Seedskadee National Wildlife Refuge Comprehensive Conservation Plan

              U.S. Fish & Wildlife Service
Seedskadee
Comprehensive
Conservation
Plan
National Wildlife Refuge
CCPs provide long-term guidance for management decisions and set
forth goals, objectives, and strategies needed to accomplish refuge
purposes and identify the Service’s best estimate of future needs.
These plans detail program planning levels that are sometimes
substantially above current budget allocations and, as such, are
primarily for Service strategic planning and program prioritization
purposes. The plans do not constitute a commitment for staffing
increases, operational and maintenance increases, or funding for
future land acquisition.
Seedskadee
National Wildlife Refuge
Comprehensive
Conservation
Plan
September 2002
Prepared by U.S. Fish & 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
Seedskadee National Wildlife Refuge
Comprehensive Conservation Plan Approval
U.S. Fish and Wildlife Service, Region 6
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 i
Table of Contents
Summary............................................................................................................................................................................ 1
Photo Display ................................................................................................................................................................. 4
I. Introduction / Background
Refuge Overview: History of Refuge Establishment, Acquisition and Management .......................................... 7
Seedskadee NWR Overview ................................................................................................................................. 7
History of Seedskadee NWR Establishment, Acquisition, and Management ................................................ 7
Purpose of and Need for Comprehensive Conservation Plan .................................................................................. 11
U.S. Fish & Wildlife Service Mission ........................................................................................................................... 12
National Wildlife Refuge System Mission, Goals, and Guiding Principles ............................................................. 12
Seedskadee National Wildlife Refuge Purpose(s) ...................................................................................................... 14
Seedskadee National Wildlife Refuge Vision Statement .......................................................................................... 14
Legal and Policy Guidance ............................................................................................................................................ 15
Existing Partnerships .................................................................................................................................................... 17
Potential for Refuge Expansion ................................................................................................................................... 18
II.Planning Process
Description of the Planning Process ............................................................................................................................ 19
Planning Issues ............................................................................................................................................................. 20
Wildlife and Habitat Management Issues
Threatened and Endangered Wildlife and Plants ....................................................................................... 20
Riparian Habitats ........................................................................................................................................... 20
Wetlands........................................................................................................................................................... 20
Upland Habitats ............................................................................................................................................. 21
Riverine Habitats ........................................................................................................................................... 21
Weeds ............................................................................................................................................................. 21
Predators and Nuisance Species ................................................................................................................... 21
Fire Management ........................................................................................................................................... 21
Public Use and Recreation Issues
Access Management ....................................................................................................................................... 22
Universal Access ............................................................................................................................................ 22
Wildlife Viewing and Photography ............................................................................................................... 22
Hunting ............................................................................................................................................................ 22
Recreational Trapping ................................................................................................................................... 22
River Access.................................................................................................................................................... 22
Sport Fishing ................................................................................................................................................... 23
Commercial Guide Fishing ............................................................................................................................. 23
Camping ........................................................................................................................................................... 23
Boating ............................................................................................................................................................. 23
Visitor Use Level............................................................................................................................................ 23
Environmental Education .............................................................................................................................. 23
Environmental Interpretation ...................................................................................................................... 24
Public Information .......................................................................................................................................... 24
Cultural Resources ......................................................................................................................................... 24
Partnerships .................................................................................................................................................... 24
Administrative Management Issues
Land Acquisition ............................................................................................................................................. 25
Minerals ........................................................................................................................................................... 25
Right-of-Way ................................................................................................................................................... 25
Livestock Access ............................................................................................................................................ 25
Grazing ............................................................................................................................................................. 25
ii Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
III. Refuge and Resource Descriptions
Geographic / Ecosystem Setting ................................................................................................................................. 26
Climate .................................................................................................................................................................... 28
Geological Resources ............................................................................................................................................. 28
Soil Resources ......................................................................................................................................................... 29
The Seedskadee Project and Mitigation - Early Proposals .............................................................................. 30
Fontenelle Dam and Reservoir and River Hydrology ...................................................................................... 31
Area Socio-Economics ........................................................................................................................................... 34
Population Growth ................................................................................................................................................. 34
Income .................................................................................................................................................................... 34
Economic Development Trends and Pressures .................................................................................................. 35
Changes in Demand for Outdoor Recreation ...................................................................................................... 35
Refuge Resources, Cultural Resources, and Public Uses
Water Rights ........................................................................................................................................................... 36
Refuge River Jurisdiction ..................................................................................................................................... 37
Reserved Rights and Privately Owned Mineral Estate.................................................................................... 38
Refuge Vegetation and Wildlife Habitats ............................................................................................................ 40
Riverine ........................................................................................................................................................... 43
Wetlands........................................................................................................................................................... 43
Seedskadee Managed Wetland Units
Hamp Wetland Unit ................................................................................................................................. 46
Hawley, Lower Hawley, and Dunkle Wetland Units ........................................................................... 46
Pal Wetland Units .................................................................................................................................... 46
Riparian ........................................................................................................................................................... 48
Upland .............................................................................................................................................................. 51
Other Habitat Features ................................................................................................................................. 52
Threatened, Endangered, Candidate or Wyoming Plant Species of Special Concern .......................... 53
Wildlife Resources .................................................................................................................................................. 54
Avian ................................................................................................................................................................. 54
Predator Management and Nest Success ............................................................................................. 58
Mammals .......................................................................................................................................................... 59
Fish ................................................................................................................................................................... 60
Reptiles and Amphibians ............................................................................................................................... 62
Invertebrates .................................................................................................................................................. 62
Threatened, Endangered, Candidate Species and Other Wildlife Species of Special Concern ................ 63
Cultural Resources Inventory ............................................................................................................................... 67
Prehistoric ....................................................................................................................................................... 69
Historic ............................................................................................................................................................. 70
Lombard Ferry ............................................................................................................................................... 70
Paleontological Resources .............................................................................................................................. 72
Bridger Formation .................................................................................................................................. 72
Green River Formation ........................................................................................................................... 73
Public Use Facilities and Program Inventory .................................................................................................... 74
General Public Use ......................................................................................................................................... 74
Compatible Wildlife-Dependent Recreation ....................................................................................................... 75
Wildlife Observation and Photography ........................................................................................................ 75
Hunting ............................................................................................................................................................ 75
Fishing.............................................................................................................................................................. 76
Non-Motorized Boating ................................................................................................................................. 76
Commercial Guiding ....................................................................................................................................... 76
Environmental Education/Outreach............................................................................................................. 76
Interpretation ................................................................................................................................................. 77
Non Wildlife-Dependent Recreation .................................................................................................................... 77
Camping ........................................................................................................................................................... 77
Swimming and Power Boating ...................................................................................................................... 77
Off-Road Vehicles ........................................................................................................................................... 77
Administrative Support
Current Facilities ........................................................................................................................................... 78
Current Staffing ............................................................................................................................................. 78
Special Management Areas
Special Legislated Designations ........................................................................................................................... 79
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 iii
IV.Management Direction
Refuge Management Direction: Goals, Objectives, and Strategies ........................................................................ 80
A Wildlife
A1 Goal - Threatened and Endangered Species ......................................................................................... 82
A1.1 Bald Eagle Objective ................................................................................................................. 82
A1.2 Mountain Plover Objective ....................................................................................................... 83
A1.3 Ute ladies’-tresses Orchid Objective ....................................................................................... 83
A2 Goal - Wildlife ........................................................................................................................................... 84
A2.1 Trumpeter Swan Objective ....................................................................................................... 84
A2.2 Moose and Mule Deer Objective .............................................................................................. 85
A2.3 Sage Grouse Objective .............................................................................................................. 85
A2.4 Migratory Bird Objective .......................................................................................................... 86
A2.5 Other Indigenous Wildlife Species Objective ......................................................................... 86
B Habitat
B1 Goal - Riparian ......................................................................................................................................... 87
B1.1 Restoration Plan Objective ....................................................................................................... 87
B1.2 Forest Protection Objective ..................................................................................................... 88
B1.3 Riparian Regeneration/Planting Objective ............................................................................ 89
B2 Goal - Wetland .......................................................................................................................................... 90
B2.1 Hamp and Hawley Wetland Units Objective ........................................................................ 91
B2.2 Sagebrush Pools and Dunkle Wetland Objective ................................................................. 92
B2.3 Pal Wetland Unit Objective ..................................................................................................... 92
B2.4 Oxbow Channel Wetlands Objective ...................................................................................... 93
B3 Goal - Uplands ......................................................................................................................................... 94
B3.1 Sagebrush/Salt Desert Shrub Habitat Objective ................................................................. 94
B3.2 Upland Tallgrass/Great Basin Wild Rye Objective ............................................................. 95
B4 Goal - Riverine ........................................................................................................................................ 96
B4.1 Riverine Habitat and Fish Objective ..................................................................................... 96
B4.2 Riparian Corridor Restoration Objective .............................................................................. 96
B5 Goal - Invasive Species ........................................................................................................................... 97
B5.1 Control Exotic Plant Populations Objective ......................................................................... 97
C Public Use, Recreation, and Resource Protection
C1 Goal - Wildlife-Dependent Recreation .................................................................................................. 98
C1.1 Wildlife Observation and Photography Objective ................................................................ 98
C1.2 Hunting and Fishing Objective ............................................................................................... 99
C2 Goal - Environmental Education and Interpretation ......................................................................... 100
C2.1 Environmental Education and Interpretation Objective .................................................... 100
C3 Goal - Resource Protection ..................................................................................................................... 101
C3.1 Public Use Objective ................................................................................................................. 101
C3.2 Designated Road Objective ..................................................................................................... 101
C3.3 Refuge Information and Regulations Objective ................................................................... 101
C3.4 Livestock Management/Fencing Objective ........................................................................... 103
C3.5 Land Acquisition/Development Objective............................................................................. 103
C3.6 Mineral and Oil Exploration Objective .................................................................................. 103
C4 Goal - Cultural Resource ......................................................................................................................... 104
C4.1 Cultural Resource Protection Objective ................................................................................ 104
C5 Goal - Partnership.................................................................................................................................... 105
C5.1 Partnerships, Volunteers, and Leadership Objective .......................................................... 105
V. Implementation and Monitoring
Funding and Personnel ................................................................................................................................................ 107
Comprehensive Conservation Plan Implementation and Step-down Management Plans ................................. 109
Partnership Opportunities .......................................................................................................................................... 111
Monitoring and Evaluation ......................................................................................................................................... 113
Plan Amendment and Revision .................................................................................................................................. 114
Environmental Action Statement ............................................................................................................. 115
Finding of No Significant Impact............................................................................................................. 116
iv Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Appendices
A. Glossary ..................................................................................................................................................................117
B. Bibliography ...........................................................................................................................................................122
C. RONS and MMS Projects ....................................................................................................................................125
D. Compatibility Determinations ..............................................................................................................................127
E. Legislation and Policies ........................................................................................................................................140
F. Species List of Seedskadee NWR........................................................................................................................144
G. Mailing List ............................................................................................................................................................153
H. Hydrographs of Green River ...............................................................................................................................155
I. List of Preparers ...................................................................................................................................................157
J. Intra-Service Section 7 Consultation Documentation ......................................................................................158
K. Summary of Public Involvement ..........................................................................................................................169
L. Summary of Public Comments .............................................................................................................................172
Figures
1. Historic Peak Flows - Upper Green River ......................................................................................................... 32
Maps
I. Intro Map ................................................................................................................................................................ 6
1. Vicinity Map ........................................................................................................................................................... 8
2. USFWS Ecosystems............................................................................................................................................. 27
3. Dominant Habitat Types ...................................................................................................................................... 41
4. Habitat Management Units ................................................................................................................................. 44
5. Water Management Map ...................................................................................................................................... 47
6. Special Hunting and Fishing Zones ..................................................................................................................... 61
7. Historical Site Map ............................................................................................................................................... 68
8. Public Use Map ...................................................................................................................................................... 71
9. Refuge Roads .........................................................................................................................................................102
A. CCP Alternative 2 Roads [Changes from Alternative 1 (Current conditions)] ............................................180
B. CCP Alternative 2 Roads [Changes from Draft to Final] ................................................................................181
Tables
1.1 Total Acreage ........................................................................................................................................................ 9
3.1 Winter Flows in cfs Above and Below Fontenelle Reservoir ........................................................................ 33
3.2 Summary of Water Rights Held by the Refuge................................................................................................ 36
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 ........................................................................... 53
3.5 Re-introductions and nesting history of trumpeter swans on Seedskadee NWR....................................... 55
3.6 Nest Success Compared With Trap Effort On Seedskadee NWR (1987-1998) ........................................... 58
3.7 Special Status Wildlife and Fish Species Potentially Occurring on Seedskadee NWR ............................. 63
3.8 Bald Eagle Production on Seedskadee National Wildlife Refuge .................................................................. 65
3.9 Summary of Surface Geologic Deposits and Paleontological Resources Seedskadee NWR Area ........... 72
3.10 Estimated Annual Visitors to Seedskadee NWR ............................................................................................ 74
3.11 Current Personnel (2000) .................................................................................................................................... 78
5.1 Staffing Plan ..........................................................................................................................................................106
5.2 RONS Project Summary for Seedskadee NWR (2000) ..................................................................................107
5.3 Reclamation Cooperative Mitigation Projects .................................................................................................108
5.4 Management Plan Status ....................................................................................................................................109
5.5 Status of Step-down Plans ..................................................................................................................................110
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 1
Summary
Seedskadee National Wildlife Refuge (NWR) is 26,382 acres in size and located within the Green River Basin 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 was 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
Reclamation Act of 1958 specifically authorized acquisition of lands for Seedskadee 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 development and improvement of such wildlife 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 and Wildlife Coordination Act: “. . . shall be administered by him/her (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. Colorado River Storage Act (section 8): “In connection with the development of the Colorado River Storage
Project (CRSP) and of the participating projects, the 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 Storage Project or participating projects in order to “. . . conserve the scenery, 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 by such means as are consistent with
primary purposes of said 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 20,000 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 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 lands acquired have been through Section 8 of the 1956 Colorado River Storage Project Act.
All efforts leading to the preparation of the draft Comprehensive Conservation Plan (CCP) were undertaken 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 provides implementation strategies and recommended staffing and funding.
The Seedskadee CCP will be used to prepare step-down management plans and revise existing plans. It also will
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 reviewed and updated every 15 years.
2 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
The draft CCP considered various alternatives for management of Seedskadee NWR. Each of the alternatives
were evaluated for environmental consequences in accordance with the National Environmental Policy Act
(NEPA). 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 published in the draft CCP
dated September 2001. The CCP is the preferred alternative.
Vision Statement:
Seedskadee NWR will strive to preserve, restore, and enhance the biological 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 of Americans. 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 area and provide for wildlife-dependent recreation that is compatible 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
historically occurred in the area of Seedskadee NWR.
■ Preserve, restore, and enhance the ecological diversity and abundance of migratory and resident wildlife with
emphasis on native species.
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 waterfowl, shorebirds,
wading birds, and other wetland-dependent species.
■ Preserve, restore, and enhance the ecological diversity of indigenous flora associated with the Great Basin
upland desert shrub and grassland habitats to support native wildlife found in the Green River 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 dependent on river and forested habitat.
■ 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, uncrowded nature of the area.
■ Educate and inform the public about the Refuge, U.S. Fish & Wildlife Service, the National Wildlife Refuge
System, and the Upper Colorado Ecosystem by providing quality environmental education and interpretation
opportunities.
■ Protect Refuge resources from adverse natural and/or man-made impacts.
■ 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 Seedskadee NWR accomplish its vision and goals.
The achievement of these goals and associated objectives will fulfill the mission and purposes of the Refuge and
Refuge System.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 3
Potential Refuge Expansion
After the release of the first draft CCP and EA for Seedskadee NWR, Reclamation announced to the Service its
intention to dispose of most of the lands acquired under the “Seedskadee Project.” Remaining Seedskadee Project
lands owned by Reclamation are to be transferred to another Federal agency for management. A portion of the
lands available from Reclamation surround the Big Sandy River and adjoin the Refuge.
In the draft CCP (dated September 2001) we identified 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 Sandy River, a significant tributary that joins the Green River inside the Refuge
boundary.
Careful consideration was given to including an analysis in the draft CCP of amending the Refuge boundary 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 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
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 decision is made to pursue a land transfer, a full public process will ensue complete with public
involvement consistent with the National Environmental Policy Act (NEPA).
4 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Summer storm over the
Hawley Wetland Unit.
The Hawley Wetland
Unit provides habitat for
a variety of wildlife
species including mule
deer, moose, Canada
geese, mallards,
Wilson’s phalarope,
yellow-headed black-birds,
and sora rails.
Floating and
fishing are
two popular
activities
enjoyed by
many folks
who visit
Seedskadee
National
Wildlife
Refuge. These
anglers are
departing
from the
Upper Dodge
Bottoms boat
ramp for a
day of fly
fishing.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 5
Trumpeter swans in
flight over Seedskadee
National Wildlife
Refuge. Trumpeter
swans breed and winter
on the Refuge and are
easily observed year-round.
The Green River
and associated
riparian habitats as
viewed from
McCullen Bluff.
The riparian
forested habitat
along the Green
River is very
important to both
migratory birds and
resident wildlife
species like mule
deer and sage
grouse.
A buck prong-horn
antelope
traverses the
upland sage-brush
habitat.
Pronghorn
antelope are
abundunt on
the Refuge and
are often seen
along the
Refuge auto
tour route.
6 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 7
I.Introduction/Background
Refuge Overview: History of Establishment, Acquisition and
Management
Seedskadee NWR Overview
This Comprehensive Conservation Plan (CCP) is being developed specifically
for Seedskadee National Wildlife Refuge (Seedskadee NWR or Refuge).
Seedskadee NWR is located in southwestern Wyoming, 37 miles northwest
of the City of Green River. The Refuge is managed by the U.S. Fish &
Wildlife Service (Service) as a component of the National Wildlife Refuge
System (Refuge System). The entire Refuge is within Sweetwater County,
Wyoming and within the Green River Basin. Geographically, the Refuge is
long and narrow, and bisected throughout its length by the Green River. The
north boundary of the Refuge is seven miles downstream from Fontenelle
Dam. From here, the Refuge extends 37 miles downstream and ranges 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)
History of Seedskadee NWR Establishment, Acquisition,
and Management
Seedskadee NWR was authorized by the Colorado River Storage Project
Act of 1956 (CRSP). The CRSP authorized and funded construction of
Bureau of Reclamation Colorado River storage facilities 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 of wildlife habitat resulting from reservoir construction
in the Colorado River drainage. The Seedskadee Reclamation Act of 1958
specifically authorized acquisition of lands for Seedskadee NWR. Seedskadee
NWR was established on November 30, 1965, through a Memorandum of
Understanding between U.S. Bureau of Reclamation (Reclamation) and the
Service.
The U.S. Fish & Wildlife Service may acquire lands consistent 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 only when other means of achieving program 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.
8 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 9
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
Conservation Act or Migratory Bird Hunting Stamp Act.
Table 1.1 Total Acreage
Tract
No.
Acquired
Date
Tract Name Acres
1-5 11/6/61 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 Ranches (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 Roundout (Reclamation to USFWS) 2,117.00
3 9/30/89 Meandered acres (881.54 acres included in
the USA Roundout)
Total Acres 26,382.23
10 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 no extensive wetland development or management
occurred.
Substantial wetland development did not occur until the 1980s with creation
of the Hamp, Hawley, Lower Hawley, and Dunkle water 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 Canada geese and other waterfowl).
2. To preserve habitat conditions 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
mapped in the Vegetation and Wildlife Habitat 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
Seedskadee Project planning. Even now these impacts are not easily
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; Berk, 1998).
The Service’s management approach to Seedskadee NWR has a broader
focus today than anticipated in the 1958 Fish and Wildlife Service Report.
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 resources, and
interpretive and educational information on the Refuge’s habitat, wildlife,
and cultural resources.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 11
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 & Wildlife Service 1999).
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 passed the National Wildlife Refuge System Improvement Act 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 this, each Refuge was to prepare a CCP within 15 years.
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
recreational uses. The CCP, when completed, will guide the Refuge in
meeting its management objectives and contribute to the mission of the
Refuge system while meeting all legal mandates.
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 planning unit.
2. To provide a forum for the public to comment on the type, 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 cooperation
with affected parties, including Federal 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 demonstrate support for management decisions and their rationale by
sound professional judgment, biological initiative, and public involvement.
7. To provide a uniform basis for budget requests for operational,
maintenance, and capital improvement programs.
12 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
U.S. Fish & Wildlife Service Mission
The U.S. Fish & 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 Service’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
reverse the decline. The Fish Commission eventually evolved into the “U.S.
Fish & Wildlife Service” and was located within the Department of the
Interior in 1956. The Service’s scope of responsibilities broadened throughout
the years to include migratory birds, endangered species, certain 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 plants and their habitats for the continuing benefit
of the American people.
The Service carries out these responsibilities through several functional
entities. The National Wildlife Refuge System is one of those entities.
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 contain any planning requirements.
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 education and
interpretation as priority public uses of the System.” 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.
The mission of the National
Wildlife Refuge System is to
administer a national network
of lands and waters for the
conservation, management,
and, where appropriate,
restoration of the fish, wildlife,
and plant resources 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 105-57).
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 13
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
(Constanza, 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 endangered or threatened 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 conservation, by providing the public with
safe, high-quality, and compatible wildlife-dependent public use.
Such use includes hunting, fishing, wildlife observation and
photography, and environmental education and interpretation.
In addition, individual national wildlife refuges are acquired under a variety
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
threatened species and offers a wide variety of wildlife-dependent public
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 providing
migration habitat during spring and fall periods. Other refuges 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 affect
the species and the entire networks ability to maintain 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.
14 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 development and improvement of such wildlife
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 and Wildlife Coordination Act: “. . . shall be administered by him/her
(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. Colorado River Storage Act (section 8): “In connection with the
development of the Colorado River Storage Project (CRSP) and of the
participating projects, the 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 Storage Project or participating projects in order to “. . .
conserve the scenery, 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 by such means
as are consistent with primary purposes of said 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 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 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 lands acquired have been through Section 8 of the 1956
Colorado River Project Storage Act.
Seedskadee National Wildlife Refuge Vision Statement
Seedskadee NWR will strive to preserve, restore, and enhance the biological
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 of Americans.
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 area and provide for wildlife-dependent recreation 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 Comprehensive Conservation Plan - September 2002 15
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 multiple-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
Federal Regulations and Fish and Wildlife Service Manual.
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 protection and conservation of fish and wildlife threatened 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 which such areas were established.
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 uses will receive enhanced consideration over other uses in
planning and management. Furthermore, this Act requires that a CCP be in
place for each refuge by the year 2012 and that the public have an
opportunity for active involvement in plan development and revision. It 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 Refuge System Administration Act of 1966.
Lands within the System are different from other, multiple-use public lands
in that they are closed to all public uses unless specifically and legally
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
Refuge System is managed specifically for the benefit of fish, wildlife, and
plant resources and their habitats. Compatible wildlife-dependent recreation
is a legitimate and appropriate general public use of the System.
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
management.
16 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 adherence with
applicable laws. If financial resources are not 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 compatible.
The Service has completed compatibility determinations for Seedskadee
NWR (see Appendix D).
The Refuge Recreation Act, as amended, authorized the Secretary to
administer refuges, hatcheries, and other conservation areas for recreational
use when such uses did not interfere with the area’s primary purpose.
Executive Order 12996 (March 23, 1996) identified a new mission statement
for the System; established six priority public uses (hunting, fishing, wildlife
observation and photography, environmental education and interpretation);
emphasized conservation and enhancement of the quality and diversity of
fish and wildlife habitat; stressed the importance of partnerships with
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 refuge lands, of existing compatible wildlife-dependent uses that would
be permitted to continue on an interim basis pending completion of
comprehensive planning.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 17
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 benefits are achieved.
See Chapter 3 for further information on Bureau of Reclamation/U.S. Fish &
Wildlife Service partnership history on the Seedskadee Project and
development of Seedskadee NWR.
The Refuge also works with a variety of other organizations and individuals
on natural resource projects including:
■ local law enforcement agencies (general enforcement)
■ Wyoming Game and Fish (wildlife and fish surveys, habitat
management, enforcement, public outreach, public use)
■ Sweetwater County weed and pest (invasive 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 Swan Society (swan management)
■ Local school districts (environmental education)
■ Scout organizations (community and refuge projects)
■ Sweetwater County Chamber of Commerce (eco-tourism, special
events)
■ Green River Chamber of Commerce
■ 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 contractual agreement)
■ 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)
■ Audubon Wyoming
18 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Potential for Refuge Expansion
After the release of the first draft CCP and EA for Seedskadee NWR, the
U.S. Bureau of Reclamation (Reclamation) announced 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. Remaining Seedskadee Project lands owned by Reclamation are to
be transferred to another Federal agency for management. A portion of the
lands available from Reclamation surround the Big Sandy River and adjoin
the Refuge.
In the draft CCP (dated September 2001), we identified 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 Sandy River, a significant tributary that joins the
Green River inside the Refuge boundary. As stated in the 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 seller
basis only.”
Careful consideration was given to including an analysis in the draft CCP of
amending the Refuge boundary 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 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
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. 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 National Environmental Policy Act (NEPA).
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 19
II. Planning Process
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
Conservation Planning Policy. Key steps include:
1. Planning;
2. Identifying issues and developing a vision;
3. Gathering information;
4. Analyzing resource relationships;
5. Developing alternatives and assessing their environmental effects;
6. Developing management goals, objectives, and strategies;
7. Identifying a preferred alternative;
8. Publishing the Draft Plan and soliciting public comments on the
Draft Plan;
9. Review of comments and effecting necessary and appropriate
changes to the Draft CCP; and,
10. Preparation of the final CCP for approval by the Region 6 Regional
Director, and finally
11. Implementation 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 with Federal agencies, State agencies, and members of the public
assisted the Service and Reclamation in identifying most of the natural
resource and public use issues. See Appendix K for details.
The following list of planning and environmental assessment issues was
derived from the comments generated during the public process, from
interested jurisdictions, and from the Seedskadee NWR staff.
20 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Planning Issues
Issues, concerns, and opportunities were identified through discussions with
planning team members and key contacts and through the public scoping
process. Comments were received orally at the meetings, via e-mail, and 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 public, other Federal and State agencies, local and county
governments, private organizations and individuals, and environmental
groups.
Wildlife and Habitat Management Issues
Threatened and Endangered Wildlife and Plants
What measures are taken to protect threatened, endangered, and
candidate species and species of management concern? What measures
are taken to protect and manage indigenous species?
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.
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 have been altered by the construction and operation of Fontenelle
Dam. Changes in channel morphology, such as downcutting, have
occurred and overbank flooding is rare to nonexistent. Water
temperatures have decreased and river flows have been significantly
altered from their historical levels and patterns. Cottonwood gallery
forests are not regenerating under the current water management
regime. Riparian forest communities are losing their structural 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
migratory birds.
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 means to mitigate for loss of wildlife
habitat from dam and reservoir construction within the upper Colorado
River System. The Fish and Wildlife Service is concerned about impacts
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 Comprehensive Conservation Plan - September 2002 21
Upland Habitats
How would 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
successional stages is desirable from a wildlife habitat standpoint.
Opportunities may exist to use a variety of management tools to alter
the successional state of upland shrub habitats and provide more habitat
diversity.
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.
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.
Predators and Nuisance Species
How are predators and nuisance species controlled?
In the past, the Refuge has engaged in controlled trapping of nest
predators during the waterfowl nesting season. Beaver have been
removed when significant tree losses occur. There is concern about how,
and to what extent, predators and nuisance species should be controlled.
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
prescribed burning is required to manage certain habitats is also a
concern.
22 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Public Use and Recreation Issues
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 continuously. Significant habitat degradation and wildlife
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.
Universal Access
To what extent is universal access to public use facilities and activities
provided?
There is a desire to provide special activities/facilities for people with
disabilities.
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.
Hunting
What types of hunting opportunities are provided on the Refuge?
Hunting is a priority wildlife-dependent public use on refuges. There are
conflicting points of view about how hunting is managed. 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 respect to
management of game species. There is some interest in the Refuge
providing duck hunting blinds.
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.
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 Comprehensive Conservation Plan - September 2002 23
Sport Fishing
What types of sport fishing opportunities are provided on the Refuge?
The Refuge‘s fishery is popular for bank and float fishing including both
commercially guided and recreational fishing. There are conflicting
points of view among anglers and fishing guides about how fishing is
regulated.
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 the desirable level of River use.
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
Seedskadee NWR, there is demand for camping opportunities, especially
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 Rock
Springs Grazing Association lands and on adjacent BLM land. There are
questions about whether or not camping is a compatible use and should
be permitted.
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 impact wildlife and the area’s solitude.
Visitor Use Level
What is the appropriate visitor use level of the Refuge?
How are visitor use levels determined within the Refuge? There 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 need to minimize wildlife disturbance, to avoid
encroachment on solitude, and by the nature and capacity of visitor
facilities, parking, and amenities.
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
awareness of the basic ecological foundation for the interrelationship
between human activities and the natural system.
24 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 Refuge are limited to the kiosks 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.
Resource Protection and 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 management policies are
important, both locally and to the broader ecosystem.
Cultural Resources
How are cultural resources protected? To what extent are opportunities
pursued to interpret cultural resources for the visiting public?
Potential impacts to cultural resources from facilities development,
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 displays at sites/cabins and public points of interest.
Partnerships
To what extent are partnership opportunities pursued with volunteers,
local service groups, organizations, individuals, schools, and other
governmental agencies?
Determining opportunities for Refuge management to “partner” with
local groups, organizations, individuals, schools, 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 Comprehensive Conservation Plan - September 2002 25
Administrative Management Issues
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. Other potential lands available for
exchange include the riparian areas between Fontenelle Reservoir and
Big Piney. There are questions about whether there is an interest in
exchanging, acquiring, or disposing of lands within or adjacent to the
Refuge boundary.
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 what circumstances. Protecting the wildlife
resources from unacceptable impacts is a concern.
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.
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 from livestock. How can the Refuge provide livestock access to
water while maintaining the integrity of the Refuge boundary and
preventing trespass?
Grazing
Is grazing allowed on the Refuge? What is Refuge management 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 fence and wire are concerns.
26 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
III. Refuge and Resource
Descriptions
Geographic / Ecosystem Setting
Seedskadee NWR is 26,382 acres in size and located in southwestern
Wyoming along the Green River (Map 1). The entire Refuge 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 elevation Great
Basin shrub dominated habitat.
The Service has adopted an ecosystem approach to national natural resource
management and has identified 52 ecosystems within the United States. An
effective ecosystem management approach encompasses a landscape level
approach to land management and must recognize and incorporate local,
regional, and system-wide roles. Within the U.S. Fish & Wildlife Service’s
ecosystem organization, the Refuge lies within the Upper Colorado River
Ecosystem (Map 2). The Upper Colorado River Ecosystem incorporates the
watersheds, headwaters, tributaries (including the Green River), and
mainstem of the Colorado River in Wyoming, Utah, and Colorado. Browns
Park National Wildlife Refuge in northwestern Colorado and Ouray National
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 complex of wildlife habitat.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 27
28 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 native 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 habitats continue to decline via floodplain development,
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.
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: Promote terrestrial biological diversity and ecosystem stability
through sound land management practices thereby avoiding
fragmentation, degradation and loss of terrestrial habitats.
Climate
The Refuge’s climate is characterized by long, cold winters and short, warm
summers with a growing season of about 90 days. Temperatures typically
range from minus 30 degrees Fahrenheit to 90 degrees Fahrenheit with frost
penetration to 50 inches. Most precipitation falls during spring and early
summer. December and January are the driest months. Winds are
predominately from the west-northwest and average 8 to 10 mph. Average
annual precipitation is 6.48 inches.
Geological Resources
Beds of limestone, sandstone, and shale, ranging in age from Upper or
Middle Cambrian to Upper Cretaceous, underlie the area. Overlying this are
gently warped Tertiary sediments averaging several thousand feet in depth
and extending up onto the flanks of the surrounding mountains from which
they were derived. Upper Green River Basin formations contain rich
deposits of coal, oil, natural gas, and soda ash (trona).
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 29
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, Leckman soils (northern and western
portion of the Refuge)
Deep, well drained, gravely sandy loam and fine sandy loam soils
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 moderately deep to very shallow, well drained soils
formed on rolling upland plains dissected by rock ravines, short
escarpments, and draws. Elevations are from 6,100 to 6,700 feet.
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 inches
per year.
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 NWR’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 of water available to plants. Major causes of increased 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.
30 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 undeveloped desert lands, and 2) development of a wildlife
refuge as mitigation for losses of fish and wildlife habitat as a result of
Fontenelle and Flaming Gorge Dams. 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
developments. By 1959, it was determined that a dam and storage reservoir
(Fontenelle), as opposed to the originally proposed diversion structure,
would be necessary to regulate Green River flows and to deliver water 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 Reclamation for project purposes. Prior to dam and reservoir
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, inundates almost 13 square miles. However, even prior to
completion of the dam, the economic feasibility of the original Seedskadee
Project concept began to unravel. A stop-order was issued by Reclamation in
May 1962 to suspend construction of delivery canals and irrigation features
until economic viability of the proposed high altitude farm units could be
reasonably demonstrated.
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 Seedskadee National Wildlife Refuge; 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.
Eventually, it was determined that irrigated farm units and community
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
Seedskadee Project was never realized, the motivation and interest in
successful mitigation for habitat loss continued.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 31
Fontenelle Dam and Reservoir and River Hydrology
Today, Reclamation’s Fontenelle Dam and Reservoir purposes include water
storage and regulation of the flows of the Green River for:
1) power generation,
2) municipal and industrial 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
Reclamation developed campgrounds (Tailrace, Weeping Rock, and Slate
Creek) are located on the Green River below Fontenelle Dam and just
upstream from Seedskadee NWR. These recreation facilities are now
managed by the Bureau of Land Management.
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 available. In order to accommodate spring inflows, reservoir levels
are dropped through the winter and early spring down to its minimum pool,
93,000 acre-feet, by April 1. This provides a runoff storage capacity of
252,000 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
City of Green River at 12,700 cfs (Ryan, 1998).
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
downstream from the dam. Figure 1 displays some examples of changes 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.
32 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Figure 1 also displays flow data since 1966 and operation of the reservoir.
Since 1966, there have been five flow events in which inflows into Fontenelle
Reservoir have exceeded 13,000 cfs. The chart displays four of the five major
flow events including the date and volume of peak reservoir 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
Green River.
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 Upper 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. Note that for 1972, 1986, and 1997, flows at the City of
Green River exceed the flow release from the reservoir reflecting
downstream contributions from tributaries, notably the Big Sandy River.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 33
In addition to moderating the peaks of high flows below the dam, reservoir
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 periods. Winter release rates are calculated to gradually and evenly
drain the reservoir back down to its 93,000 acre-foot minimum pool by April
1 so that it has capacity to receive and store spring runoff. By gradually
releasing the remaining storage pool, minimum flows and power production
can be maintained throughout the winter season.
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 only a few days. Winter flow releases
are fairly stable and substantially exceed inflows.
Table 3.1 Winter Flows in cfs Above and Below
Fontenelle Reservoir
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 1,332 1,134 1,253.8
Winter
1996-1997
810 308 638.7 1,321 1,106 1,208.4
Winter
1997-1998
902 447 626.6 1,469 1,326 1,411.1
34 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
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 Trail, the California Trail, and numerous cutoffs
and shortcuts, all crossing the Green River and many passing through today’s
Seedskadee NWR.
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 sections in each township. Thus, by the end of the 19th
Century, the landownership patterns were set. Privately-owned lands are
primarily lowlands along streams and rivers, town sites, and the Union
Pacific 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 & Wildlife Service, the
Bureau of Reclamation, or the National Park Service. Of the 6,773,340 acres
in Sweetwater County, 1,828,641 acres are privately-owned, and they are
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 power plants have provided significant employment and
growth 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.
Population Growth
In 1950, the populations of the cities closest to Seedskadee NWR were 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 net 121 percent growth. However, based on 2000 census data
Rock Springs and Green River populations decreased to 18,708 and 11,805,
respectively. Between 1990 and 2000, Sweetwater County’s population
decreased 3 percent while Lincoln County increased 15 percent. Wyoming’s
population in 2000 was 493,782 and is projected by the U.S. Bureau of
Economic Analysis to grow slowly over the next 10 years.
Income
Per capita personal income for Wyoming in 1993 was $15,415, 24th highest in
the nation. However, with a higher percentage of its wage earners working in
relatively higher wage paying production and extractive industries, per
capita personal income for Sweetwater County in 1994 was $20,666.
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 35
Economic Development Trends and Pressures
Employment over the past 10 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 employment sectors were mining (3,668 jobs), retail trade
(3,414), local government (3,320), services (2,629), transportation,
communication, and public utilities (1,447), manufacturing (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.
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.
Forest Service study (1989) projects significant continuing growth in
participation in activities such as day hiking, backpacking, camping, canoeing,
kayaking, rafting, cross-country skiing, bicycling, wildlife observation, and
photography through the next several decades.
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 for statewide and regional population growth, and overall growth
in participation in outdoor recreation, visitation to Seedskadee NWR will
likely increase over the decades ahead.
36 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Refuge Resources, Cultural Resources, and Public Uses
Water Rights
Wyoming water law dates back to territorial days and is based on the
“doctrine of prior appropriation.” Under this doctrine, the first to put the
water to beneficial use has the most senior right. When adequate water
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 Refuge since it was
established. As demands increase for the use of water from the Green River
and the Colorado River and its tributaries, this will likely become an
important issue for the Refuge in the future. Water rights held by the Refuge
are summarized in Table 3.2.
The Refuge staff believes it holds sufficient water rights to implement its
goals and objectives based on the following reasons:
1. Irrigation water rights were attached to the agricultural lands
acquired for the Refuge and are utilized to restore, enhance, or
create wetlands and other habitats.
2. Under Contract No. 14-06-400-6193 with Reclamation, first priority
to 5,000 acre-feet of Fontenelle Reservoir storage water is reserved
to the United States for use on the Seedskadee NWR.
3. The Refuge is allocated up to 28,000 acre-feet annually, at a rate of
115 cfs, deliverable under Reclamation’s Direct Flow Permit for
wildlife refuge requirements.
Table 3.2 Summary of Water Rights Held by the Refuge
Permit
Number
Cert.
Number
Name Flow, Storage, Use Priority
Date
12202 15164 Hamp No. 1 1.54 cfs 1/9/1914
12203 15165 Hamp No. 2 1.67 cfs 1/9/1914
12203 15166 Hamp No. 2 4.04 cfs 1/9/1914
13463 24399 Rood Ditch 1.00 cfs 4/28/1913
15906 20188 Herman Ditch 0.17 of .99 cfs 12/9/1920
15907 201889 Otterson Ditch 1.18 cfs 12/9/1920
15907 20191 Otterson Ditch 0.19 cfs 12/9/1920
15907 20190 Otterson Ditch 1.35 cfs 12/9/1920
15907 20758 Otterson Ditch 2.27 cfs 12/9/1920
15907 21649 Otterson Ditch 2.65 cfs 12/9/1920
16985 22614 Tallman Ditch 1.30 cfs 6/13/1925
22364 Fontenelle Reservoir 115.00 cfs; FW use 4/26/1955
22365 Reservoir Outlet, Canals 0.00 cfs 7/9/1962
22368 Fontenelle Reservoir 0.00 cfs; FW use 7/9/1962
3576E 36028 Superior Enl. .13 cfs 4/6/1916
4006E 36029 Superior Enl. 1.04 cfs 5/19/1919
5330E 24400 Rood Ditch Enl. 0.14 cfs 4/29/1942
5402E 26566 Hamp No. 2 Enlarge 0.56 cfs 6/26/1945
6629 RES Fontenelle Reservoir 5,000 acre-feet storage for FW use 1/22/1962
U.W. 47679 Headquarters Well No 1 50 gpm; domestic use 4/23/1979
U.W. 69131 Headquarters Well No 2 30 gpm; fire protection use 2/14/1984
Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002 37
Refuge River Jurisdiction
Navigability and jurisdiction on and under water bodies, including lakes,
rivers, and streams, is a complex and confusing issue. Most states, including
Wyoming, have chosen to rely on precedents set by court decisions rather
than resolve those issues legislatively.
The only body of water in the State of Wyoming that is considered to be
navigable by Federal agencies (Corps of Engineers [COE]) is the Flaming
Gorge Reservoir to its high water mark. While the Wyoming Constitution
declares all natural waters within the State the property of the State, the
Supreme Court of Wyoming concluded in a 1961 decision (Platte River
Boating Supreme Court Decision) that there are no navigable water bodies in
the State. In that same decision, the Wyoming Supreme Court also declared
the river bottoms to be the property of the adjacent landowners. In essence,
according to the court’s interpretation, a person may float on the publicly
owned water, but could not anchor that boat nor wade on the river bottom.
Federal Courts have clarified these issues in regards to Federal agencies (i.e.
National Parks, National Forests, National Wildlife Refuges) that own and
manage lands that encompass portions of water bodies (lakes or rivers). The
Federal Courts have consistently maintained that Federal agencies have
jurisdiction over recreational uses on these water bodies when the water
body is integral to the primary purposes for which the park, refuge, or forest
were established.
For example, in the U.S. v. Hells Canyon Guide Service case, the District
Court maintained that the Property Clause of the Constitution gave the
government power “to regulate conduct on non-federal land {the Snake River
that runs through the National Forest} when reasonably necessary to protect
adjacent Federal property or navigable waters.” In addition, this case stated
“Congress’ power over Federal lands includes the authority to regulate
activities on non-federal waters in order to protect the archaeological,
ecological, historical and recreational values on the lands” (United States v.
Hells Canyon Guide Service; U.S. District Court of Oregon, Civil No. 79-743;
5-6; 1979).
In the court decision in U.S. v. Brown, the Circuit Court wrote, “. . . we view
the congressional power over Federal lands to include the authority to
regulate activities on non-federal public waters in order to protect wildlife
and visitors on the lands” (United States v. Brown, 552 F.2d 822; 8th Cir. 1977).
Finally, in the U.S. v. Armstrong case, the Circuit Court upheld a conviction
against Armstrong and Brown who were conducting a commercial business
without a permit within a National Park. In this case, the Circuit Court
relied on a U.S. Supreme Court precedent stating, “In Kleppe v. New
Mexico, 426 U.S. 529, 546 (1976), the Supreme Court held that Congress may
make those rules regarding non-federal lands as are necessary to accomplish
its goals with respect to Federal lands” (United States v. Armstrong; No. 99-
1190; 8th Cir. 1999).
The primary purposes of Seedskadee National Wildlife Refuge were
established in Section 8 of the Colorado River Storage Act of 1956. Pertinent
sections of this act read:
In connection with the development of the Colorado River storage
project . . . , the Secretary [of the Interior] is authorized and directed to
investigate, plan, construct, operate, and maintain . . . (2) facilities to
mitigate losses of, and improve conditions for, the propagation of fish and
wildlife.
There is no question that the Green River played a critical role in the
establishment of Seedskadee Refuge and is a necessary component for the
Refuge to meet its primary purposes. However, regardless of jurisdiction,
the Refuge’s first priority is to strive to work with appropriate departments
within the State of Wyoming to meet Refuge management goals and
objectives.
38 Seedskadee National Wildlife Refuge Comprehensive Conservation Plan - September 2002
Reserved Rights and Privately-Owned Mineral Estate
Purchase of many tracts on the Refuge were subject to existing rights-of-way
or granted in deeds at the time of purchase. Some of these existing
rights-of-way include Sweetwater County Road near Big Island, a 200 foot
highway right-of-way to the Wyoming Highway Department along State
Highway 28, buried telephone and electric lines along Highway 28, and a high
voltage power line through the south end of the Refuge.
Many tracts of land also contain outstanding reserved subsurface minerals.
On these lands, oil and gas leasing is limited to those areas on which drainage
is occurring from adjacent public land leases. Currently, there are active oil
and gas leases on 2,390.4 ac of the Refuge although none are currently under
development. According to the 1997 BLM Green River Resource
Management Plan, there is an “oil shale withdrawal” extending over the
entire Refuge, Farson, and Green River area to protect wildlife values of this
area. However, the BLM lands surrounding the Refuge are completely
leased for oil and gas (BLM Green River RMP, 1997). Minerals are privately
owned on about 15,000 acres purchased from private parties and the State of
Wyoming by Reclamation.
Because there are proven economic reserves of oil, gas, trona, and
aggregates within and near the Refuge, the Refuge is experiencing, and will
continue to experience, direct and indirect impacts from mineral exploration
and developmental activities. Regulation of mineral activities can be grouped
into one of three categories.
Locatables (Hardrock): Regulations for mining on refuges and the
Mining Act of 1872, as amended, are contained within the Code of
Federal Regulations at 43 CFR 3500 and 3800, and 50 CFR 27. On
Seedskadee NWR, where valid existing mineral rights are