the specific purposes for which each refuge was established. Seedskadee
NWR’s purpose is defined by two pieces of Federal enabling legislation. The principal purpose of Seedskadee
NWR is to provide for the conservation, maintenance, and management of wildlife resources and its habitat
including the de velopme nt and imp rovem ent of such w ildlife resources . Additionally, the Refuge is charged to
protect the scenery, cultural resources, and other natural resources and provide for public use and enjoyment of
compatible wildlife-dependent activities.
The two pieces of enabling legislation are:
1. Fish an d Wildlife Coord ination A ct: “. . . shall be admin istered b y him (S ecreta ry of the Interior ) directly o r in
accordance with cooperative agreements . . . and in accordance with such rules and regulations for the
conservation, maintenance and management of wildlife, resources thereof, and its habitat thereon, . . . .”
16 U.S.C. 664
2. Colorado River Storage Act: “. . . Secretary is authorized and directed to investigate, plan, construct, operate,
and maintain . . . (1) public recreational facilities on lands withdrawn or acquired . . .” for the Colorado River
project in order to “. . . conserve the scene ry, the natural, historic, and archaeologic objects, and the wildlife
on said lands, and to provide for public use and enjoyment of the same and of the water areas created by
these projects . . . and (2) facilities to mitigate losses of and improve conditions for, the propagation of fish and
wildlife.” The Secretary may “. . . dispose of . . .” the facilities “. . . to federal . . . agencies . . . upon such terms
and conditions as will best promote their development and operation in the public interest.” 43 U.S.C 620g
Besides these two pieces of enabling legislation, the thirty-fifth legislature of the State of Wyoming passed
enrolled Act No. 54 in 1959 “providing consent of the State of Wyoming to the acquisition by the United States
where approved by the Wyoming Game and Fish Commission and the State Land Board, of lands for the
establishment of migratory bird refuges.” In the Act, the State of Wyoming has consented to the acquisition of up
to 20,00 0 acres of land in Wyo ming fo r the est ablishm ent and mainte nance of migr atory b ird refug es in
accordance with and for the purposes of the Migratory Bird Conservation Act and the Migratory Bird Hunting
Stamp Act. Thus, if ever any of these authorities, and associated funds, were invoked for the acquisition of new
lands for Seedskadee NWR, these lands would be managed for “use as an inviolate sanctuary, or for any other
management purpose, for migratory birds” (16 U.S.C. 715d) in accordance with the Migratory Bird Conservation
Act. To date, all lan ds acqu ired hav e been throug h Sectio n 8 of the 1956 C olorad o Rive r Stora ge Pro ject Ac t.
All efforts lead ing to the pre paration of th is draft Com prehensiv e Conse rvation Plan (CCP) w ere unde rtaken to
provide the Refuge with: 1) a vision for the future; 2) guidelines for wildlife and habitat management over the
next 15 years to ensure progress is made toward attaining the mission and goals of Seedskadee NWR and the
Refuge System; and 3) to comply with Congressional mandates stated in the National Wildlife Refuge System
Improvement Act of 1997. The CCP planning effort provided opportunities for interested people, Federal and
State agencies, State and local governments, and private organizations to give input on future management of the
Refuge. This CCP provides clear goals and objectives for management of Refuge habitats, wildlife, threatened
and endangered species, cultural and paleontological resources, other compatible public uses, and partnerships. It
also pro vides im pleme ntation s trategie s and recomm ended staffing a nd fund ing.
The S eedsk adee C CP w ill be used to prep are ste p-dow n man agem ent plan s and re vise exis ting plan s. It also w ill
be used to prepare budgets which describe specific actions to be taken by the Refuge over the next 15 years.
Given that new information, guidance, and technology frequently change and become available, the CCP and/or
step down management plans will be updated as necessary throughout the 15-year period. At a minimum the CCP
will be re viewe d and u pdated every 15 yea rs.
2 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
The draft CCP considers various alternatives for management of Seedskadee NWR. Each of the alternatives was
evaluated for environm ental consequences in accordance with the N ational Environm ental Policy Act (NE PA).
The draft CCP contains the goals, objectives, and strategies found by the Service to best aid the Refuge and the
National Wildlife Refuge System to attain their mission. For a summary of the alternatives considered during the
planning process, see the Seedskadee NWR Environmental Assessment following the CCP. The CCP is the
preferred alternative.
Vision Statement:
Seedskadee NWR w ill strive to preserve, restore, and enhance the ecological integrity of the Green River
riparian corridor and associated uplands as habitat for migratory birds and other indigenous wildlife for the
benefit of present and future generations. Seedskadee National Wildlife Refuge will manage for a variety of
native plants and wildlife, with emphasis on migratory birds and threatened and endangered species. Natural
habitats of the Green River will be preserved or restored. The Refuge will provide interpretation of the
natural and human history of the a rea and p rovide for w ildlife-depende nt recreation that is comp atible with
Refuge purposes. To meet this Vision, the Service will seek partnerships with other agencies, interest
groups, landowners, and local communities.
The management focus of the CCP is summarized by the following goals that are supported by a series of
objectives and implementation strategies. The goals are:
Wildlife:
■ To restore, enhance, or protect threatened and endangered flora and fauna that currently occur or have
historica lly occurr ed in the area o f Seed skadee NW R.
■ Preserv e, restore, an d enhanc e the ecolog ical diversity and abundan ce of migra tory and re sident wildlife w ith
emph asis on n ative sp ecies.
Habitat:
■ Protect and restore riparian habitats along the Green River to provide for the annual life needs of migratory
birds and native wildlife utilizing the Green River Basin.
■ Wetlands will be managed to meet the breeding and migratory requirements of wa terfowl, shorebirds,
wadin g birds, a nd othe r wetla nd dep enden t species .
■ Prese rve, res tore, an d enha nce the ecolog ical diver sity of indig enous flora ass ociated with the Great Basin
upland desert s hrub a nd gra ssland h abitats to suppo rt native wildlife fo und in th e Gree n Rive r Basin .
■ The Refuge staff, in collaboration with Wyoming Game and Fish Department and U.S. Bureau of Reclamation
(Reclamation), will manage water quality and quantity in the Green River to maintain and/or restore the
riparian and cottonwood forests and provide habitat for waterfowl, trumpeter swans, fish, and other native
species depen dent on river an d fores ted hab itat.
■ Restore and maintain indigenous flora diversity by controlling the invasion of exotic plant species on the
Refuge.
Public Use and Recreation:
■ Nurture an understanding of and appreciation for wildlife and other natural resources of the Green River
Basin by providing opportunities for compatible wildlife-dependent recreation while maintaining the
primitive , uncrow ded na ture of th e area .
■ Educate and inform the public about the Refuge, U.S. Fish and Wildlife Service, the National Wildlife Refuge
System, and the Upper Colorado Ecosystem by providing quality environmental education and interpretation
oppor tunities.
■ Protect Refuge resources from adverse natural and/or man-made im pacts.
■ Protect and interpret significant historic and prehistoric cultural sites and objects associated with Refuge
lands.
■ Foster partnerships to promote wildlife conservation and habitat management in the Green River Basin and
to help S eedsk adee NWR accom plish its visio n and g oals.
The achievement of these goals and associated objectives will fulfill the mission and purposes of the Refuge and
Refuge System.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 3
Potential Refuge Expansion
After the r elease of the first draft CC P and EA for Se edskadee NWR, Rec lamation a nnounce d to the Ser vice its
intention to dispose of most of the lands acquired under the “Seedskadee Project.” Remaining Seedskadee P roject
lands owned by Reclamation are to be transferred to another Federal agency for management. A portion of the
lands av ailable fro m Re clama tion surr ound th e Big S andy R iver and adjoin th e Ref uge.
In this draft CCP we identify interest in amending the Refuge boundary if additional tracts of land become
available which would contribute to the Refuge’s mission. Included for consideration are lands surrounding the
Big Sa ndy R iver, a sig nificant trib utary th at joins th e Gree n Rive r inside th e Ref uge bo undar y (see se ction B3 .1
#16, and the EA ).
Careful co nsideration w as given to inc luding an an alysis in this draft C CP of am ending the R efuge bou ndary to
include lands associated with the Big Sandy River. However, the decision was made to not include the Big Sandy
analysis in this CCP process for two primary re asons: 1) the CCP is too far along in the review pro cess; and 2) a
separate review process, independent of this CCP, would provide a more thorough analysis of any possible land
acquisition, including better public scoping and participation in the process. Currently, the Refuge is beginning an
internal review to evaluate the feasibility of amending the Refuge boundary to include lands along the Big Sandy
River . If a decis ion is ma de to pu rsue a la nd tran sfer, a fu ll public pro cess w ill ensue c omple te with p ublic
involvement consistent w ith the National Environm ental Policy Act (NE PA).
4 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
I.Introduction/Background
1.1 Refuge Overview: History of Establishment,
Acquisition and Management
1.1.1 Seedskadee NWR Overview
This Co mprehensive Conse rvation Plan (C CP) is b eing de velope d specific ally
for Seedskade e National W ildlife Refuge (Seedskadee NW R or Refug e).
Seedskadee NW R is located in southwestern Wyoming, 37 miles northwest
of the City of Green River. The Refuge is managed by the U.S. Fish and
Wildlife Service (Service) as a component of the National Wildlife Refuge
System (Refuge System). The entire Refuge is within Sweetwater County,
Wyoming a nd with in the G reen R iver Ba sin. Geo graph ically, the R efuge is
long and narrow, and bisected throughout its length by the Green River. The
north b ounda ry of the Refug e is seve n miles d owns tream from F ontene lle
Dam. From here, th e Ref uge ex tends 3 7 miles d owns tream and ran ges in
width from one to two miles. Total relief within the Refuge is 300 feet. The
highest elevation is 6,490 feet near the north end of the Refuge at McCullen
Bluff. The lowest elevation is 6,190 feet at the south end of the Refuge, below
Big Island. (See Map 1)
1.1.2 History of Seedskadee NWR Establishment, Acquisition, and
Management
Seedskadee NW R was authorized by the Colorado River Storage Pro ject
Act of 1956 (CRSP). The CRSP authorized and funded construction of
Bureau of Reclam ation Color ado Rive r storage fa cilities and related projects
including Fontenelle Dam and the Seedskadee Irrigation Project. Section 8
of the CRSP provides for the establishment of wildlife habitat development
areas to offset the loss o f wildlife h abitat re sulting fro m rese rvoir
construction in the Colorado River drainage. The Seedskadee Reclamation
Act of 1958 specifically authorized acquisition of lands for Seedskadee NWR.
Seedskadee NWR w as established on November 30, 1965, through a
Memorandum of Understanding between U.S. Bureau of Reclamation
(Reclamation) and the Service.
The U.S . Fish and W ildlife Service m ay acquire lands consiste nt with
legislation, other congressional guidelines or Executive Orders for the
conservation of fish and wildlife and their associated habitat and to provide
wildlife-dependent public use for education and recreation purposes. Service
policy is to acquire lands on ly whe n other mean s of achie ving pro gram goals
and objectives are not appropriate, available, or effective (USFWS, 341
FW1). In compliance with Section 8 of the Colorado River Storage Project
Act, Reclamation is responsible for funding land acquisitions within the
Refuge and funding Refuge developments to offset the loss of wildlife habitat
resulting from reservoir construction. Since 1958, the Service and
Reclamation have worked cooperatively to mitigate the habitat losses. Thus
far over 4.5 million dollars have been made available by Reclamation for land
acquisition and project development at Seedskadee NWR.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 5
6 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 7
The original Refuge acquisition boundary was designated in Public Land
Order 4834 (Federal Register, Vol. 35 - Wyoming 14982) on May 25, 1970,
and encompassed 22,112 acres for the mitigation of habitat lost due to the
construction of Fontenelle Dam and Reservoir. In the 1990s, the Refuge
boundary area increased with the purchase of additional acreage of
“uneconomic remnants” and in 1998 when additional acres were acquired
from Reclamation withdrawn lands to “roundout” boundary irregularities
and improve management opportunities. Today’s 1999 boundary includes
26,382.23 acres. All lands are fee title and located within Sweetwater County,
Wyoming. Two 2 .5-acre privately-owned parcels remain within the boundary
of the Refuge. Lands acquired for Seedskadee NWR were all acquired under
Section 8 of the 1956 Colorado River Storage Act. No lands have been
acquired for the Refuge under the authority of the Migratory Bird
Conservatio n Act o r Migr atory B ird Hun ting Stam p Act.
Table 1.1 Total Acreage
Tract
No
Acquired
Date
Tract Name Acres
1-5 11/06/61 Union Pacific Resources Company 3,483.70
1 5/20/70 USA 7,940.76
1 9/10/92 USA 440.77
10 1/28/74 Thoman et al 1,036.05
11 11/30/65 Hawley 916.48
12, a-k 11/26/96 Rock Springs Grazing Assn. 3,366.67
13, a 12/13/95 Crosson Ranche s (Pal Tract) 395.84
16 11/26/96 Taliaferro 294.28
17, a-h 4/23/93 UP Land Resources Corp. 3,552.15
2-5 7/30/62 State of Wyoming 719.29
5 6/13/81 Riverside Livestock 160.00
2,aec 8/25/93 State of Wyoming 1,959.24
1998 USA Round out (Recla mation to
USFWS)
2,117.00
3 9/30/89 Meandered Acres (881.54 acres
included in the U SA R oundout)
Total Acres 26,382.23
8 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
Initial mitigation strategies on the Refuge were intended to follow
preliminary mitigation concept. This included creation of ponds, other open
waters, and wetlands primarily for waterfowl use. However, it proved too
costly to install and operate pumps for pond filling, return flows from
irrigation use would not have been available, and construction of new
diversions, water systems, and dikes would have required extensive planning
and budget commitment. Instead, actual development in the 1960s focused on
use of pre-refuge diversions and irrigation ditches to develop wetlands. During
the next decade, minor dike improvements were made to increase wetland
size, but n o exten sive w etland d evelop ment o r managem ent occu rred.
Substantial wetland development did not occur until the 1980s with creation
of the Hamp, Hawley, Low er Hawley, and Dunkle wa ter management units.
Development of these areas included gravity flow diversions from the Green
River and a series of ditches and dikes to create impoundments, marshes,
and irrigated wet meadows. These units totaled about 1,700 acres. The
Refuge’s objectives as stated in a 1987 management plan were:
1. To develop and maintain wetland habitat (primarily as nesting and
brood-rearing habitat for C anada geese and other wate rfowl).
2. To preserve habitat c ondition s for the benefit of native wildlife species
thus ensuring wildlife diversity in the area, as well as providing
habitat for rare and endangered species which frequent the area.
3. To provide opportunities for interpretation and recreation to the
visiting public.
About 4,338 acres of riparian area parallel the Green River through the
Refuge; however, there has been little management of this resource to date.
Upland habitat management has historically centered on habitat protection
through fencing and prescribed burning. Fencing of the entire Refuge has
been completed. Acreages of existing habitat and locations are described and
mapp ed in the Vege tation an d Wildlife Habita t Section .
While the management emphasis at Seedskadee NWR was initially on
waterfowl habitat, in recent years there is a growing awareness that the
habitat of other migratory and native species dependent on the Green River
have been impacted by construction and operation of the Fontenelle Dam.
Artificial manipulation of the natural flows of the Green River have reduced
sedimentation in River flows and increased down-cutting (incision) of the
river channel. This has created negative effects on the health of the riparian
forest downstream from Fontenelle Dam. Because these effects were not
immediate nor fully anticipated, the extent and implications of the riparian
habitat changes were not identified as mitigation targets in initial
Seed skade e Proje ct plannin g. Eve n now these im pacts ar e not ea sily
quantifiable nor are their implications fully understood for wildlife that are
dependent on the riparian river corridor. There is a consensus that
Reclamation mitigation actions should continue post Seedskadee Project
construction to maintain, enhance, and/or restore riparian habitat
downstream of Fontenelle Dam (Auble and Scott, 1998; Bitterroot
Consultants, 1996; Be rk, 1998).
The Service’s management approach to Seedskadee NWR has a broader
focus today than anticipate d in the 1958 Fish and W ildlife Service R eport.
Managers today and into the foreseeable future are focused on maintaining
quality habitat for migratory and native species which use the Refuge. In
addition, when compatible with the Refuge’s wildlife and habitat
management goals, the Refuge also seeks to provide compatible wildlife-dependent
public use opportunities, interpretation and protection of cultural
reso urces , and in terpr etive a nd ed ucatio nal info rmation on the R efuge ’s
habitat, wildlife, and cultural resources.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 9
1.2 Purpose of and Need for Comprehensive Conservation
Plan
The Service has recognized the need for strategic planning for all the
components of the Refuge System. The System is currently comprised of
more than 530 refuges and 3,000 waterfowl production areas, totaling
approximately 93 ,604,644 acres (U.S . Fish and Wildlife Service 199 9).
Seedskadee NWR, located in southwestern Wyoming, is a unique and
ecologically important component of this System.
In September 1996, Executive Order 12996 was enacted which gave the
System guidance on issues of compatibility and public uses of its land.
Congress pa ssed the Nation al Wildlife Refug e Syste m Improve ment A ct in
October 1997. This “organic act,” for the first time in the System’s history,
established the core mission of the Refuge system. Refuge’s were to be
managed as a system of units dedicated to wildlife and wildlife habitat. As
part of th is, each R efuge w as to pre pare a CCP within 1 5 year s.
The CCP planning effort helped the Refuge system address the changing
needs of wildlife species and the public. CCP planning efforts provide the
opportunity to meet with Refuge neighbors, elected representatives, user
groups, and customers, and other agencies to ensure that CCP’s are relevant
and truly address natural resource issues and public interests. This CCP also
explains the planning process, a Refuge’s characteristics and purposes, and
the direction management will take during the next 15 years to attain the
stated purpose of the Refuge.
The purpose for developing this CCP for Seedskadee NWR is to provide the
Refuge and the public with a 15-year management plan for the conservation
of fish, wildlife, and plant resources and their related habitats found on the
Refuge; while providing opportunities for compatible wildlife-dependent
recrea tional use s. The C CP, w hen co mplete d, will guid e the R efuge in
meeting its management objectives and contribute to the mission of the
Refu ge syste m wh ile mee ting all lega l mand ates.
The Service’s goals for the Comprehensive Conservation Planning Process
are:
1. To provide a clear and comprehensive statement of desired future
conditions (vision) for each refuge or p lanning unit.
2. To provid e a forum for the public to comment on the ty pe, extent,
and compatibility of uses on refuges.
3. To ensure that the refuge is managed to fulfill the mission of the
System as well as the specific purposes for which it was established.
4. To ensure public involvement in refuge management decisions by
providing a process for effective coordination, interaction, and
coopera tion with affec ted parties, includ ing Fede ral agencies , State
conservation agencies, Tribal governments, local governments,
conservation organizations, adjacent landowners, and interested
members of the public.
5. To encourage that we conduct refuge planning in concert with an
ecosystem approach.
6. To dem onstra te supp ort for m anage ment d ecisions and the ir
rationale by sound professional judgment, biological initiative, and
public involvem ent.
7. To pro vide a u niform basis for budge t reque sts for op eration al,
maintenance, and capital improvement programs.
10 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
1.3 U.S. Fish and Wildlife Service Mission
The U.S. Fish and Wildlife Service manages the National Wildlife Refuge
System which is comprised of Federal lands that are acquired and managed
for the conservation of fish, wildlife, plants and their habitats. The S ervic e’s
origins date back to 1871, when Congress established the U.S. Fish
Commission to study the decrease of the nation’s food fishes and recommend
ways to r everse the decline. The F ish Com mission ev entually evo lved into
the “U.S. Fish and Wildlife Service” and was located within the Department
of the Interior in 1956. The Service’s scope of responsibilities broadened
throug hout the years to include m igratory birds, en dange red spe cies, certa in
marine mammals, freshwater and anadromous fish, law enforcement, and
national wildlife refuges.
Our mission is working with others to conserve, protect, and enhance
fish and wildlife and plan ts and their habitats for the contin uing benefit
of the A meric an peo ple.
The Service carries out these responsibilities through several functional
entities. The National Wildlife Refuge System is one of those entities.
1.4 National Wildlife Refuge System Mission, Goals, and
Guiding Principles
The National Wildlife Refuge System (System) is the world's largest
collection of lands set aside specifically for the protection of fish, wildlife and
plant populations and their habitats. The first unit of the System was created
in 1903, when President Theodore Roosevelt designated 3-acre Pelican
Island, a pelican and heron rookery in Florida, as a bird sanctuary.
In 1966, Congress passed the National Wildlife Refuge System
Administration Act that assembled the refuges into a unified “System” and
codified their administration. This System has grown from 300 refuges
totaling 28 million acres in 1966 to today’s 530+ refuges in all 50 States and a
number of U.S. Territories, and Waterfowl Production Areas in 10 States,
totaling over 93 million acres.
However, the Refuge Administration Act did not establish a mission for the
System or conta in any p lanning require ments .
On March 25, 1996, President Clinton signed Executive Order 12996, on
management and public use of the System. The Executive Order served as
the foundation for the permanent statutory changes made by the National
Wildlife Refuge Improvement Act of 1997. The Executive Order modified
the management direction of Refuges by including provisions for
opportunities for six wildlife-dependent recreational uses. The Executive
Order recognized “compatible wildlife-dependent recreational uses involving
hunting, fishing, wildlife observation and photography, and environmental
educa tion and interpre tation as priority p ublic use s of the S ystem .” These six
wildlife-dependent recreational uses are recognized as priority public uses of
System lands. These, and other uses, are allowed on refuges only after
finding that they are compatible with the purpose of the refuge and the
Refuge System. Uses are allowed through a special regulation process,
individual special use permits, or sometimes through State fishing and
hunting regulations.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 11
The mission of the National
Wildlife Refuge S ystem is to
administer a national network
of lands and waters for the
conservation, management
and, where appropriate,
restoration of the fish, wildlife,
and plant resou rces and their
habitats within the United
States for the benefit of present
and future generations of
Americans. (National Wildlife
Refuge System Improvement
Act of 1997, Public Law 105-
Enactment of the National Wildlife Refuge System Improvement Act of
1997 provided the System with a true “organic” act, furnishing a mission for
the System, policy direction, and management standards for all Refuge
System units.
However, the System’s importance goes far beyond these services. It
contributes directly and indirectly to human welfare through a number of
ecosystem services and functions. Chapter 4 contains a detailed discussion of
ecosystem services. For the entire biosphere, the estimated annual
economic value of all the world’s ecosystem services and functions is about
$33 trillion (Cons tanza, et al. 1997).
The following broad goals, aimed at fulfilling the System’s mission, describe
the level of responsibility and concern for wildlife resources as a result of
the National Wildlife Refuge System Improvement Act of 1997:
a. To fulfill our statutory duty to achieve refuge purpose(s) and
further the System mission;
b. Conserve, restore where appropriate, and enhance all species of fish,
wildlife, and plants that are end angered or threaten ed with
becoming endangered;
c. Perpetuate migratory bird, interjurisdictional fish, and marine
mammal populations;
d. Conserve a diversity of fish, wildlife, and plants;
e. Conserve and restore, where appropriate, representative ecosystems
of the United States, including the ecological processes characteristic
of those ecosystems;
f. To foster understanding and instill appreciation of fish, wildlife,
and plants, and their con servation, by providin g the public with
safe, high-quality, and compatible wildlife-dependent public use.
Such use includes hunting, fishing, wildlife observation and
photog raphy , and en vironmental educ ation a nd inte rpretati on.
In addition, individ ual national w ildlife refuges are acquired un der a varie ty
of legislative acts and administrative orders and authorities. These orders
and authorities usually have one or more purposes for which land can be
transferred or acquired. These System units provide important habitat for
many native mammals, birds, reptiles, amphibians, fish, invertebrates, and
plants. The System also plays a vital role in preserving endangered and
threate ned sp ecies an d offers a wide variety of wildlife -depen dent pu blic
uses. Annually, national wildlife refuges receive 34 million visitors.
Individual refuges provide specific requirements for the preservation of
trust resources such as migratory birds. For example, waterfowl breeding
refuges in South and North Dakota provide important wetland and grassland
habitat to support breeding populations of waterfowl as required by the
Migratory Bird Treaty Act and the North American Waterfowl Management
Plan. Seedskadee NWR also supports breeding populations as well as
providin g migra tion hab itat during spring a nd fall pe riods. O ther ref uges in
Louisiana and Texas provide wintering habitat for these populations. The
network of lands is critical to these birds survival. A deficiency in one
location can affe ct the spe cies and the entir e netw orks ab ility to ma intain
adequate populations.
Other refuges may provide habitat for threatened and endangered plants or
animals. Refuges in these situations ensure that populations are protected
and habitat is suitable for their use. Refuges, by providing a broad network
of lands throughout the United States, help prevent species from being listed
as threatened or endangered by providing secure habitat for their use and
providing recovery habitats in portions or all of a species range.
12 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
1.5 Seedskadee National Wildlife Refuge Purpose(s)
Each refuge in the Refuge system is managed to fulfill the mission of the
Refuge System as well as the specific purposes for which the refuge was
established. Seedskadee NWR’s purpose is defined by two pieces of enabling
Federal legislation. The principal purpose of Seedskadee NWR is to provide
for the conservation, maintenance, and management of wildlife resources and
habitat including the developm ent and improve ment of such w ildlife
resources. Additionally, the Refuge is charged to protect the scenery,
cultural resources, and other natural resources and provide for public use
and enjoyment of compatible wildlife-dependent activities.
The two pieces of enabling legislation are:
1. Fish an d Wildlife Coord ination A ct: “. . . shall be admin istered b y him
(Secretary of the Interior) directly or in accordance with cooperative
agreements . . . and in accordance with such rules and regulations for the
conservation, maintenance and management of wildlife, resources
thereof, and its habitat thereon, . . . .” 16 U.S.C. 664
2. Colorad o River S torage A ct: “. . . Secretary is au thorized an d directed to
investiga te, plan, co nstruct, o perate , and m aintain . . . (1) public
recreational facilities on lands withdrawn or acquired . . .” for the
Colorado River project in order to “. . . conserve the scenery, the
natura l, historic, and archaeologic objects, and the wildlife on said lands,
and to provide for public use and enjoyment of the same and of the water
areas created by these projects . . . and (2) facilities to mitigate losses of
and improve conditions for, the propagation of fish and wildlife.” The
Secretary may “. . . dispose of . . .” the facilities “. . . to Federal . . . agencies
. . . upon su ch term s and co nditions a s will bes t prom ote their
development and operation in the public interest.” 43 U.S.C 620g
Besides these two pieces of enabling legislation, the thirty-fifth legislature of
the State of Wyoming passed enrolled Act No. 54 in 1959 “providing consent
of the State of Wyoming to the acquisition by the United States where
approved by the Wyoming Game and Fish Commission and the State Land
Board, of lands for the establishment of migratory bird refuges.” In it, the
State of Wyoming is consenting to the acquisition of up to 20,000 acres of
land in Wyoming for the establishment and maintenance of migratory bird
refuges in accordance with and for the purposes of the Migratory Bird
Conservation Act and the Migratory Bird Hunting Stamp Act. Thus, if ever
any of these authorities, and associated funds, were invoked for the acquisition
of new lands for Seedskadee NW R, these lands would be managed for “use
as an inviolate sanctuary, or for any other management purpose, for
migratory birds” (16 U.S.C. 715d) in accordance with the Migratory Bird
Conservation Act. To date, all lands acquired have been through Section 8 of
the 195 6 Colo rado R iver Pro ject Sto rage A ct.
1.6 Seedskadee National Wildlife Refuge Vision Statement
Seedskadee NWR w ill strive to preserve, restore, and enhance the ecological
integrity of the Green River riparian corridor and associated uplands as
habitat for migratory birds and other indigenous wildlife for the benefit of
presen t and futu re gen eration s of Am ericans .
Seedskadee National Wildlife Re fuge will ma nage for a variety of native plan ts
and wildlife, w ith emp hasis on migratory birds and threatened and endangered
species. Natural ha bitats of the Green River will be preserved or restored. The
Refuge will provide interpretation of the natural and human history of the area
and provide for wild life-depe ndent r ecrea tion that is compatible with Refuge
purposes. To meet this vision, the Service will seek partnerships with other
agencies, interest groups, landowners, and local communities.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 13
1.7 Legal and Policy Guidance
National wildlife refuges are guided by the mission and goals of the National
Wildlife Refuge System (System), the designated purpose(s) of the Refuge
unit as described in the establishing legislation and/or executive orders,
Service laws and policy, and international treaties (for a complete list see
Appendix E ).
Key concepts included in laws, regulations, and policies that guide
management of the System include primary versus m ultiple-use public lands,
compatibility, and priority wildlife-dependent recreational activities.
Examples of relevant guidance include the National Wildlife Refuge System
Administration Act of 1966, as amended by the National Wildlife Refuge
System Improvement Act of 1997, the Refuge Recreation Act of 1962 (50
CFR), Executive Order 12996 (Management and General Public Use of the
National Wildlife Refuge System), and selected portions of the Code of
Fede ral Re gulation s and F ish and W ildlife Ser vice M anual.
The National Wildlife Refuge System Administration Act of 1966, as
amended, provided guidelines and directives for administration and
management of all areas in the System, including wildlife refuges, areas for
the protectio n and con servation o f fish and wildlife th reatened with
extinction, wildlife ranges, game ranges, wildlife management areas, and
waterfowl production areas. Use of any area within the System was
permitted, provided that such uses were compatible with the major purposes
for wh ich such areas w ere est ablished .
The National Wildlife Refuge System Improvement Act of 1997 amends the
Refuge System Administration Act by including a unifying mission for the
System, a new formal process for determining compatible uses on refuges,
and a requirement that each refuge will be managed under a Comprehensive
Conservation Plan (CCP or Plan). This Act states that wildlife conservation
is the priority of the System lands and that the Secretary of the Interior
(Secretary) shall ensure that the biological integrity, diversity, and
environmental health of refuge lands are maintained. Each refuge must be
managed to fulfill the mission of the System and the specific purposes for
which it was established. Additionally, this Act identifies and establishes the
legitimacy and appropriateness of the six wildlife-dependent recreational
uses. These are hunting, fishing, wildlife observation and photography, and
environmental education and interpretation. As priority public uses of the
System , these u ses will re ceive e nhanc ed con sideratio n over other u ses in
plannin g and m anage ment. F urtherm ore, this A ct requir es that a CCP be in
place for each refuge by the year 2012 and that the public have an
oppor tunity for active inv olvem ent in pla n deve lopme nt and r evision. I t is
Service policy that CCPs are developed in an open public process and that
the agency is committed to securing public input throughout the process.
This Act amended portions of the Refuge Recreation Act and National
Wildlife Refug e Syste m Ad ministra tion Ac t of 196 6.
14 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
Lands within the System are different from other, multiple-use public lands
in that the y are clo sed to a ll public use s unless specifica lly and leg ally
opened. Unlike other Federal lands that are managed under a multiple-use
mandate (i.e., national forests administered by the U.S. Forest Service and
public lands administered by the U.S. Bureau of Land Management), the
Refu ge Sys tem is m anage d specific ally for th e bene fit of fish, wildlife, and
plant resources and their habitats. Compatible wildlife-dependent recreation
is a legitim ate and appro priate g enera l public use of the S ystem .
Compatible wildlife-dependent recreational uses involving hunting, fishing,
wildlife observation and photography, and environmental education and
interpretation are priority public uses of the System. These uses must
receive enhanced consideration over other public uses in refuge planning and
mana geme nt.
Before any uses, including wildlife-dependent recreational activities, are
allowed on national wildlife refuges, Federal law requires that they be
formally determined to be “compatible.”
A compatible use is defined as a use that, in the sound professional
judgement of the refuge manager, will not materially interfere with or
detract from the fulfillment of the mission of the System or the purposes of
the Refuge. Sound professional judgement is further defined as a finding,
determination, or decision that is consistent with the principles of sound fish
and wildlife management and administration, available science, and
resources (funding, personnel, facilities, and other infrastructure), and
adheren ce with ap plicable laws . If financial resou rces are no t available to
design, operate, and maintain an activity, the refuge manager will take
reasonable steps to obtain outside assistance from the State and other
conservation interests. No refuge use may be allowed unless it is determined
to be co mpatib le.
The Service has completed compatibility determinations for Seedskadee
NWR (see Appe ndix D ).
The Re fuge Re creation A ct, as amen ded, autho rized the Se cretary to
administer refuges, hatcheries, and other conservation areas for recreational
use w hen su ch uses did not int erfere with the area’s p rimary purpo se.
Executive Order 12996 (March 23, 1996) identified a new mission statement
for the System; established six pr iority public uses (hunting, fishing, wildlife
observation and ph otography, environm ental education and interpreta tion);
emphasized conservation and enhancement of the quality and diversity of
fish and w ildlife habitat; stressed the importa nce of partn erships w ith
Federal and State agencies, Tribes, organizations, industry, and the general
public; mandated public involvement in decisions on the acquisition and
management of refuges; and required identification, prior to acquisition of
new r efuge la nds, of e xisting co mpatib le wildlife -depen dent us es that w ould
be permitted to continue on an interim basis pending completion of
comprehen sive plan ning.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 15
1.8 Existing Partnerships
Legal, administrative, policy, and planning guidelines provide the framework
within which management activities are proposed, developed, and
implemented. This framework also provides the basis for a continued and
improved partnership between the Service, Reclamation, and other natural
resource agencies.
In compliance with Section 8 of the Colorado River Storage Project Act of
1956, Reclamation is responsible for funding land acquisitions within the
Refuge and funding Refuge developments to offset the loss of wildlife habitat
resulting from reservoir construction. Since 1958, the Service and
Reclamation have worked cooperatively to mitigate the habitat losses. The
Service and Reclamation will continue to cooperate in close partnership for
the benefit of the natural resources involved. The CCP is a means of assuring
those b enefits a re achie ved.
See Chapter 3 for further information on Bureau of Reclamation/Fish and
Wildlife Service partnership history on the Seedskadee Project and
development of Seedskadee NWR.
The R efuge a lso wo rks with a variet y of othe r organ izations a nd individ uals
on natural resource projects including:
■ local law en forceme nt agencies (general en forceme nt)
■ Wyoming Game and Fish (wildlife and fish surveys, habitat
managem ent, enforcement, pub lic outreach, public use)
■ Sweetwa ter Co unty w eed an d pest (in vasive species control)
■ Trout Unlimited (stream and river restoration, Take A Kid Fishing
Day)
■ Rural fire protection districts (wildfire suppression)
■ Private landowners (partners for wildlife program)
■ Universities (research on wildlife, vegetation, public use)
■ Wyoming Partners in Flight (bird monitoring)
■ Trumpeter Sw an Society (swan m anagem ent)
■ Local school districts (environmental education)
■ Scout organizations (community and refuge projects)
■ Sweetwater County Chamber of Commerce (eco-tourism, special
events)
■ Big Sandy Working Group (river and riparian restoration)
■ Bureau of Land Management (grazing, historical interpretation and
restoration, public use)
■ Intermountain Joint Venture (coalition partners)
■ Rock Springs Grazing Association (livestock grazing management
via a contra ctual agree ment)
■ Green River Green Belt Committee (wetland restoration)
■ Highland Desert Flies (Take a Kid Fishing Day)
■ Volunteers (local community folks, Good Sams Club, Student
interns)
■ USGS (riparian research)
16 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
1.9 Potential for Refuge Expansion
After the release of the first draft CCP and EA for Seedskadee NWR, the
U.S. Bur eau of R eclamatio n (Reclam ation) anno unced to the Service its
intention to dispose of most of the lands acquired under the “Seedskadee
Project” - which, among other things, resulted in the creation of the Refuge
in 1965. R emaining Seedska dee Proje ct lands ow ned by R eclamatio n are to
be transferred to another Federal agency for management. A portion of the
lands av ailable fro m Re clama tion surr ound th e Big S andy R iver and adjoin
the Re fuge.
In this dr aft CC P, we id entify inte rest in am ending the Re fuge bo undar y if
additional tracts of land become available which would contribute to the
Refu ge’s mis sion. Inc luded fo r consid eration are land s surro unding the Big
Sandy River, a significant tributary that joins the Green River inside the
Refuge bou ndary (see section B3 .1 #16, and the EA ). As stated in this draft
document: “Other lands would be considered for acquisition on a willing
seller basis if information indicated that additional acres were necessary for
management of selected species or for mitigation purposes. Such areas may
include . . . lands surrounding the Big Sandy River. Any additional land
acquisition . . . would go through a public involvement process and be on a
willing se ller basis o nly.”
Careful consideration was given to including an analysis in this draft CCP of
amen ding the Refug e boun dary to include la nds ass ociated with the Big
Sandy River. However, the decision was made to not include the Big Sandy
analysis in this CCP process for two primary reasons: 1) the CCP is too far
along in the review process; and 2) a separate review process, independent of
this CCP, would provide a more thorough analysis of any possible land
acquisitio n, includin g better public sco ping an d particip ation in th e proce ss.
Currently, the Refuge is beginning an internal review to evaluate the
feasibility o f amen ding the Refug e boun dary to include la nds alon g the B ig
Sandy River. The land surrounding the Big Sandy River, which is proposed
for disposal by Reclamation, is considered a “study area.” Prior to any formal
action, the Refuge will complete an internal analysis of these lands and make
a recommendation to the Regional Director to pursue, or not to pursue, the
transfer of these lands to the Refuge. If a decision is made to pursue a land
transfer, a full public process will ensue complete with public involvement
consistent with the Nationa l Environmen tal Policy Act (NEP A).
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 17
II. Planning Process
2.1 Description of the Planning Process
The development of this CCP was guided, in the beginning, by the Refuge
Planning Chapter of the Fish and Wildlife Service Manual (Part 602 FW2.1,
November 1996) and later also by the Service’s Final Comprehensive
Conservatio n Plann ing Policy . Key s teps inclu de:
1. Plannin g;
2. Identify ing issue s and de velopin g a vision ;
3. Gathe ring infor mation ;
4. Analy zing res ource r elations hips;
5. Deve loping a lternativ es and assess ing their e nvironm ental eff ects;
6. Developing managem ent goals, objectives, and strategies;
7. Identify ing a pre ferred alterna tive;
8. Publishing the Draft Plan and soliciting public comments on the
Draft P lan;
9. Review of comm ents and e ffecting nece ssary and appropria te
chang es to the Draft C CP; an d,
10. Preparation of the final CCP for approval by the Region 6 Regional
Director, and finally
11. Imple menta tion of the CCP.
During the course of this CCP planning effort, several formal and informal
meetings were held to determine the issues relative to Seedskadee NWR.
Meetings w ith Fed eral ag encies, S tate age ncies, and mem bers of the pub lic
assisted the Service and Reclamation in identifying most of the natural
resour ce and public us e issues .
Issues, concerns, and opportunities were developed early through a scoping
process which began on May 31, 1996 and closed October 15, 1996.
On May 31, 1996, invitations and announcements of two open houses, an
explanation of Seedskadee NWR directive and purpose, and a request for
comments were mailed out to known interested parties. On June 6, 1996,
press relea ses annou ncing the op en house s were m ailed to the ap propriate
media outlets such as KMER Radio, KRKK Radio, KUGR Radio, KSIT
Radio, KUWR R adio, Sweetwater County TV, the Green River Star, the
Casper Star Tribun e, Roc ket M iner, Kemmerer Ga zette, an d the Pin edale
Roundup newspa pers.
On June 8, 1996, an open house scoping meeting was held at the Seedskadee
NWR headquarters; questionnaires and comment sheets were handed out
and ve rbal com ments were taken. T he ope n hous e was held con curren tly
with the Refuge’s “Take a Kid Fishing” day. Thirty-three people attended.
On June 10, 1996, the second open house scoping meeting was held from noon
to 8:00 p.m. at the Sweetwater County Library in Green River, Wyoming.
Eight p eople a ttended .
On June 25, 1996, the questionna ire and com ment she et were mailed ou t to
the CCP mailing list. A complete list of all those who were sent information
on the Plan can be found in the project file. On July 1, 1996, signs were
posted for the Farson Open House. The open house was held on July 17, 1996
from 7 :00 p.m . to 9:00 p .m. at the Farso n Com munity Hall. Fo ur peo ple
attende d.
18 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
On July 17, 1996, the Refuge Manager met with the Sweetwater County
Commissioners at the Courthouse. On September 3 and 4, 1996, the Green
River Refuges staff met to develop draft mission/goals/objectives for Green
River Refuges. On September 16, 1996, a press release announcing the final
two op en hou ses wa s mailed to the ap propria te med ia outlets .
On Sep tember 25, 1996, an open hou se in Rock Springs at the White
Mountain Library was held from 5:00 p.m. to 7:00 p.m.; six people attended.
On Octo ber 1, 1996 , a meeting was held with the L incoln Cou nty
Commissioners followed by an open house from 5:00 p.m. to 7:00 p.m. at the
Lincoln County Courthouse. One person (county planner), in addition to the
three commissioners, attended. On November 11, 1996, Seedskadee NWR
staff completed a set of “draft management goals and objectives;” these have
been submitted to the Service’s regional office for review and concurrence.
“Focus Group” meetings at Sweetwater County Library in Green River
were held on January 9, 1997, from 7:00 p.m. to 9:00 p.m. to discuss
commercial recreation use and public access. Twenty-one people attended
including five permitted fishing guides, recreational fishermen, parties
interested in public access, and other agency representatives.
On April 29, 1997, a workshop was conducted at the Seedskadee National
Wildlife Re fuge head quarters to identify poten tial alternative compone nts
for consideration in preparation of a Comprehensive Conservation Plan for
the Refuge. On April 30, 1997, a follow-up meeting was held with Service and
Consulting Te am pe rsonne l.
Invitations to participate in the workshop were sent to selected resource
specialists with Federal and State agencies involved or interested in resource
management within or adjacent to the Refuge. The list included personnel
from Fish and Wildlife Service, the Bureau of Reclamation, the U.S.
Geological Survey, the Bureau of Land M anagem ent, and the Wyoming Game
and Fish Department. Those who accepted the invitation to participate were
provide d a note book p rior to the meetin g conta ining the meetin g’s purp ose, a
meeting agenda, background on the planning process including the Fish and
Wildlife Service’s planning context, and issues identified during scoping.
The purpose of the meeting was to understand identified planning and
NEPA issues, discuss draft CCP goals developed by the Refuge, and explore
various alternative components that could achieve the goals and address
identified issues.
Based o n discussions in the work shop and subseque nt discussion w ith
Seedskadee NW R staff, the issues considered significant for the EA were
identified by Refuge staff for analysis. Based on the issues, the Seedskadee
NWR staff developed alternatives to address the issues and the goals. The
issues, a s they w ere ide ntified du ring the s coping p rocess , are des cribed in
Chapter 2.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 19
Planning P articipants
All individuals that provided comments, oral or
written, are listed below. Column 2 identifies the
forum in which the commentors participated or
submitted comments. The forum in which the
comm entors participa ted are identified in colum n 2 in
the following manner:
1. Project Initiation Meeting (SNWR1)
2. Planning Group Meeting (SNWR2)
3. Alternatives Development Workshop (ALT)
4. Commercial Use/Access Meeting (CU)
5. Comment Form (C)
Name Comm ent
Reference1
# Rob Keith, Green River, WY . . . . . . . . . . . . . . . . . . . CU
# Bennie C. Johnson, Green River, WY . . . . . . . . . CU, C
# Dennis Watts, Green River, WY . . . . . . . . . . . . . . . . CU
# Les Skinner, Green River, WY . . . . . . . . . . . . . . . . . CU
# Van Beacham, Kemmerer, WY . . . . . . . . . . . . . . . CU, C
# Ken Reed, Rock Springs, WY . . . . . . . . . . . . . . . . . . CU
# Patrick Nichols, Rock Springs, WY . . . . . . . . . . . . . CU
# George Stonebreaker . . . . . . . . . . . . . . . . . . . . . . . . . CU
# Katie Legerski, Rock Springs, WY . . . . . . . . . . . . . . CU
# Patti Smith, Rock Springs, WY . . . . . . . . . . . . . . . . . CU
# Duane Kerr, Green River, WY . . . . . . . . . . . . . . . . . CU
# Scott Talbott, Green River, WY . . . . . . . . . . . . . . . . CU
# Jim Pasboy, Superior, WY . . . . . . . . . . . . . . . . . . . . . CU
# Jim Williams, Manilla, UT . . . . . . . . . . . . . . . . . . . . . CU
# Terry Dockter, Green River, WY . . . . . . . . . . . . . . . CU
# Carl Williams, Green River, WY . . . . . . . . . . . . . . . . CU
# Beverly Williams, Green River, WY . . . . . . . . . . . . CU
# Ron Remmick, Regional Fishery Supervisor, Game
and Fish Department Green River, WY . . . . CU, ALT
# Tom Brannan, Rock Springs, WY . . . . . . . . . . . . . . . CU
# Glen Sadler, Green River, WY . . . . . . . . . . . . . . . . . CU
# Patricia Sadler, Green River, WY . . . . . . . . . . . . . . . CU
# Bill Birmingham, Green River, WY . . . . . . . . . . . . . CU
# Bureau of Land Management, Rock Springs, WY . . . C
# Thoman Ranch, Kemmerer, WY . . . . . . . . . . . . . . . . . . C
# M.K. Tucker, Rock Springs, WY . . . . . . . . . . . . . . . . . . C
# Bruce Woodward, Rock Springs, WY . . . . . . . . . . . . . . C
# John Roberts, Kemmerer, WY . . . . . . . . . . . . . . . . . . . C
# Lucy Diggins, Green River, WY . . . . . . . . . . . . . C, ALT
# Tim Habenbenger, Wyoming Outfitters &
Guides Assoc., Alpine, WY . . . . . . . . . . . . . . . . . . . C
# Mitch Nielson, Green River W . . . . . . . . . . . . . . . . . . . C
# Dave Vesterby, BLM, Pinedale WY . . . . . . . . . . C, ALT
# Howard Hart, Green River, WY . . . . . . . . . . . . . . . . . . C
# Matt and Liz David, Pinedale, WY . . . . . . . . . . . . . . . C
# Darrell Welch, Reclamation, Denver, CO . . . . . . . . . . .
. . . . . . . . . . . . . . . . . . . . SNWR1, ALT, C, SNWR2
# William Long, Jackson, WY . . . . . . . . . . . . . . . . . . . . . . C
# Gary Harvey, Evanston, WY . . . . . . . . . . . . . . . . . . . . . C
# Ken Reed, City of Rock Springs, Family Recreation
Center Rock Springs, WY . . . . . . . . . . . . . . . . . . . . . . . C
# Barry Floyd, Casper, WY . . . . . . . . . . . . . . . . . . . . . . . C
# Marci Fagnant, Kemmerer, WY . . . . . . . . . . . . . . . . . . C
# Barney Shrank, Lakewood CO . . . . . . . . . . . . . . . . . . . C
# illegible . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . C
# Carl T. Williams, Green River WY . . . . . . . . . . . . . . . . C
# Greg Auble, USGS Biological Resources Division,
Midcontinent Ecological Science Ctr . . . . . . . . . . . ALT
# Ty Berry, Refuge Supervisor, MT/WY, USFWS . ALT
# Renee Dana, BLM, Rock Springs District . . . . . . . . ALT
# Jaymee Fojtik, USFWS . . . . . . . . . . . . . . . . . . . . . . . ALT
# Mark Hatchel, BLM, Kemmerer Resource Area . . ALT
# Sally Haverly, BLM, Green River Resource Area . ALT
# John Henderson, BLM, Rock Springs District . . . . ALT
# Patricia Hamilton, BLM, Green River Res. Area . . ALT
# Robb Keith, Wyoming Game and Fish Dept . . . . . . ALT
# Duane Kerr, Wyoming Game and Fish Dept . . . . . . ALT
# Rhoda Lewis, Regional Archaeologist, USFWS . . . ALT
# Mike Misehledey, BLM . . . . . . . . . . . . . . . . . . . . . . . . ALT
# Mike L. Scott, Midcontinent Ecological
Science Ctr, USGS . . . . . . . . . . . . . . . . . . . . . . . . ALT
# Al Simpson, Provo Area Office, Reclamation . . . . . ALT
# Dave Skates, Project Leader, USFWS . . . . . . . . . . ALT
# Kevin Spence, Wyoming Game and Fish Dept . . . . ALT
# Andy Tenney, ORP, BLM,Rock Springs District . ALT
# Anne Marie LaRosa, Seedskadee NWR
Former Manager . . . . . . . SNWR1, ALT, SNWR2
# Tom Koerner, Seedskadee NWR
Former Deputy Manager . SNWR1, ALT, SNWR2
# Adam Halverson, Seedskadee NWR
. . . . . . . . . . . . . . . . . . . . . . . SNWR1, ALT, SNWR2
# Suzanne Beauchaine, Seedskadee NWR
. . . . . . . . . . . . . . . . . . . . . . . SNWR1, ALT, SNWR2
# Carol Taylor, USFWS . . . . . . . . SNWR1, ALT, SNWR2
# Shannon Heath, USFWS . . . . . SNWR1, ALT, SNWR2
# Dennis Earhart, Bear West . . . SNWR1, ALT, SNWR2
# Emilie Charles, Bear West . . . . SNWR1, ALT, SNWR2
# Jan Striefel, Landmark Design . . . . . . . . . . . . . . SNWR1
1 Project Initiation meeting 2/19-20/97(SNWR1)
Planning Group Meeting, 9/18-19/97 (SNWR2)
Alternatives Development Workshop 4/29/97 (ALT)
SNWR1 Commercial Use/Access Meeting 1/9/97 (CU)
Comment Form (C)
20 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
The following list of planning and environmental assessment issues was
derived from the comments generated during the public process, from
interest ed jurisd ictions, an d from the See dskadee NW R staff .
2.2 Planning Issues
Issues, conc erns, and o pportunities w ere identified th rough discu ssions with
planning team members and key contacts and through the public scoping
proces s. Com ments were receive d orally a t the me etings, via e-mail, a nd in
writing, both before and during the scoping process. The following issues,
concerns, and comments are a compilation and summary of those expressed
by the pub lic, other Fede ral and Sta te agencies , local and coun ty
governments, private organizations and individuals, and environmental
group s.
2.2.1 Wildlife and Habitat Management Issues
2.2.1.1 Threatened and Endangered Wildlife and Plants
What measures are taken to protect threatened, endangered, and
candidate species and species of management concern?
There are concerns regarding conflicts between human use, wildlife use,
and sensitive vegetation at the Refuge. Minimizing disturbance of
wildlife, especially during nesting, wintering, or other sensitive seasons,
is an issue.
2.2.1.2 Riparian Habitats
How will riparian habitat losses be mitigated to support migratory birds
and native wildlife species?
The hydrology and morphology of the Green River through Seedskadee
NWR hav e been altered by the co nstructio n and o peratio n of Fo ntenelle
Dam. Changes in channel morphology, such as downcutting, have
occurred and overbank flooding is rare to nonexistent. Water
tempe rature s have decrea sed an d river flo ws ha ve bee n significa ntly
altered from their historical levels and patterns. Cottonwood gallery
forests are not regenerating under the current water management
regime. R iparian fores t comm unities are losing their structura l diversity
and becoming single storied. Existing stands of cottonwoods and willows
show evidence of severe drought stress and are heavily browsed by
native ungulates and some trespass livestock. Existing stands of trees
are also susceptible to wildlife, particularly in drought years. A major
loss of these forests could occur on the Refuge in 20 to 50 years if nothing
is done. Cottonwood forests provide very important habitat for
migra tory bird s.
2.2.1.3 Wetlands
How will wetland losses be mitigated to support migratory birds and
native wildlife species? How will wetlands be managed to support
migratory birds and native wildlife species?
The Refuge was established as a m eans to mitigate for loss of wildlife
habitat from dam and reservoir construction within the upper Colorado
River Sy stem. The Fish and W ildlife Service is con cerned ab out impac ts
to wetland habitat because of their importance to migratory birds and
native wildlife species. The extent to which wetland creation or
enhancement ought to occur to achieve mitigation, and the types and
management of wetlands that should be pursued to support the mix of
migratory birds and native wildlife species are issues.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 21
2.2.1.4 Upland Habitats
How wo uld upland shrub and grassland habitat be managed to support
native wildlife species and migrating birds?
Upland areas within the Refuge, including the Dry Creek Unit, have not
been managed with the intensity of the River corridor. A mosaic of
successiona l stages is desira ble from a wildlife habitat sta ndpoint.
Opportunities may exist to use a variety of management tools to alter
the successional state of upland shrub habitats and provide more habitat
diversity.
2.2.1.5 Riverine Habitats
How are fisheries managed on the Refuge?
The public is concerned about future management of the fishery. One
concern is that the Refuge installed water diversions and other
structures in the River, and their potential affect on fish and resources.
2.2.1.6 Weeds
To what extent are weeds (invasive, nonnative plants) controlled?
Noxious weeds, such as pepperweed, salt cedar, Canada thistle, Russian
knapweed, cheatgrasss, and musk thistle are invading most Refuge
habitats and dominating the vegetation in some areas. Control methods
for some weed species are unknown or not completely effective. Former
land management practices and current active management activities
have created many opportunities for weeds to become established. How
to manage the Refuge to control the spread of weeds and reclaim weed-dominated
habitats are issues.
2.2.1.7 Predators and Nuisance Species
How are predators and nuisance species controlled?
Controlled trapping of nest predators occurs during the waterfowl
nesting season. Beaver are removed when significant tree losses occur.
There is concern about how, and to what extent, predators and nuisance
species should be controlled.
2.2.1.8 Fire Management
How is fire managed on the Refuge?
Wildfires are contained and extinguished on the Refuge. Using
controlled fires in certain habitats as a management tool is a concern.
How much prescr ibed bu rning is re quired to mana ge certa in habita ts is
also a co ncern.
22 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
2.2.2 Public Use and Recreation Issues
2.2.2.1 Access Management
How is access/travel managed on the Refuge?
The Refuge needs to seek a balance of access for wildlife-dependent
recreation while providing adequate protection for wildlife. Off-road
vehicle use is prohibited within the boundary of the Refuge; however,
unauthorized off-road vehicle use persists. New two-track roads are
being created continuou sly. Significant habitat degradation and w ildlife
disturbance is occurring throughout the Refuge. In addition, other
designated Refuge roads create high levels of wildlife disturbance,
particularly during sensitive seasons, such as nesting and wintering.
Determining how travel should be managed on the Refuge is an issue.
Additionally, the public is interested in the development of walking
trails. Some mountain bike use is occurring. Improved access on
designated roads, trail development, location, management, and use are
concerns.
2.2.2.2 Universal Access
To what extent is universal access to public use facilities and activities
provided?
There is a d esire to prov ide special activities/fa cilities for people w ith
disabilities.
2.2.2.3 Wildlife Viewing and Photography
To what extent are opportunities provided for wildlife viewing and
photography?
Wildlife observation and photography are priority wildlife-dependent
recreational activities. There is interest in developing or enhancing
opportunities for visitors to better view wildlife and wildlife habitats.
Proposals include photography and viewing overlooks/sites; auto tour
routes; and walking/hiking trails.
2.2.2.4 Hunting
What types of hunting opportunities are provided on the Refuge?
Hunting is a priority wildlife-dependent public use on refuges. There are
different points of view on whether or not hunting should be allowed on
the Refuge. How will areas “ closed to hunting” be managed to provide
adequate sanctuary for wildlife species? There are concerns about what
species should be hunted and what are the Refuge’s goals and objectives
with re spect to mana geme nt of gam e specie s. There is some interest in
the Refuge providing duck hunting blinds.
2.2.2.5 Recreational Trapping
What types of recreational trapping are allowed on the Refuge?
A question arose about whether trapping should be used for predator
control and if this could be accomplished through recreational trapping.
2.2.2.6 River Access
How is River access managed?
Where and how should public River access, parking, and boat launch
ramps and associated public use facilities be provided are issues.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 23
2.2.2.7 Sport Fishing
What types of sport fishing opportunities are provided on the Refuge?
The Re fuge‘s fishery is p opular for b ank and flo at fishing including both
commercially guided and recreational fishing. There are conflicting
points o f view a mong anglers and fishin g guide s abou t how fis hing is
regulated.
2.2.2.8 Commercial Guide Fishing
Is commercially guided fishing allowed and how is it managed?
There are concerns about what level of commercial and recreational
fishing on the Green River is appropriate in order to avoid negative
affects on wildlife. If Seedskadee NWR staff continues to allow
commercial guide fishing, issuance of Special Use Permits should be
based upon th e desira ble leve l of Rive r use.
2.2.2.9 Camping
Is camping allowed and, if so, where and how are sites developed and the
use managed?
Camping is not considered wildlife-dependent recreation. However, at
Seed skadee NW R, ther e is dem and for camp ing opp ortunitie s, espec ially
from people floating the 35 miles of River through the Refuge.
Campgrounds are located upstream from the Refuge at Fontenelle and
primitive upland camping occurs downstream from the Refuge on R ock
Springs Grazing Association lands and on adjacent BLM land. There are
questio ns abo ut whe ther or n ot cam ping is a compa tible use a nd sho uld
be permitted.
2.2.2.10 Boating
What types of boating are allowed on the Green River through the
Refuge?
There are concerns that use of motorized watercraft on the Green River
may im pact w ildlife and t he are a’s solitud e.
2.2.2.11 Visitor Use Level
What is the appropriate visitor use level of the Refuge?
How are visito r use lev els dete rmine d within the Re fuge? T here is
question about the extent of impact from public use, including recreation
and interpretive programs. Any determinations of visitor use levels are
complicated by the nee d to min imize w ildlife distur bance , to avoid
encroachment on solitude, and by the nature and capacity of visitor
facilities, pa rking, an d ame nities.
2.2.2.12 Environmental Education
What type of environmental education programing is provided to the
public?
The Refuge staff provides educational opportunities on an “as needed”
basis. There are opportunities to partner with other agencies to provide
an environmental education program and facilities that promote an
awar eness o f the bas ic ecolog ical foun dation fo r the inte rrelation ship
between human activities and the natural system.
24 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
2.2.2.13 Environmental Interpretation
To what extent are opportunities pursued to interpret natural resources,
especially wildlife and their habitat for the visiting public?
Interpretive signs at the R efuge are limited to the kio sks and the auto
tour. Those that exist on the Refuge are outdated. Determining
opportunities and locations for interpretation for wildlife, habitat, and
cultural resources are issues.
2.2.2.14 Public Information
How is information on the Refuge, its resources, and regulations
provided to the public and what are the effects of public use, including
recreation and interpretive programs, on Refuge resources?
There are general concerns about better communication with the public,
neighbors, local jurisdictions, and other agencies on the purpose and
mission of the Refuge—why it and its managem ent policies are
important, both locally and to the broader ecosystem.
2.2.2.15 Cultural Resources
How are cultural resources protected? To what extent are opportunities
pursued to interpret cultural resources for the visiting public?
Potential imp acts to cultural re sources fro m facilities deve lopment,
habitat manipulation, visitor use, and Refuge operations and
maintenance are concerns. There is also an interest in developing more
interpretive opportunities of cultural resources such as locating
interpretive d isplays at sites/cab ins and pub lic points of interest.
2.2.2.16 Partnerships
To what extent are partnership opportunities pursued with volunteers,
local service groups, organizations, individuals, schools, and other
governmental agencies?
Determ ining opportu nities for Re fuge ma nagem ent to “partn er” with
local groups , organization s, individuals, schoo ls, local and State
governments, and other agencies to achieve the Refuge’s mission and
goals and to conserve and enhance wildlife in the Green River ecosystem
is an issue. Likewise, finding opportunities to encourage and utilize
volunteers is an interest.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 25
2.2.3 Administrative Management Issues
2.2.3.1 Land Acquisition
Is further land acquisition or land disposal planned?
Land acquisition within the Refuge boundary is essentially complete.
Two 2.5-acre parcels remain to be acquired should there be willing
sellers. A proposal was set forth several years ago to transfer land along
the Big Sandy River from Reclamation to the Service to be managed as
part of the Seedskadee NWR . There are questions about whether there
is an interest in exchanging, acquiring, or disposing of lands within or
adjacent to the Refuge boundary.
2.2.3.2 Minerals
How will privately-owned minerals be developed?
Development of minerals on or immediately adjacent to the Refuge may
impact wildlife, wildlife habitats, and the quality of the visitor
experience. There is a question about whether seismic activity should be
allowed and, if so, under w hat circumstances. Protec ting the wildlife
resources from unacceptable impacts is a concern.
2.2.3.3 Right-of-Way
What is the Service’s policy toward requests for grants of right-of-way
across the Refuge?
There is a question about how Refuge staff responds to right-of-way
requests.
2.2.3.4 Livestock Access
How is access to water for livestock provided?
The Refuge has traditionally provided access to the River for watering
livestock from adjacent private/public land allotments. Water access
lanes to the River are difficult to secure; for example, preventing
trespass fro m livestock . How ca n the Re fuge prov ide livestock ac cess to
water while maintaining the integrity of the Refuge boundary and
preventing trespass?
2.2.3.5 Grazing
Is grazing a llowed on the Refu ge? Wh at is Refug e mana gemen t doing to
prevent livestock trespass?
The Refuge has been fenced to prevent livestock from entering, thus
improving and protecting habitat for wildlife. Grazing may be an
appropriate tool to manage some of the Refuge’s habitats. Construction
of new fences, maintenance of existing or new fences, and the removal of
old fenc e and w ire are c oncern s.
26 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
III. Refuge and Resource
Descriptions
3.1 Geographic / Ecosystem Setting
Seedskadee NW R is 26,382 acres in size and located in southwestern
Wyoming a long the Green River (Map 1). The e ntire R efuge is within
Sweetwater County in the heart of the Green River Basin. Geographically, the
Refuge is long and narrow and bisected throughout its length by the Green
River. Biogeographers have divided North America into provinces; natural
regions that share similar climate, soils, topography, and vegetation. The
Refuge is within the Wyoming Basin province—a high elev ation G reat B asin
shrub dom inated hab itat.
The Service has adopted an ecosystem approach to national natural resource
management and has identified 52 ecosystems within the United States.
Within the U.S. Fish and Wildlife Service’s ecosystem organization, the
Refuge lies within the Upper Colorado River Ecosystem (Map 2). The Upper
Colorado River Ecosystem incorporates the watersheds, headw aters,
tributaries (including the Green River), and mainstem of the Colorado River
in Wy oming , Utah, a nd Co lorado . Brow ns Par k Natio nal W ildlife Re fuge in
northwestern Colorado and Ouray N ational Wildlife Refuge in northeastern
Utah are two other national wildlife refuges in the ecosystem. The three
refuges share many similarities. All are located along the Green River, the
primary tributary to the Colorado River system and have significant
amounts of marsh and riparian habitat. Together, the three refuges form a
valuable co mplex of w ildlife habitat.
The proposed management priority issues and goals for the Upper Colorado
River Ecosystem focus on national trust resources (endangered species,
migratory birds, and wetlands). Further, recreation is recognized as a high
priority where conflicts with native species and their habitats do not occur.
The following are the priority resource issues and goals for the Upper
Colorado River Ecosystem.
Priority Resource Issue: Decline of na tive aquatic communities due to
construction of dams and reservoirs; and . . . recovery of native aquatics
while recognizing competing demand for recreational use of nonnative
sport fishing.
Goal: Restore and maintain an aquatic system capable of supporting
the diversity of native aquatic communities to achieve recovery of
listed and candidate species and prevent the need for future listings.
Priority Resource Issue: The quality and quantity of native wetland and
riparian hab itats continue to decline via flood plain develo pment,
intensive land use, and impoundments of water courses throughout the
Upper Colorado River Ecosystem. Changes in flow regimes and channel
manipulation result in significant management issues for continued
health.
Goal: Reverse the trend; restore, maintain, and enhance the species
composition, areal extent, and spatial distribution of wetland and
riparian habitats.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 27
28 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 29
Priority Resource Issue: Terrestrial biological diversity within the Upper
Colorado River Ecosystem has declined due to the degradation of terrestrial
habitats. Range and forest land management practices, both public and
private, have resulted in the fragmentation, degradation, and loss of
terrestrial habitats.
Goal: Prom ote terrestria l biological diversity a nd ecosys tem stability
through sound land management practices thereby avoiding
fragmentation, degradation and loss of terrestrial habitats.
3.1.1 Climate
The Refuge’s climate is characterized by long, cold winters and short, warm
summ ers with a grow ing seas on of ab out 90 d ays. Temperatures typically
range from minus 30 degrees Fahren heit to 90 degrees Fahrenheit with frost
penetr ation to 5 0 inches . Most p recipitatio n falls dur ing sprin g and e arly
summer. Decem ber and January are the driest months. Winds are
predominately from the west-northwest and average 8 to 10 mph. Average
annua l precipita tion is 6.48 inches.
3.1.2 Geological Resources
Beds of limestone, sandstone, and shale, ranging in age from Upper or
Middle Cambrian to Upper Cretaceou s, underlie the area. Overlying this are
gently wa rped Ter tiary sedim ents avera ging sever al thousand feet in depth
and extending up onto the flanks of the surrounding mountains from which
they were derived. Upper Green R iver Basin formations contain rich
deposits of coal, oil, natural gas, and soda ash (trona ).
30 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
3.1.3 Soil Resources
The soils located within the Seedskadee NWR are described in the BLM
Green River Resource Area Resource Management Plan (1992) to include
the following four soil units:
II Cambarge, Pepal, Huguston, Leckma n soils (northern and western
portion of the Refuge)
Deep , well dra ined, gra vely san dy loam and fine sandy loam s oils
formed on nearly level or sloping stream terraces and alluvial fans.
Elevations are from 6,200 to 6,500 feet. Precipitation ranges from 7
to 9 inches per year.
II Teagulf, Huguston, Haterton, Wint, Tasselman, Seedskadee, Leckman,
Kandaly soils (eastern portion of the Refuge)
These soils are mode rately d eep to v ery sha llow, w ell draine d soils
formed on rolling upland plains dissected by rock ravines, short
escarpm ents, and dra ws. Elev ations are fro m 6,100 to 6,700 fee t.
Precipitation ranges from 7 to 9 inches per year.
II Kandaly, Westvaco, Haterton, Teagulf, Huguston soils (eastern portion
of the Refuge)
Deep sand dunes intermingled with moderately deep to very
shallow, well drained, strongly alkaline soils formed on rolling upland
plains and fans. Included in this unit are some areas of badlands.
Elevations are from 6,300 to 7,000 feet. Precipitation ranges from 7
to 9 inche s per ye ar.
II Dines, Quealman, Chrisman soils (mid- to southern-portion of the
Refuge, bottomlands)
Deep, poorly to well-drained soils formed on nearly level or sloping
floodplains, bottomlands, and alluvial fans. Some soils in this unit are
strongly saline and/or alkaline. Elevations are from 6,000 to 6,600
feet. Precipitation ranges from 7 to 9 inches per year.
Seedskadee NW R’s sandy soils (Kandaly, Westvaco, Huguston) are very
susceptible to wind erosion when the protective vegetative cover has been
removed. Soluble salt levels in some soils affect management potentials due
to toxicity, reduced infiltration rates, limits on nutrient availability, and
reduction o f water av ailable to plants. M ajor cause s of increase d salinity
contribution from public lands are irrigation, overgrazing, off-road vehicles,
and energy exploration and extraction. These activities cause some
compaction of the soil surface, with a reduction of plant cover, which in turn
leads to increased runoff carrying salt laden sediments into drainages.
Within the region, moderately saline soils can be found along major
drainages such as the Green River, Big Sandy River, Bitter Creek, and
Blacks Fork River. Soils especially susceptible to surface disturbing
activities include unstable soils, sandy soils and erosive soils.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 31
3.1.4 The Seedskadee Project and Mitigation - Early Proposals
Based upon Bureau of Reclamation feasibility studies completed in 1950, the
Seedskadee Project was authorized for construction as one of the series of
projects included in the 1956 Colorado River Storage Project Act. The
original primary purposes of the Seedskadee Project were: 1) diversion of
water from the Green River and delivery of irrigation water to 60,720 acres
of previously undevelop ed desert lands, and 2) dev elopment of a w ildlife
refuge as mitigation for losses of fish and wildlife habitat. The lands proposed
for irrigation were to parallel the Green River on both sides and include
51,690 acres of family farm units and 9,030 acres of community pasture. The
Refuge was to be located along the Green River surrounded by irrigated
community pasture and privately-owned and operated farmlands.
Project feasibility studies continued after project authorization. By Act of
Congress in 1958, authorization was provided for withdrawals of public lands
and acquisition of privately-owned lands to achieve project purposes, namely,
project works and canals, lands for agricultural use, and lands for mitigation
developmen ts. By 19 59, it wa s determ ined tha t a dam and sto rage re servoir
(Fontenelle), as opposed to the originally proposed diversion structure,
would be necessar y to regulate Green R iver flows a nd to deliver w ater to
farm units, community pastures, and the Seedskadee NWR. The 1959
Definite Plan proposed an 18,000-acre refuge with water supplies from
return irrigation flows, direct Green River flows, and storage releases from
Fontenelle Reservoir.
By the mid-1960s, approximately 193,850 acres had been withdrawn or
acquired by Re clama tion for p roject p urpose s. Prior to dam a nd rese rvoir
construction, the 1959 Definite Plan was modified to include a larger dam and
reservoir to provide municipal and industrial water storage. The dam was
completed in April 1964, creating a 20-mile-long reservoir upstream from
Seedskadee NWR and with a total storage capacity of 345,000 acre-feet that
at full pool, inunda tes almost 1 3 square m iles. Howe ver, even p rior to
completion of the dam, the economic feasibility of the original Seedskadee
Projec t concep t began to unra vel. A st op-ord er wa s issued by Re clama tion in
May 1962 to suspend construction of delivery canals and irrigation features
until economic viability of the proposed high altitude farm units could be
reaso nably demon strated .
In 1972, a revised Definite Plan for the Seedskadee Project was prepared that
significantly scaled back and phased in the acreage which might be made
available for irrigable farmland; increased commitments for downstream
industrial and municipal water; planned a 34,000 acre-feet annual water
supply for the Seedska dee Na tional Wildlife R efuge; and continued to
provide flood control and power generation purposes. The 1972 Reclamation
Plan reported that $430,000 had been spent-to-date on acquisition of Refuge
lands and Refuge planning and construction.
Eventu ally, it was dete rmined th at irrigated farm units and com munity
pastures, the original driving motivation for development of the Seedskadee
Project, were not economically viable at this location and altitude, and that
there could be conflicts between development of irrigated farmlands and the
successful extraction of underlying and adjacent Green River Basin trona
deposits. The development of the farm units and the farm irrigation water
delivery systems was abandoned. Although the key element in the
Seed skade e Proje ct was never realized , the mo tivation a nd intere st in
successful mitigation for habitat loss continued.
32 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
3.1.5 Fontenelle Dam and Reservoir and River Hydrology
Today, Reclamation’s Fontenelle Dam and Reservoir purposes include water
storag e and re gulation of the flow s of the G reen R iver for:
1) pow er gen eration ,
2) mun icipal and industria l use,
3) fish and wildlife, and
4) recreation.
Fontenelle Dam is an earthen filled structure with a crest of 4,820 feet and a
height of 116 feet above riverbed. Fontenelle Reservoir has a total storage
capacity of 345,000 acre-feet. A power plant is located adjacent to the toe of
the dam consisting of a 12 megawatt generator and one 16,000-horsepower
hydraulic turbine. Although it is not a specified purpose of the facility, the
reservoir provides incidental flood control on the Green River from the dam
downstream to Flaming Gorge Reservoir.
Recreation facilities have been developed at Fontenelle by Reclamation
including picnic areas, campgrounds, and boat launch facilities. Three
Reclam ation deve loped cam pground s (Tailrace, W eeping R ock, and S late
Creek) are located on the Green River below Fon tenelle Dam and just
upstream from Seedskadee NWR. These recreation facilities are now
mana ged by the Bu reau o f Land Managem ent.
Operation of the dam and reservoir has moderated the historical downstream
flows of the Green River. A number of factors guide operation of the
reservoir and downstream releases. Among these are providing a
marketable water yield from the reservoir to satisfy water commitments,
providing minimum downstream flows for maintenance of the fishery and
waterfowl habitat (a minimum flow of 300 cfs), power production, and dam
safety.
Fontenelle Reservoir’s storage capacity is small in relation to the inflows
from the Upper Green River Basin (Ryan, 1998). Because the storage
capacity is small compared to the inflow volume, there is limited operational
flexibility av ailable. In order to accom moda te spring inflows , reserv oir levels
are dro pped th rough the win ter and early sp ring dow n to its m inimum pool,
93,000 acre-feet, by April 1. This provides a runoff storage capacity of
252,00 0 acre- feet.
Flood control was not an original purpose of Fontenelle Dam and Reservoir.
Outside of the City of Green River and its environs, few structures exist
within the floodplain between Fontenelle Dam and Flaming Gorge
Reservoir. The official flood stage at Green River, Wyoming is now set at
15,000 cfs; however, the National Weather Service would issue flood
warnings to the C ity of Green River a t 12,700 cfs (Ryan, 199 8).
Because storage capacity is limited in relation to the river’s flow volume,
releases mimic natural river flow patterns but greatly moderate the highs
and lows. These circumstances result in changes of the River hydrology
down stream from th e dam . Figure 1 display s some exam ples of ch anges in
peak flow events. Historical flood event data (USDI, BOR 1959), showed
periods of flows at the City of Green River exceeded 13,000 cfs between 1897
and 1921. These high flow events were of varying magnitude and duration
(from two days in 1927 to nearly a month in 1899) and were of irregular
frequency, but were substantially higher flows than those experienced at the
City of Green River since 1966.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 33
Figure 1 also displays flow data since 1966 and operation of the reservoir.
Since 1 966, the re hav e been five flow events in which inflows into Fo ntenelle
Reservoir have exceeded 13,000 cfs. The chart displays four of the five major
flow eve nts including the date and v olume of p eak rese rvoir inflow, the date
and peak reservoir release, and the date and volume at the City of Green
River for each event. An initial observation for these four events is that not
only is the flow at the City of Green River substantially less than the
historical peak flow events at the top of the chart, but the inflows into the
reservoir are also less than three of the historical high flows at the City of
Gree n Rive r.
It would appear that even if the dam and reservoir were not in operation,
flood events greater than 20,000 cfs, like those experienced in 1899, 1918, and
1921 would not have occurred on the Green River through Seedskadee and
the City of Green River since 1966. However, the chart also displays that the
peak flow volumes that were experienced on the Uppe r Green River since
1966 were substantially moderated with operation of the dam.
In three of the four peak flow events since 1966, peak flows below the dam
and through the Refuge were substantially lower than the peak flows
entering the reservoir. N ote that for 19 72, 1986, a nd 1997 , flows at the C ity
of Green River exceed the flow release from the reservoir reflecting
downstream contributions from tributaries, notably the Big Sandy River.
34 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
In add ition to m odera ting the p eaks o f high flow s below the dam , reserv oir
operations have stabilized and raised winter low flows below the dam.
Winter flows are maintained at higher than reservoir inflow rates to realize
fishery and hydropower production benefits. Table 3.1 displays the range and
average of inflows for December through February for each of the past four
winters as well as the range and average of reservoir releases for the same
time pe riods. W inter rele ase rat es are c alculate d to gra dually a nd eve nly
drain the reserv oir back down to its 93,0 00 acre -foot m inimum pool by April
1 so tha t it has cap acity to re ceive a nd store spring ru noff. By gradu ally
releasing the remaining storage pool, minimum flows and power production
can be maintained throughout the winter season.
Table 3.1 Winter Flows in cfs Above and Below
Fonte nelle R eservo ir
December,
January and
February
High
Inflow
Low
Inflow
Average
Inflow
High
Release
Low
Release
Average
Release
Winter
1994-1995
674 224 423.2 894 796 841.1
Winter
1995-1996
891 227 508.3 1332 1134 1,253.8
Winter
1996-1997
810 308 638.7 1321 1106 1,208.4
Winter
1997-1998
902 447 626.6 1469 1326 1,411.1
The relationship between inflows and releases at Fontenelle on the Green
River are graphically depicted on consolidated hydrographs in Appendix H and
provide a visual depiction and summary of the above discussions. The operation
of Fontenelle Dam and Reservoir moderates flows of the Green River below
the dam from what would be experienced if the dam were not in place. The
high peaks of major high flow events are substantially reduced below the dam.
The time between high peak inflows and high peak releases into the River
below the dam is usually o nly a few days. W inter flow release s are fa irly stable
and substantially exceed inflows.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 35
3.1.6 Area Socio-Economics
Prior to the mid-1800s, the region was populated by native Americans and
occasional explorers, fur trappers, and traders. For several years, fur trappers
and traders would travel long distances to annually swap goods, tales, and furs
at rendezvous along the Green River. Starting with the 19th Century
migration of settlers to the west coast and Utah, remote trading outposts and
military posts were established, marking the first modern permanent
settlement in the region. Hundreds of thousands of people and their livestock
passed through southwestern Wyoming. They traveled the Mormon Trail, the
Oregon Tra il, the Califo rnia Tra il, and num erous c utoffs an d shortc uts, all
crossing the Gre en Riv er and many passing throug h today ’s Seed skadee NW R.
The completion of the Union Pacific Railroad in May 1869 developed the first
major Wyoming communities: Cheyenne, Laramie, Rawlins, Green River, and
Evanston. Rock Springs, Superior, Frontier, Kemmerer, and other towns grew
up where coal was successfully mined and used to fuel the rail engines.
Upon statehood, the Federal government retained lands that had not been
converted to private ownership and the State of Wyoming was provided from
those lands two section s in each tow nship. Thus, by the end of th e 19th
Century, the landownership patterns were set. Privately-owned lands are
prima rily lowla nds alon g stream s and riv ers, tow n sites, an d the U nion Pa cific
land grant. Generally, Wyoming owns two sections per township. But, most
lands are Federally-owned being managed by the Bureau of Land
Management, the U.S. Forest Service, the U.S. Fish and Wildlife Service, the
Bureau of R eclam ation, or the Na tional Pa rk Ser vice. Of th e 6,773 ,340 ac res in
Sweetwa ter Co unty, 1,8 28,641 acres a re priva tely-ow ned, an d they a re held
primarily by the railroad.
Rich natural resources underlie much of the Green River Basin and
surrounding lands. Coal, trona, oil, and natural gas have been discovered and
extracted in enormous quantities, often through lease of Federally-owned
minerals. These mining operations and their processing operations and related
coal-fired pow er plants hav e provided significant em ploymen t and grow th
opportunities for the region.
The region’s economy is a product of history and environment. Principal
sources of employment and income are mineral extraction and processing
industries, tourism, service industries, government employment, and
agricultural—primarily ranching, and transportation. The population density of
Wyoming is low at 4.9 persons per square mile. People live in isolated ranches
or relatively smaller cities and towns and are accustomed to traveling long
distances for work, recreation, and shopping.
3.1.7 Population Growth
In 1950, the populations of the cities closest to Seedskadee NWR w ere 10,857
(Rock Springs), 3,187 (Green River), and 1,667 (Kemmerer). The 1990 census
for these communities were 19,050, 12,711, and 3,020 respectively,
establishing a n et 121 per cent grow th. How ever, base d on 2000 census da ta
Rock Springs and Green River populations decreased to 18,708 and 11,805,
respectively. Between 1990 and 2000, Sweetwater County’s population
decre ased 3 per cent w hile L incoln Cou nty inc reas ed 15 perce nt. Wyoming’s
population in 2000 was 493,782 and is projected by the U.S. Bureau of
Econ omic A nalysis to grow slowly o ver the next 10 years.
36 Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001
3.1.8 Income
Per ca pita per sonal inc ome fo r Wyo ming in 1993 w as $15 ,415, 24 th highe st in
the natio n. How ever, w ith a highe r perce ntage o f its wag e earn ers wo rking in
relatively highe r wage paying pro duction and extractive ind ustries, per cap ita
personal income for Sweetwater County in 1994 was $20,666.
3.1.9 Economic Development Trends and Pressures
Employment over the past ten years in Sweetwater County peaked in 1994 at
19,935 jobs. This was up 2,599 jobs from 1989, or a 15 percent increase. By the
first six months of 1998, employment in the county had declined to 18,594. In
1998, leading emp loyment sectors w ere mining (3,668 jobs), retail trade (3,414 ),
local government (3,320), services (2,629), transportation, communication, and
public utilities (1,447), m anufacturin g (1,445), and construction (1 ,041), with
other sectors having fewer than 1,000 workers in each. Retail trade and
services are economic sectors which have grown over the past decade and can
be expected to continue to grow with tourism, relative stable economies, and
growth in leisure time and disposable income. Wyoming economic development
efforts often credit the State’s natural wonders and National Parks,
recreational opportunities, abundance of open space and wildlife, and the
absence of personal or corporate State income taxes.
3.1.10 Changes in Demand for Outdoor Recreation
Outdoor recreation continues to grow in popularity with over 70 percent of
people 16 and over participating in some form of outdoor recreation. A U.S.
Fore st Serv ice study (1989) projec ts significa nt contin uing gro wth in
participation in activities such as day hiking, backpacking, camping, canoeing,
kayaking, rafting, cross-country skiing, bicycling, wildlife observation, and
photog raphy throug h the ne xt seve ral deca des.
It is estimated that about 70 percent of visitors to Seedskadee NWR live
within the region. With continuing higher than average per capita income,
projections fo r statewide and region al population g rowth, an d overall gro wth
in particip ation in o utdoor recrea tion, visitatio n to See dskadee NW R will like ly
increase over the decades ahead.
Seedskadee National Wildlife Refuge Draft Comprehensive Conservation Plan - September 2001 37
3.2 Refuge Resources, Cultural Resources, and Public
Uses
3.2.1 Water Rights
Wyoming water law dates back to territorial days and is based on the “doctrine
of prior app ropriation.” U nder this doc trine, the first to put th e water to
beneficial use has the most senior right. When adequate w ater supplies are
available for all users, the issue of senior water rights is minor. This has been
the case for the use of water by the Refu