Fort Niobrara National Wildlife Refuge Draft Comprehensive Conservation Plan and Environmental Assessment

              Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 1
Draft Comprehensive
Conservation Plan and
Environmental Assessment
U. S. Fish and Wildlife Service
Fort Niobrara
National Wildlife Refuge
2 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Fort Niobrara
National Wildlife Refuge
Draft
Comprehensive Conservation Plan
and Environmental Assessment
April 1999
Prepared by
U.S. Fish and Wildlife Service
Ft. Niobrara/Valentine NWR Complex
HC14, Box 67
Valentine, NE 69201
and
U.S. Fish and Wildlife Service
Land Acquisition and Refuge Planning
P.O. Box 25486, DFC
Denver, CO 80215
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 3
Table of Contents
Summary........................................................................................................................... 5
Purpose of and Need for Action .................................................................................... 9
Purpose of and Need for Comprehensive Conservation Plan ................................ 9
Planning Process, Planning Time Frame, and Future Revisions ..................... 9
Step-Down Management Plans .................................................................................. 10
National Wildlife Refuge System Mission and Goals .......................................... 10
Fort Niobrara National Wildlife Refuge History................................................... 13
Fort Niobrara National Wildlife Refuge Purpose and Mission ......................... 18
Refuge Goals and Objectives ....................................................................................... 19
Interrelationships of Goals and Objectives............................................................. 19
Habitat Management.................................................................................................... 19
Wildlife ............................................................................................................................. 20
Threatened and Endangered Species ....................................................................... 21
Interpretation and Recreation.................................................................................... 21
Ecosystem (Partner) ..................................................................................................... 22
Alternatives, Including the Proposed Action .......................................................... 23
Alternative A. Current Management (No Action) .................................................. 23
Alternative B. Historical ............................................................................................. 27
Alternative C. Intensive Wildlife Management ..................................................... 29
Alternative D. Modified Historical (Preferred Alternative) .............................. 32
Implementing the Plan (Preferred Alternative) .................................................... 35
Affected Environment................................................................................................... 40
Geographic/Ecosystem Setting ................................................................................... 40
Climate ............................................................................................................................. 40
Air Quality....................................................................................................................... 40
Topography ...................................................................................................................... 40
Geology............................................................................................................................. 40
Soils .................................................................................................................................. 41
Water Resources and Associated Wetlands ............................................................ 41
Vegetation ..................................................................................................................... ... 41
Wildlife ............................................................................................................................. 47
Cultural and Paleontological Resources.................................................................. 49
Special Legislated Designations................................................................................ 50
Socio-Economic and Political Environment ........................................................... 50
Public Uses...................................................................................................................... 50
4 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Environmental Consequences ..................................................................................... 51
Alternative A. Current Management (No Action) .................................................. 51
Alternative B. Historical ............................................................................................. 52
Alternative C. Intensive Wildlife Management Alternative ............................... 54
Alternative D. Preferred Alternative (Proposed Action) ..................................... 56
List of Preparers ............................................................................................................ 58
Consultation and Coordination with Others............................................................ 58
Appendix A. Summary of Actions Proposed Under
Management Alternatives ....................................................................................... 59
Appendix B. Fort Niobrara NWR Species List....................................................... 65
Birds ................................................................................................................................. 65
Mammals......................................................................................................................... 68
Amphibians and Reptiles ............................................................................................. 68
Appendix C. References ................................................................................................ 69
Appendix D. Section 7 ................................................................................................... 71
Appendix E. Glossary .................................................................................................. 73
Appendix F. Key Legislation/Policies ...................................................................... 75
Appendix G. Mailing List of Agencies and Individuals ....................................... 77
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 5
Summary
Fort Niobrara National Wildlife Refuge (NWR) is 19,131
acres in size and located along the Niobrara River in
north-central Nebraska. The Refuge is a unique and
ecologically important component of the National Wildlife
Refuge System (System) which includes more than 513
refuges totaling approximately 93 million acres across the
United States. Fort Niobrara was established by Executive
Order in January, 1912 as a “preserve and breeding
ground for native birds.” Its purpose was expanded later
that same year to include the preservation of bison and elk
herds representative of those that once roamed the Great
Plains. The unusual assemblage of plant communities
(Sandhills Prairie, Mixed Prairie, Rocky Mountain
Coniferous Forest, Eastern Deciduous Forest, and
Northern Boreal Forest) support a rich diversity of
wildlife generally unchanged from historic times.
Comprehensive conservation planning is being done for the
Refuge to guide management over the next 15 years to
ensure progress is made toward the mission and goals of
Fort Niobrara and the Refuge System. This planning effort
provides opportunity for interested people, governments, and
private organizations to give input on future management of
the Refuge. This Plan will provide clear goals and objectives
for management of Refuge habitats, wildlife, threatened
and endangered species, cultural and paleontological
resources, compatible public uses, and partnerships, along
with implementation strategies, and recommended
staffing and funding. The completed Plan will also meet
the planning requirement of the National Wildlife Refuge
Improvement Act enacted by Congress in 1997.
This Draft Comprehensive Conservation Plan (CCP)
considered four alternatives for management of Fort
Niobrara National Wildlife Refuge. Each of the alternatives
was evaluated for environmental consequences in accordance
with the National Environmental Policy Act (NEPA). The
alternatives are summarized below.
Current Management (No Action): This alternative would
continue current management programs of the Refuge.
Winter population levels of 350 bison, 70 elk, and 250 Texas
longhorns would be maintained and receive primary
consideration in management. Native bird management
actions would be accomplished to the extent possible.
Limited flexibility in habitat management programs would
continue with approximately 96 percent of the Refuge
grazed annually. Approximately 50 miles of interior fence
and 50 miles of boundary fence would be maintained to
control timing of grazing and access/movement of bison,
elk, and longhorns. Less than 3 percent of the Refuge
would be managed through prescribed burning each year
to control cedars. Other exotic and invading plants would
be controlled with beneficial insects, grazing, and herbicides.
Management of the Niobrara River, numerous streams,
and associated riparian habitat would be minimal. The
prairie dog colony would be maintained at 20 acres and not
allowed to expand. Limited biological monitoring of Refuge
plant communities and animal populations would be
accomplished. Protection and interpretation of cultural
and paleontological resources would continue to be
minimal. Current public use opportunities which include
wildlife/wildland observation, photography, interpretation/
education, picnicking, hiking, and fishing would be
maintained. River floating would continue with the number
of outfitters maintained at the current level of 11 and no
restriction on the number of launches per outfitter.
Cooperative agreements and partnerships in place would
continue.
Historical: This alternative would manage Refuge
habitats and wildlife to replicate conditions that existed
before settlement. Bison and elk herds would be
maintained at current management levels. Rocky
Mountain bighorn sheep would be reintroduced to the
Refuge and allowed to grow to a population of 50. Texas
longhorns would no longer be managed on the Refuge. Big
game fence would be expanded to enclose nearly the entire
Refuge and much of the interior fence would be removed
to allow more natural grazing patterns. Prescribed burns
would increase to simulate historic fire intervals. Cornell
Dam and all tributary impoundments would be removed
returning these areas to a natural state. Prairie dogs
would be established at a second site and allowed to
expand to approximately 380 acres. Exotic and invading
plants would continue to be controlled with beneficial
insects, prescribed burns, and herbicides. Monitoring of
the various habitats and wildlife populations would
increase. Management of cultural and paleontological
resources would be increased. Wildlife/wildland observation,
photography, picnicking, hiking and fishing opportunities
would be similar to current management. Environmental
education/interpretation would be increased through
construction of a new visitor center. Limited, strictly
controlled bison, elk, and bighorn sheep hunting
opportunities would be made available periodically to the
public to assist with population management. River
floating would be reduced by continuing the current
restriction on number of outfitters and restricting the
number of launches by all users to 1993 levels. Existing
cooperative agreements and partnerships would continue
with the exception of fish rearing in impounded tributaries as
they would no longer be impounded. Additional partnerships
would be sought.
6 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Clockwise from upper left: Bison have been managed on
Fort Niobrara National Wildlife Refuge since 1913 to
preserve a population representative of the large herds
that once roamed the Great Plains; Fort Niobrara Na-tional
Wildlife Refuge and the surrounding area is the
only place in North America where Rocky Mountain
coniferous forest, northern boreal forest, eastern decidu-ous
forest, mixed-prairie and sandhill prairie vegeta-tion
communities meet and intermingle; several of the
management alternatives at Fort Niobrara call for a
change in the longhorn program; river floating is a popu-lar
recreational activity on Fort Niobrara; the Fort Falls
Nature Trail allows visitors to experience the habitats
and wildlife along theFalls and the Niobrara River; elk,
especially bulls with growing antlers, can be found near
or in Refuge ponds and streams during the hot days of
summer; the loud rolling “pulip pulip” call of upland
sandpipers signal that spring has come to the prairie; in
April, prairie chicken males display on traditional breed-ing
grounds on the Refuge; habitat created by prairie
dogs attract a variety of wildlife including burrowing
owls which use the underground burrows for nesting.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 7
8 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Intensive Wildlife Management: This alternative would
intensify and diversify management of Refuge habitats and
wildlife. Native birds would receive greater management
emphasis. Approximately 225 bison, 50 elk, and 125
longhorns would be managed on the Refuge. Texas
longhorns would be used periodically as a grazing tool on
Valentine NWR. Bighorn sheep would be reintroduced
and allowed to expand to 50 animals. Prairie dogs would
be established at a second site and allowed to expand to
approximately 380 acres. Boundary and interior fences
would be retained in the current configuration and
habitat units managed under a deferred grazing rotation;
however, reduced herd levels would increase management
options. Prescribed fire would increase and be used to
control cedars, invigorate native prairie, and encourage
regeneration of woodlands. Use of fenced animals and
rest as management tools would increase. Cornell Dam
and all functional tributary impoundments would be
maintained and breached impoundments restored based
on their value to native birds and fish. Control of exotic and
invading plants would increase with use of prescribed
burns, grazing, beneficial insects and herbicides.
Endangered species management would be expanded.
Monitoring of various habitats and wildlife populations
would increase. Protection and interpretation of
cultural and paleontological resources would increase.
Wildland/wildlife observation, environmental education/
interpretation, hiking, horseback riding opportunities
would be expanded. A new environmental education/
visitor center would be constructed. Limited, strictly
controlled elk and bighorn sheep hunting opportunities
would be made available periodically to the public to
assist with population management. River floating
through the Refuge would be reduced after the Service
determines acceptable peak use levels and management
strategies that fairly distribute reduced floating
opportunities among outfitters and the general public.
During the interim, River use would be capped at 1998
levels and current restrictions on number of outfitters
continued. Current cooperative agreements and
partnerships would continue and additional ones sought
for bison management and possible acquisition of
nondevelopment easements around the Refuge.
Modified Historical (Preferred Alternative): The
Modified Historical Alternative was selected as the
preferred alternative. This alternative was selected
based on an analysis of the environmental consequences,
the requirement to manage for the Refuge’s enabling
legislated purpose of native birds, bison and elk, and the
desire to implement a more natural/historic management
regime. The bison herd would be maintained at 200-300
animals and elk herd at 70-100. Rocky Mountain bighorn
sheep would be reintroduced to the Refuge and allowed
to expand to 50. Texas longhorns would no longer be
managed on the Refuge. Big game boundary fence would
be expanded to enclose nearly the entire Refuge and
interior fence would be removed, where possible, to allow
more natural grazing patterns. Management actions to
improve health and sustainability of the various habitats
and meet needs of various native bird populations and herds
of bison, elk, and bighorn sheep would be implemented.
Prescribed fire would increase and be used to control
cedars, invigorate native prairie, encourage regeneration
of woodlands, and distribute bison and elk grazing. The
Niobrara River, tributaries, and associated riparian
habitat would be maintained in their current condition.
Exotic/invader plants would continue to be controlled with
beneficial insects, prescribed burning, and herbicides.
Prairie dogs would be established at a second site and
allowed to expand to approximately 380 acres. Sufficient
biological monitoring would be accomplished to
document diversity, population trends, health, and
genetics. Protection and interpretation of cultural and
paleontological resources would increase. Wildland/
wildlife observation, environmental education/
interpretation, hiking, and horseback riding opportunities
would be expanded. Funds to construct a new
environmental education/visitor center would be sought
and interpretive displays improved during the interim.
Limited, strictly controlled elk and bighorn sheep
hunting opportunities would be made available periodically
to the public to assist with herd management. Current
fishing opportunities would continue. River floating
through the Refuge would be reduced after the Service
determines acceptable peak use levels and management
strategies that fairly distribute reduced floating
opportunities among outfitters and the general public.
During the interim, River use would be capped at 1998
levels and current restrictions on number of outfitters
continued. Current cooperative agreements and
partnerships would continue and additional ones sought
such as big game management, new environmental
education/visitor center, and possible acquisition of
nondevelopment easements around the Refuge.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 9
Purpose of and Need for Action
Purpose of and Need for Comprehensive
Conservation Plan
The U.S. Fish and Wildlife Service (Service) has recognized
the need for strategic planning of the national wildlife
refuges of its National Wildlife Refuge System(System).
The System now has more than 513 refuges totaling
approximately 93 million acres. Fort Niobrara National
Wildlife Refuge, located in north-central Nebraska (see
Figure 1), is a unique and ecologically important component
of the Refuge 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, required that
Comprehensive Conservation Plans be prepared for all
refuges within 15 years.
The Service was an active participant in this historic
legislation and supported the planning requirement. The
planning effort will help each station and thus the entire
System to meet the changing needs of wildlife species
and the public. The planning effort provides the opportunity
to meet with our neighbors, our customers, and other
agencies to ensure that plans are relevant and truly
address natural resource issues and public interests. It
is our goal to have the System be an active and vital part
of the United States’ conservation efforts. This Draft
CCP/Environmental Assessment (EA) discusses the
planning process, the Refuge’s characteristics, and the
direction management will take in the next 15 years. It is
provided to give the reader a clear understanding of the
purposes of the Refuge, the alternatives considered, and
the preferred alternative (the CCP).
Planning Process, Planning Time Frame, and
Future Revisions
Comprehensive conservation planning efforts for Fort
Niobrara NWR began in January 1997 with a meeting of
regional management and planning staff and field station
employees at Fort Niobrara NWR. At that meeting a
core planning team was designated with the major
responsibilities of gathering information and writing the
plan. A review team was set up to provide guidance and
direction to the core planning team. A working group was
also organized to provide interchange of information
between Service personnel, outside agencies, and
interested stakeholders of the Refuge.
On March 20, 1997, an open house scoping session was
held in the Cherry County Hall meeting room, Valentine,
Nebraska. The open house provided participants an
opportunity to learn about the Refuge’s purposes, mission
and goals, and issues currently facing management. People
attending were provided the chance to speak with Service
representatives and to share their comments.
A two-day tour was held with the working group and
Service management and planning staffs in April 1997.
The tour gave participants a chance to view fenced
animal management and prominent wildlife species of the
Refuge, discuss management aspects of the Refuge, and
give planning staff ideas for consideration in the planning
process.
On October 28, 1997, a meeting was held with Refuge
permittees that are actively involved with canoeing and
tubing on the Niobrara River through the Fort Niobrara
NWR. The CCP addresses this issue, and the meeting
provided an opportunity for Refuge staff and permittees
to share information concerning this use.
During the planning process, the review and working
groups have had access to information on objectives and
alternatives being considered. Written comments have
been exchanged and verbal conversations have been held.
This Draft CCP/EA is the first opportunity that these
groups and the public have had to review the entire
planning effort and the Plan. A 60-day comment period is
provided.
The CCP will guide management on the Refuge for the
next 15 years. Plans are ultimately signed by the
Regional Director, Region 6, thus providing Regional
direction to the station project leader. A copy of the Plan
will be provided to all those interested. The project
leader of the station will review the Plan every five years
to decide if it needs revision.
10 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Step-Down Management Plans
The Service has traditionally used a Refuge Manual to
guide field station management actions. The policy
direction provided through the Manual has been used to
prepare annual work schedules, budget, land management
plans (i.e., prescribed fire, grazing, haying), sale of
surplus animals, biological monitoring, public use, safety,
and other aspects of public land management. The CCP
is intended as a broad umbrella plan that provides
general concepts, specific wildlife and habitat objectives,
federally listed species, public use, and partnership
objectives. Depending on the Refuge needs, these may be
very detailed or quite broad. The purpose of step-down
management plans is to provide greater detail to managers
to implement specific actions authorized by the CCP.
Under this Plan, the Fort Niobrara NWR will revise its
current monitoring plan. An overall Habitat Management
Plan will be prepared to guide all aspects of habitat
management including but not limited to: annual grazing
by large animal herds, the use of prescribed fire, prairie
dog restoration, and rest required by native birds. A
fishing plan will be prepared to provide a basis for special
regulations concerning this use on the Niobrara River and
Minnichaduza Creek. A cultural resource/paleontological
management plan and a public use plan for use on the
Niobrara River will also be prepared.
National Wildlife Refuge System Mission and
Goals
The Mission of the National Wildlife Refuge System is
“to administer a 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.” The
goals of the System are aimed at fulfilling this mission.
Some major goals are to provide for specific classes of
wildlife species for which the Federal government is
ultimately responsible; these “trust resources” are
threatened and endangered species, migratory birds, and
anadromous fish. Most refuges provide breeding,
migration, or wintering habitat for these species. Nearly
all refuges also supply habitats for big game species and
resident or nonmigratory wildlife as well.
Individual refuges provide specific requirements for the
preservation of trust resources. For example, waterfowl
breeding refuges in South and North Dakota provide
important wetland and grassland habitat to support
populations of waterfowl as required by the Migratory
Bird Treaty Act and the North American Waterfowl
Management Plan. Valentine NWR also supports
breeding populations as well as providing migration
habitat during spring and fall periods. Sabine NWR and
other refuges in Louisiana and Texas provide wintering
habitat for these populations. The network of lands is
critical to these birds survival. Any deficiency in one
location will affect the species and the entire networks
ability to maintain adequate populations.
Other refuges may provide habitat for threatened and
endangered plants or animals that exist in unique
habitats which occur in only very few locations. 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 to prevent species from being listed by providing
secure habitat for their use and provide recovery
habitats in portions or all of a species range.
Under the National Wildlife Refuge System Improvement
Act of 1997, six wildlife-dependent recreational uses are
recognized as priority public uses of refuge lands. These
are wildlife observation and photography, environmental
education and interpretation, fishing and hunting. These,
and other uses, are allowed on refuges after finding that
they are compatible with the purpose of the refuge. Uses
are allowed through a special regulation process,
individual special use permits, and sometimes through
normal state fishing and hunting regulations.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 11
Figure 1
12 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 13
Fort Niobrara National Wildlife Refuge
History
Fort Niobrara NWR was established by Executive
Order 1461 on January 11, 1912, which reserved 13,279
acres from the public domain as a “preserve and breeding
ground for native birds.” The reserve was established
at a time when tremendous concern existed over the
exploitation of birds and near extinction of bison.
Two environmental groups, National Association of
Audubon Societies and American Bison Society, were
very influential in the establishment and determination
of purpose of several Federal parks and refuges including
Fort Niobrara during the first two decades of the 20th
century. The National Association of Audubon Societies
was formed in 1905 and its first president, William
Dutcher, was a friend of U.S. President Theodore
Roosevelt. Numerous correspondence was exchanged
between them regarding over-harvest of birds, funding
for the Bureau of Biological Survey, and protection of
bird sites (refuges), and included a letter dated January
1, 1908, which discussed protection of birds and game on
the Fort Niobrara Military Reservation. The American
Bison Society, headed by Dr. William Hornaday, was
directly responsible for establishing Wichita Mountains
NWR in Oklahoma, National Bison Range in Montana,
and Wind Cave National Park in South Dakota for the
preservation of bison in the early 1900’s and was also
instrumental in bringing bison to Fort Niobrara. Dr.
Palmer, a member of the American Bison Society and
2nd Vice President of the Audubon Society, states in the
1912 Annual Report of the American Bison Society that
“on January 12, 1912, the Niobrara Bird Reservation was
created by Executive Order. This reservation comprises
some 10,000 or 12,000 acres of land along the Niobrara
River, near Valentine, including some grazing land, and
only needs a fence to make it an ideal reservation for
buffalo and other big game of the Great Plains.”
A 1913 report from the Chief of the Bureau of Biological
Survey to the Secretary of Agriculture summarizes the
events leading up to the addition of the big game purpose
to Fort Niobrara. The following is an excerpt from that
report: “In the early part of the year 1912, Mr. J.W.
Gilbert, owner of a small big-game park at Friend,
Nebraska, generously offered his herd of buffalo, elk, and
deer to the Government for preservation on national
territory within the state of Nebraska. The lack of
suitable quarters caused some delay in accepting the
offer, but on November 14, 1912, an Executive Order was
issued setting aside as a game preserve a tract of land
additional to the Niobrara bird reservation near Valentine,
Nebraska. The herd was then officially accepted by the
Secretary of Agriculture and preparations began for
establishing it on this very favorable location. Through
the cooperation of the National Association of Audubon
Societies and the citizens of Valentine, an enclosure was
provided at an expense of $1,700. Some of the buildings
remaining on the old Fort Niobrara Military Reservation
were utilized as headquarters, and a warden was
appointed on December 16, 1912.��
The Refuge was expanded again by Executive Orders in
1920 and 1936, the Resettlement Administration, subse-quent
purchases from private individuals, and a donation
from the Nebraska Public Power District bringing the
Refuge’s total acreage to 19,131. Refuge reports state
that the 1920 expansion was for protecting/providing
winter roost sites for sharp-tailed grouse and prairie
chickens, and tracts of land acquired in 1936 were for
various purposes including planting of grain crops for
migratory birds, pronghorn antelope management, and
administrative efficiency (inholdings, straighten
boundaries).
14 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Management History
Management efforts from the Refuge’s establishment
through the early 1940’s considered the needs of both
birds and big game. Initial work involved a general
reconnaissance of the area and its bird life, and a survey
of the boundary and big game enclosure. Construction of
boundary fences of Refuge lands north of the Niobrara
River for use by expanding bison and elk herds was
planned in 1915 with the project completed in the early
1920’s. Earthen dams were built across various tributary
streams beginning in 1922 to improve conditions for
waterfowl. In the 1930’s, the Civilian Conservation Corps
and Work Projects Administration staff rebuilt several
original earthen dams, constructed new dams, planted
various wetland plants, constructed predator fencing
around ponds to improve nesting conditions, and planted
shelter belts for birds. Corrals, additional fence, and
watering facilities south of the Niobrara River were also
constructed during this time. Approximately 150 acres of
Refuge lands were planted to various grain crops for
grouse and waterfowl in the late 1930’s.
Refuge reports and other correspondence suggest a shift
in management from a dual purpose (birds, big game) to
more of a single purpose (big game) beginning in the
early 1940’s, although emphasis varied depending upon
the viewpoint of management. Numbers of bison, elk, and
longhorns maintained on the Refuge fluctuated according
to forage availability and genetic management needs. For
example, during the 1940’s and 1950’s up to 10,000 acres
of Refuge grasslands were annually hayed or grazed by
permittees and not available for use by big game herds.
Approved winter herd levels during this time period
were 175 bison and 150 longhorns. Following a review of
management programs in the mid-1950’s, permittee
haying and grazing was terminated and more fence and
water facilities were constructed to allow areas to be
rested, encourage recovery of grasses, better distribute
grazing by the bison and longhorns, and enable
management to consider the needs of prairie grouse.
Herd levels following the review in 1956 and until the
mid-1980’s varied with approximately 225 bison, 40 elk,
and 200-300 longhorns maintained under a deferred
grazing rotation. Bison and longhorn herds were allowed
to increase in the late 1980’s to implement high intensity,
short duration grazing, and meet suggested genetic
management recommendations. Longhorn numbers
peaked in 1991 at 370, and the bison herd reached its
Refuge high of 400 animals 1992-1996. Maintenance of
bison and longhorns at high herd levels limited habitat
management options and raised concern that native bird
populations, especially prairie grouse, were not receiving
adequate management consideration. A review of the
habitat and fenced animal management programs was
initiated and included consultation with the U.S.
Department of Agriculture (USDA) Natural Resources
Conservation Service (NRCS) on grassland condition
assessment and grazing program recommendations,
consultation with geneticists and review of literature
regarding bison and longhorn management, and review of
scientific literature as it relates to native bird management.
Water Rights/Management History
Fort Niobrara NWR holds no water rights permits with
the State of Nebraska; however, lands reserved from the
public domain for creation of the Fort Niobrara NWR
carry with them a Federal Reserved Water Right that
the United States has not asserted at this time.
The Refuge has 25 windmill driven stock water wells and
six domestic wells which do not require groundwater
permits. Also, the 12 low level spring-fed impoundments
are exempt from special dam construction or water
storage permits because of their size and because
diversion or withdrawal of water from the reservoirs is
nonexistent.
A portion of the Niobrara River was designated as Wild
and Scenic in 1991. The National Park Service has
asserted, as yet unquantified, a Federal Reserve Water
Right to maintain instream flow.
In 1986, the Nebraska Public Power District quitclaimed
land to the United States that included the Cornell Dam
and Power House.
Bison History
An estimated 30 million bison once roamed the Great
Plains; however, by the late 1880’s, fewer than 1,000
animals were alive due to loss of habitat and hunting.
Free-ranging bison are believed to have been extirpated
from Nebraska in 1878 (Jones et al. 1983). Bison were
reintroduced to Fort Niobrara in January 1913 as part of
the national effort to preserve this native herbivore with
the donation of six bison (sex unknown) from J.W. Gilbert
of Friend, Nebraska and the transfer of two bulls from
Yellowstone National Park. Additional introductions
were made in 1935 (4 males, Custer State Park), 1937 (4
males, Custer State Park), and 1952 (5 males, National
Bison Range) to minimize inbreeding and maintain the
species as closely genetically as possible to those
surviving the bottleneck of near extinction. Policy/
philosophy implemented over the years has been to
preserve and maintain a representative herd under
reasonably natural conditions in numbers sufficient to
ensure their continued existence. Management actions
have included culling, controlled herd movements,
branding, brucellosis vaccination, disease testing, and
limited genetic monitoring.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 15
Elk History
Elk were once abundant in the northern Great Plains,
including the area of Fort Niobrara. Aughey (1880:118)
described the elk herds along the Niobrara River in the
late 1860’s as magnificent; however, by the early 1880’s,
elk were extirpated from Nebraska due to hunting and
loss of habitat (Jones 1964). Elk were reintroduced to
Fort Niobrara in January 1913 with the donation of 17 elk
by J.W. Gilbert of Friend, Nebraska. Management
policy/philosophy implemented over the years has been
to maintain a representative herd under reasonably
natural conditions in numbers sufficient to ensure their
continued existence. Periodic introductions of elk to the
Refuge herd have occurred over the years in an effort to
minimize the negative effects of inbreeding. Elk numbers
have varied with winter population levels exceeding 100 in
the early 1930’s and recent population levels averaging 50
to 60.
Longhorn History
Longhorns have been managed at Fort Niobrara since
1936 to assure perpetuation of a historically significant
animal. The following information, taken from Dobie
(1994) and Halloran (1964), provides insight as to the
historical significance of the longhorn and how the
government became involved in the preservation effort.
Longhorn cattle originate from Spanish cattle that were
brought to the New World in about 1521 by Gregorio
Villalobos. Early explorers, including Coronado, brought
these cattle from Mexico into what is now Arizona, New
Mexico, and Texas. The herds eventually spread from
Louisiana to California. Although utilized by Native
Americans and settlers, the Spanish cattle roamed more
or less uncontrolled for over 300 years gradually
evolving into the “longhorn.” Longhorns were the first
major beef supply in the United States and were the
cattle that made famous the Chisolm, Dodge, and
Boseman Trails. Beginning in the mid 1860s and ending
by 1895, an estimated 5 million head of longhorns were
trailed from Texas to Kansas, Nebraska, the Dakotas,
Wyoming, Montana, and Colorado, some walking
approximately 2,000 miles. The attributes which helped
the longhorn to survive heat, drought, flies, predators,
limited forage, and travel great distances were a liability
in the late 1800s, and by the early 1920s, the longhorn
was threatened with extinction. Through a special
Congressional appropriation, funds were made available
to locate and manage representative, true-to-type
longhorns at Wichita Mountains National Wildlife
Refuge. Over 30,000 head of cattle were inspected, and in
1927, a herd of 20 cows, 3 bulls, 3 steers, and 4 calves
were shipped to Wichita Mountains. A second gene pool
of this founding herd was established at Fort Niobrara
with the transfer of 4 cows, 1 bull, and 1 steer in May of
1936.
The decision to establish a second gene pool of this
founding herd at Fort Niobrara is considered
departmental or internal as no record of an Executive
Order, Congressional legislation, or Congressional intent
exists. Longhorn management over the years has
attempted to allow natural factors to influence and
maintain historic herd traits such as foraging ability,
milk production, calving ease, hardiness and protection of
young from predators. In addition, animals selected/
perpetuated by management have exhibited representative
conformation, horn structure, color variability, and
genetic diversity.
Pronghorn Antelope History
Pronghorn antelope were historically common on the
open prairies of the Sandhills through the late 1800’s;
however, by 1908, they were on the decline and observed
only in the western and northern portions of Nebraska.
Efforts to reintroduce pronghorn antelope to Fort
Niobrara NWR began in 1924 with the transfer of 10
animals from Nevada. The herd gradually increased to
17 animals in 1932, but then steadily decreased in
numbers. Attempts to establish a second herd of
antelope with the transfer of 34 animals in 1936 also
failed. Coyote predation is the primary factor influencing
the survival of pronghorn on Fort Niobrara. Pronghorn
have not been actively managed for in recent years.
Bighorn Sheep History
Bighorn sheep formerly occurred in Nebraska on the
Pine Ridge and adjacent badlands in the northwest part
of the state; in breaks along the Niobrara River east to
near Long Pine, Wildcat and Bighorn Ridges, and among
the rough buttes and canyons along the North Platte
River (Jones 1964). The species was extirpated on the
northern Great Plains in the 1920’s (Jones et al. 1983).
A feasibility study of reintroducing bighorn sheep to the
Refuge was completed in 1979; however, no action was
taken.
16 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Native Birds and Other Wildlife History
Management of native birds and other wildlife has varied
in intensity over the years with the greatest impact
indirectly or directly due to habitat management practices.
Prairie grouse, a term used to describe sharp-tailed grouse
and prairie chicken, were once plentiful on the Great
Plains, but by the late 1800’s, demand for birds in
eastern markets, development of efficient railway
shipping, and willingness of individuals to exploit a
seemingly unlimited resource, combined to dramatically
reduce prairie grouse populations. Extirpated in many
parts of their ranges, remnant populations of sharp-tailed
grouse and prairie chicken populations survived in the
Sandhills of Nebraska due to lack of intensive agriculture
altered habitat (Mitchell et al. 1984). Prairie grouse were
identified in one of the first quarterly reports of the
Refuge as native birds for management consideration
and emphasis. Over the years, management decisions and
actions have addressed prairie grouse needs to varying
degrees and included enlargement of the Refuge, feeding
stations, farming/food plot program, revision of grassland
haying and grazing programs in 1956, and population
monitoring. Prairie grouse surveys were initiated in 1956
as part of a multiple Refuge research project that
studied prairie grouse populations in relation to land use.
This study conducted from 1956 to 1965 in grasslands
south and east of the Niobrara River suggested that the
combination of rapidly increasing amounts of idle grassland
(one phase of revised Refuge haying and grazing program)
and favorable conditions for reproduction resulted in a
rapid increase in grouse numbers on Fort Niobrara
between 1956 and 1959.
The substitution of bison grazing for rest in approximately
4,200 acres beginning in 1963 did not depress the grouse
population; however, researchers questioned what levels
grouse populations would have reached if this grassland
block had been left idle. They believed that habitat
conditions (structure, species composition) which is
correlated to use (grazing, haying) determined the
average population size, but other factors (i.e., weather)
operated equally in good and poor habitat to cause
similar rates of annual population change. Annual counts
of displaying sharp-tailed grouse and prairie chicken
males conducted since the completion of this research
project support that relationship or effect. Prairie
grouse numbers have cycled with higher average
population levels occurring on the Refuge when forage
utilization [represented by Animal Use Months (AUM)]
by bison, longhorns, and elk was lower.
Other wildlife management activities completed over the
years include reintroduction of Canada geese (1914),
turkey (1925), and bobwhite quail (1956) and predator
control (coyote, raccoon, skunk, mink, bobcat, badger) in
the early years to enhance bird production. Also, periodic
control of prairie dogs was conducted. Descriptions in
Refuge reports suggest prairie dogs were found in the
headquarters area (current location), “east” habitat unit,
and possibly on the tableland north of the Niobrara
River. Presence/absence and statements of relative
abundance have been made for various groups of wildlife
species beginning with birds in 1913 and species lists
have been compiled and updated as needed.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 17
Public Use History
Since the Refuge’s establishment, recreational
opportunities on the Refuge have centered around
wildlife/wildlands observation and education. Early
management emphasized development of a foot trail and
motorized tour route to allow Refuge visitors the
opportunity to observe bison, elk, and Texas longhorns in
a wild setting. A museum constructed in the 1930’s was a
popular attraction for school groups and Refuge visitors
over the years. It contained information and interesting
photographs about the old military Fort Niobrara, a
collection and explanation of paleontological finds, a
collection of mounted birds and museum skins of
mammals, and a native grass display. The current visitor
center was constructed in the mid 1970’s and contains
various photographs, text, items, and computer/
interactive program interpreting Refuge history,
wildlife, wildlands, management and the military fort.
The Fort Niobrara Natural History Association has
various books, postcards, posters, and miscellaneous
wildlife related items for sale in the center.
Canoeing the Niobrara River was referred to as “increasing
in popularity” in 1972. However, the estimated 2,960
activity hours reported in 1972 in the Fort Niobrara
Wilderness Study was not considered excessive to
prevent inclusion of the River corridor in the area to be
designated as wilderness pursuant to criteria under the
Wilderness Act. Since then, the number of people
canoeing and tubing down the Niobrara River within
Fort Niobrara NWR has steadily increased. Beginning in
1993, outfitters and the Service recorded the number of
people canoeing and tubing the River through the
Refuge. This information showing the increase in floating
use is found in Figure 2. Increased River use has raised
concerns about disturbance to wildlife, impacts on
vegetation, the quality of experience for Refuge visitors,
and compatibility with the Wilderness Act. Management
began to address River recreation concerns through the
Environmental Assessment process in 1994 and efforts
are ongoing.
Figure 2
18 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Fort Niobrara National Wildlife Refuge
Purpose and Mission
Refuge Purpose
The Fort Niobrara NWR was created by Executive
Order 1461, January 11, 1912, (13,279 acres) “...reserved
and set apart for the use of the Department of Agriculture
as a preserve and breeding ground for native birds.”
Shortly after the Refuge’s establishment, J.W. Gilbert,
owner of a private game park at Friend, Nebraska, “offered
his buffalo, elk, and deer to the Federal Government for
preservation on a national reservation, with the
understanding that they would remain in Nebraska. The
acceptance of this offer was delayed through lack of a
suitable range in the State. On November 14, 1912,
however, an Executive Order was issued enlarging the
Fort Niobrara Game Preserve (then known as the
Niobrara Reservation) by adding thereto the area
formerly used as the parade grounds and headquarters
for the old military post. This made the total area of the
preserve about 14,200 acres. Mr. Gilbert’s offer was then
formally accepted by the Secretary of Agriculture, and
arrangements were made to transfer the animals to Fort
Niobrara.” (Ruth 1938) As a result, the Refuge is to be
managed (1) as a preserve and breeding ground for
native birds, and (2) for the preservation of bison and elk
herds representative of those that once roamed the
Great Plains.
Refuge Mission Statement
Preserve, restore, and enhance the exceptional diversity
of native flora and fauna and significant historic
resources of the Niobrara River Valley and Sandhills of
Nebraska for the benefit of present and future generations.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 19
Refuge Goals and Objectives
The Refuge planning team spent considerable time
defining habitat and other objectives to further describe
management actions needed to meet Refuge goals. They
are presented here to provide a logical step-down from
the broad purpose and mission statements to concrete
management decisions. They are also useful in this
document as a comparison with the following section on
alternatives. Ideally, each alternative should meet all
these objectives, in practice, some meet them more fully
than others. The preferred alternative (the CCP)
represents a course of action felt to meet them best.
Interrelationships of Goals and Objectives
The Refuge goals and objectives are presented separately
for ease of understanding and reference. They are,
however, not independent of each other. The goals and
objectives and the resources and activities discussed are
completely interrelated in spatial, ecological, and
management considerations.
The habitat goals and objectives are the primary criteria
which refuge managers will use to guide their efforts and
evaluate successes. Goals and objectives for habitat, wildlife,
threatened and endangered Species, interpretation and
recreation, and ecosystem provides additional information
for managers to refine specific actions and to help in
evaluating success of habitat management and use of the
Refuge by the public. In order for refuge managers to
achieve the mission of the refuge fully, these objectives
need to be understood holistically and applied in
combination, each being a critical part of the Refuge
mission.
Habitat Management
Goal: - Preserve, restore, and enhance the unique
diversity of upland and riparian plant communities and
associated water resources representative of the
physiographic regions described as Sandhills Prairie,
Mixed Prairie, Rocky Mountain Coniferous Forest,
Eastern Deciduous Forest, and Northern Boreal Forest
within the Northern Great Plains to ensure their rarity,
richness, and representativeness is sustainable into the
future.
Grasslands Objective:
Maintain the approximate 14,264 acres of Sandhill Prairie
and Mixed Prairie vegetation communities in early
through late successional stages to meet nesting,
brooding, feeding and/or protective cover requirements
of various grassland dependent birds, fenced animals and
other wildlife. Species composition on a minimum of 90
percent of the grasslands will be middle-to-late
successional stage and consist of 75-85 percent grasses,
5-10 percent grass-like plants, 5-10 percent forbs, and 5
percent shrubs (dominant species as described by Kaul
and Rolfsmeier 1993, Schneider et al. 1996, USDA Soil
Conservation Service 1983). Vegetation structure will
exist in a range of heights and densities with complete
visual obstruction to an average height of six inches in
the fall on a minimum of 50 percent of the grassland
acreage (Prose 1985; Prose 1987). A minimum of 50
percent of the grasslands will not have planned burning
or grazing during the native bird breeding season (April
15 - July 15).
Ponderosa Pine Savanna/Woodland Objective:
Manage the approximate 3,022 acres of Rocky Mountain
Coniferous Forest community to provide nesting,
brooding, feeding and/or protective cover requirements
of various native birds, fenced animals, and other wildlife.
Approximately 85 percent of the acreage will be maintained
as savanna and consist of 70 percent grasses, 10 percent
grass-like plants, 5 percent forbs, 5 percent shrubs, and
10 percent trees with the remaining acreage managed as
a woodland/forest. Species composition to manage for
will be based on descriptions by Kaul and Rolfsmeier
1993, Schneider et al. 1996, USDA Soil Conservation
Service 1983. A minimum of 50 percent of this community
type will not have planned grazing or burning during the
native bird breeding season (April 15 - July 15).
20 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Riparian Eastern Deciduous/Northern Boreal
Forest Objective:
Maintain and preserve the approximate 1,296 acres of
Eastern Deciduous Forest/Northern Boreal Forest
riparian community to provide nesting, brooding, feeding
and/or protective cover requirements of various native
birds and other wildlife. Species composition to manage
for will be based on descriptions by Kaul and Rolfsmeier
1993, and Schneider et al. 1996. Habitat diversity will be
enhanced by managing for a mix of trees (size and age
classes with a minimum of 10 percent mature trees), and
well-developed shrub and herbaceous layers. Strips of
woodlands (150 acres) in habitat units utilized by fenced
animals will be protected to the extent necessary to
ensure regeneration. A minimum of 50 percent of this
community type will not have planned grazing or
burning during the native bird breeding season (April 15
- July 15).
Niobrara River and Associated Wetlands Objectives:
Restore and maintain the approximate 375 acres of the
Niobrara River and associated wetlands with emphasis
on maintaining streambed quality, stream bank stability,
water flow, water temperature, and quality. Use existing
data on the Niobrara River water flow, quality (sediment,
nitrate, pollutants) and water temperature as minimum
baseline levels and repeat at five year intervals. Ensure
vegetation adjacent to the River and streams are
adequate to minimize erosion, dissipate water energy and
trap sediments.
Invader/Exotic Species Objective:
Prevent additional exotic vegetational species from
becoming established and reduce the occurrence,
frequency and stand density of existing invader/exotic
vegetation. Target level of combined total of invader/
exotics is less than 5 percent of species composition.
Invader/exotic species to manage include leafy spurge,
purple loosestrife, Canada thistle, Kentucky bluegrass,
smooth brome, downy brome, sweet clover, reed canary
grass, eastern red cedar, Russian olive, and phragmites.
Wildlife
Goals: Preserve, restore, and enhance the ecological
diversity and abundance of migratory and resident
wildlife with emphasis on native birds.
Maintain representative breeding herds of nationally
significant animals under reasonably natural conditions.
Prairie Grouse Objective:
Maintain a five-year average density of one prairie grouse
lek/1.4 sq. mile with an annual target of 100 sharp-tailed
grouse and 65 prairie chicken breeding males in the
grasslands (approximately 12,271 acres) south and east
of the Niobrara River (USFWS, unpublished Refuge
data).
Native Bird Objective:
Maintain or increase breeding and migration use on Fort
Niobrara by Species of Management Concern, U.S. Fish
and Wildlife Service, Region 6, including northern
harrier, ferruginous hawk, upland sandpiper, long-billed
curlew, burrowing owl, short-eared owl, red-headed
woodpecker, loggerhead shrike, dickcissel, lark bunting,
grasshopper sparrow, chestnut-collared longspur,
eastern meadowlark, and other habitat sensitive migratory
birds such as western meadowlark, bobolink, clay-colored
sparrow, belted kingfisher, willow flycatcher,
and yellow-breasted chat. Use existing data as minimum
baseline levels and implement monitoring procedures that
provide an index to overall species richness/diversity and
document population trends of selected species over a
five year period.
Bison and Elk Objective:
Preserve and maintain breeding populations of bison and
elk with age and sex composition approximating historic
herds. Implement management actions that maintain or
increase levels of genetic variability to assure viable,
sustainable populations according to accepted standards
of conservation biology (Berger 1996, Berger and
Cunningham 1994).
Rocky Mountain Bighorn Sheep Objective:
Reintroduce Rocky Mountain bighorn sheep to the
Refuge to restore an indigenous species into its historic
range.
Prairie Dog Objective: Maintain the existing 20 acre
black-tailed prairie dog town in the exhibition habitat unit
and establish a colony at another location to enhance
Refuge biological diversity. The goal for prairie dog
acreage on the Refuge will be at least 400 acres.
Other Indigenous Wildlife Objective: Ensure the
diversity and abundance of other indigenous mammals,
reptiles, amphibians, fish, and invertebrates continues.
Use existing data as minimum baseline levels and
monitor periodically to document population trends.
(Bogan, 1995)
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 21
Threatened and Endangered Species
Goal: Contribute to the preservation and restoration of
threatened and endangered flora and fauna that occur or
have historically occurred in the area of Fort Niobrara
NWR.
Endangered Plant Objective:
Evaluate the Refuge for blowout penstemon habitat. If
suitable habitat exists, establish plants in at least two
site/
Endangered Wildlife Objective:
Maintain a minimum of 10 percent of the woodlands within
the Niobrara River corridor in mature or old-growth
timber with an open and discontinuous canopy to provide
undisturbed roosting habitat for wintering populations
of bald eagles. Monitor and document eagle use on the
Refuge and mortality in the area.
Whooping Crane, Piping Plover, Peregrine Falcon,
and Least Tern Objective:
Maintain the shallow braided River habitat above
Cornell Dam for use by whooping cranes, piping plovers,
and least terns during migration. Keep use areas free
from human disturbance. Monitor and document
migration use by whooping cranes, piping plover, least
terns, and peregrine falcons as it occurs.
American Burying Beetle Objective:
Determine if American burying beetles inhabit the
Refuge. Implement appropriate management strategies
if a population exists.
Interpretation and Recreation
Goal: Provide the public with quality opportunities to
learn about and enjoy the ecological diversity, wildlands,
wildlife, and history of the Refuge in a largely natural
setting and in a manner compatible with the purposes for
which the Refuge was established.
Interpretation, Wildlife Observation and Photography,
and Environmental Education Objectives:
Provide visitors with quality interpretation, environmental
education, wildlife observation and photography
opportunities.
Ensure a safe, quality River floating experience on the
Wild and Scenic Niobrara River that follows the standards
of the National Wild and Scenic Rivers Act, National
Wildlife Refuge System and maintains the integrity of
the Fort Niobrara Wilderness Area.
Protect and interpret Refuge cultural and paleontological
sites.
Fishing Objective:
Provide opportunities for warm water fishing in sections
of the Niobrara River and tributaries.
Hunting Objective:
Offer a limited, strictly controlled hunting opportunities
for elk and bighorn sheep to facilitate removal of herd
excess.
22 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Ecosystem (Partner)
Goal: Promote partnerships to preserve, restore, and
enhance a diverse, healthy, and productive ecosystem of
which the Fort Niobrara and Valentine NWR’s are part.
Ecosystem Objectives/Strategies for the Fort
Niobrara/Valentine NWR Complex:
Support the National Scenic River and Niobrara River
Council to meet desired future conditions of the Niobrara
Scenic River.
Support the Sandhills Management Plan through
Partners for Wildlife Program to enhance wildlife
habitat on private lands.
Support use of Refuges as research areas for relevant
natural resource studies. Conduct applied research on
management of threatened and endangered plant and
animal populations.
Develop an effective outreach program that results in
two wildlife habitat/public use projects completed
annually with non-governmental organizations.
Develop greater cooperation with state and local
governments that result in completion of at least two
projects annually. Projects are to benefit area wildlife
resources or enhance public use opportunities such as
fish rearing in Refuge ponds.
Use the CCP document to help in marketing Refuge
needs through grant writing and networking with other
entities.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 23
Alternatives, Including the Proposed Action
This Comprehensive Conservation Plan developed four
alternatives for management of Fort Niobrara National
Wildlife Refuge which include Current Management (No
Action), Historical, Intensive Wildlife Management, and
Modified Historical (Preferred Alternative). These
alternatives are summarized in a matrix (see Appendix
A) and discussed in detail in upcoming pages of the
document. Two alternatives, maximization of economic
uses and placing the Refuge in custodial status, were
briefly considered but discarded because they violate the
National Wildlife Refuge System Improvement Act of
1997 and do not meet the mission and goals of Fort
Niobrara and the National Wildlife Refuge System.
Alternative A. Current Management
(No Action)
Grassland/Fenced Animal Management
Approximately 350 bison, 70 elk, and 250 Texas longhorns
are managed under reasonably natural conditions to
assure a genetically sound breeding population, provide
appropriate viewing opportunities for public enjoyment, and
support scientific study feasible within the management of
representative herds. Bison and elk herd structures (sex
and age ratios) approximate free ranging herds. In
accordance with Service policy, bison, elk, and longhorn
numbers above sustainable winter population levels are
sold or donated annually. Refuge receipts from 1997
excess bison and longhorn auctions totaled $179,510.
Introductions to the elk and Texas longhorn herds are
accomplished periodically to maintain or improve genetic
diversity.
Maintaining long-term population genetic variability of the
bison, elk and longhorn herds, which affects population
fitness or health, is addressed through population size,
sex and age ratio, and addition of animals from other
populations. Elk and longhorn herds are maintained
below minimum population levels, therefore, periodic
introductions of animals from other populations are
accomplished to minimize inbreeding. The bison herd at its
current level and sex ratio provides the effective population
size required for maintaining levels of genetic variability,
without induced immigration, that commensurate with
accepted standards of conservation biology (Berger 1996,
Berger and Cunningham 1994).
Biological monitoring of the grasslands and herds is the
minimum required to document current habitat condition
and guide management. Range condition surveys and
suggested initial stocking rates of the Refuge are completed
by the USDA Natural Resources Conservation Service
every 5 to 10 years. Visual obstruction reading transects
are accomplished periodically to document vegetation
structure. Fenced animal monitoring includes monthly
population surveys, annual disease testing of excess
animals, and infrequent (7 to 10 years) genetic testing.
Detailed breeding records of longhorns are also maintained
for genetic management purposes.
Habitat management strategies are implemented that
maintain or improve grassland health and provide forage
for bison, elk, and Texas longhorns. Approximately 50
miles of interior fence and 50 miles of boundary fence
(perimeter, river corridor, road right-of-way) are used to
control timing of grazing and access/movement of the
fenced animals. Grazing strategies (time of year, intensity,
length) implemented in the estimated 40 habitat units
vary according to species management needs and
behavior, natural use patterns/seasonal movements of
animals in pre-settlement times, staffing, water, climatic
conditions, available Animal Use Months (AUM), range
site and condition. Large ungulate herds consume and/or
remove by trampling an estimated 8,400 AUMs of forage
a year which is approximately 40 percent of the total
plant production, leaving approximately 60 percent of the
vegetation for plant vigor and use by other wildlife
(Waller et al. 1986, USDA Natural Resources Conservation
Service 1996). Texas longhorns, exhibition herds, and
government horses are supplemented during the winter
as conditions warrant with approximately 600 tons of
prairie hay harvested from Valentine NWR. Other
annual management actions include one or more years of
rest on approximately 4 percent of the acreage, no
planned grazing or burning on approximately 30 percent
of the acreage during the native bird breeding season,
prescribed burning of approximately 100 acres to
invigorate native plants or control cedar invasion, and
suppression of all wildfires.
24 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Riparian and Woodland Management
Management of the Niobrara River, numerous streams,
and associated riparian habitat emphasizes maintenance
of current conditions. Nearly all of the Niobrara River
and associated riparian habitat are fenced to control
access of bison, elk, and Texas longhorns except the
tributary streams in the wilderness area. The Cornell
Dam is maintained to provide shallow-braided river and
sandbar habitat upstream. Twelve ponds formed by
damming tributary streams are held at full capacity
throughout most of the year for use by waterfowl and
other birds, fenced animals, and fish rearing under
cooperative agreement with the Nebraska Game and
Parks Commission. Periodic drawdowns of these
impoundments are accomplished for aquatic vegetation
control and structure repair. Breached impoundments in
the wilderness area are being allowed to return to a natural
state. Several natural impoundments have been created by
beavers. Research of historic water rights is ongoing.
Limited monitoring of stream flow and contaminants is
accomplished periodically.
Woodland management is minimal and includes control
of cedars, exclusion of fenced animals, and removal of
dead or downed timber presenting a safety or fire hazard
or threatening facilities.
Threatened and Endangered Species
Use by bald eagles, whooping cranes, and other federally
listed species on the Refuge is documented through
periodic surveys. Required habitat conditions are
maintained. Protective actions are implemented as
needed.
Native Birds and Other Wildlife
Management strives to maintain the existing diversity
and abundance of various native birds and other wildlife
by providing a mosaic of habitat conditions. A 20-acre
prairie dog colony is maintained in the exhibition habitat
unit. A maternity colony of big brown bats (estimated 200
individuals) inhabits the historic north barn during the
late spring and summer with no management efforts
made to alter their occupancy.
Biological monitoring of native birds and other wildlife is
carried out to the greatest extent possible with current
staffing and management priorities. Prairie grouse lek
counts are conducted each spring with data available for
comparison dating back to 1956. A breeding bird survey
route established in 1992 is conducted by staff or
volunteers. Staff cooperate with the Nebraska Game and
Parks Commission by completing the annual Spring
Coordinated Sandhill Crane Survey, Mid-December
Goose Survey, Mid-winter Waterfowl Survey, Winter
Turkey Survey, and Summer Turkey Brood Survey. A
general wildlife observation log is maintained to document
presence/absence and relative numbers of various
species.
Exotic and Invading Species
Exotic and invading vegetation species are controlled
through an integrated pest management approach.
Various biological agents are being used in the ongoing
effort to reduce the occurrence of purple loosestrife
along the Niobrara River. Four small patches (less than
one-eighth acre each) of leafy spurge and two larger
patches (one acre each) are controlled through mechanical
and limited chemical applications. Small areas of exotic
cool season grasses exist at disturbed sites (i.e., road
ditch, old farm ground, cattle feed areas) and are being
controlled with grazing and prescribed burning. Limited
mechanical control and prescribed burning of eastern
red cedar is being implemented. Reed canary grass is
common along the River, however, no control measures
are in place.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 25
Public Use
Based on general observations and data collected in the
visitor center and on the River, an estimated 100,000
people visit the Refuge annually for wildlife/wildland
observation, photography, interpretation/education,
picnicking, hiking, and floating on the Niobrara River.
The visitor center, with a variety of over 20-year-old
displays interpreting the history of the military fort,
area wildlife and habitat, and Refuge management, is
open Monday through Friday year-round and weekends
Memorial Day to Labor Day with actual use recorded at
approximately 6,000 visits. The Fort Falls nature trail is
approximately one mile long and educates the hiker
through a brochure describing the different vegetation
communities and associated wildlife found in this unique,
biologically diverse area. The 15-stop self-guiding auto
tour route is located in the exhibition habitat unit and
provides information on the prairie dog town, bison, elk,
Texas longhorns, and other prairie inhabitants. Other
interpretive facilities under some phase of development
include a kiosk at the canoe launch with education panels
titled “Niobrara Valley,” “Welcome to Fort Niobrara,”
“Canoeing the Niobrara River”; the observation deck
above Fort Falls includes education panels titled
“Prairie Oasis,” “Fort Falls,” “Sand, Rock & Water”;
and an interpretive panel to be located in the exhibition
habitat unit providing information on elk and prairie
dogs. Interpretation and environmental education
services are provided when staff are available and include
talks or guided tours for school groups (elementary
through college level), scouts, 4-H and special projects
(i.e., Old West Days Trail Ride). The public is invited to
observe fall roundups and auctions of bison and longhorns,
participate in Migratory Bird day activities, and other
Refuge programs.
The Niobrara River is open to fishing with a fishing plan
expected to be completed in the near future. Angler
opportunities are limited with most fishing occurring
immediately below Cornell Dam. Kid’s Fishing Day is
held annually in September and includes trout, catfish,
and bluegill fishing in the corral pond, fish identification
and casting contests, cleaning, and cooking. The event is
a cooperative effort between the Nebraska Game and
Parks Commission (NG&PC), Niobrara Natural History
Association, volunteers, and the Refuge staff.
The Bur Oak Picnic area is located along the Niobrara
River at the Refuge entrance. Tables and rest rooms are
used mainly by people visiting the Refuge for River
floating or wildlife observation.
The Refuge is closed to hunting.
The Refuge is closed to recreational trapping. Trapping for
depredation or damage control purposes is accomplished
as necessary through force account or a special use
permit in accordance with State and Service regulations.
Floating the Niobrara River with canoes or tubes is a
popular recreational activity on the Refuge. Over 18,000
vessels carrying more than 30,000 people were put in the
Niobrara River from the Refuge launch facility in 1997.
Most of the canoeing and tubing takes place during June
(18 percent), July (37 percent), and August (40 percent),
with Saturday morning being the most congested period.
During an average Saturday in July 1997, approximately
1,200 people launched 684 vessels into the River from
8-11 a.m. which is one vessel launch every 16 seconds.
Due to the alarming increase of River use documented
in outfitter reports from 1993-1997, crowding and
compatibility with wilderness designation and wildlife
needs, Refuge management has in place a moratorium on
new outfitters. Also, the existing eleven outfitters have
been informed that any expansion of their business on
the Refuge is at their own risk, and River use on the
Refuge should be redistributed to week days. The
Refuge has been selected by the Service as a User Fee
Demonstration Area due to the volume of River use,
increasing cost of maintaining the launch area and public
rest rooms, and the need for additional law enforcement.
After receiving input from canoe and tube outfitters,
National Park Service, Nebraska Game and Parks
Commission, Natural Resources District, and other
interested parties, the Refuge staff set up a fee and
collection system which is thought to be fair and simple.
The first year of the user fee program was 1998. Monitoring
of public use levels on the Niobrara River and affects to
Refuge wildlife/wildlands and wilderness and determination
of acceptable use/levels are not being accomplished due
to lack of funding and staffing.
26 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Cultural and Paleontological Resources
Limited cultural resource studies have been conducted
by the U.S. Fish and Wildlife Service, National Park
Service, and various research institutions to locate and
describe and evaluate cultural and paleontological
resources. Less than 1 percent of the Refuge has been
inventoried for these resources. The remains of old Fort
Niobrara, including the north barn, have been determined
eligible for Nomination to the National Register of
Historic Places. Twelve of the 21 Refuge buildings are
over 50 years old and need to be evaluated for historic
significance. Minimal interpretation of the various
cultural resources is available.
Partnerships
The Refuge works with a variety of organizations and
individuals on natural resource projects including private
landowners (Partners For Wildlife program); Natural
Resources Conservation Service (Refuge grazing
program, Wetland Reserve Program); Farm Service
Agency (easement program); Nebraska Game and Parks
Commission (wildlife surveys, fish rearing in Refuge
ponds); Cherry County Extension Service (youth
programs, research); local law enforcement agencies
(enforcement, youth rehabilitation); Inter Tribal Bison
Cooperative (bison donations and management); zoos,
conservation districts and other non-profit qualifying
entities (bison, elk, and longhorn donations); veterinarians
for the State of Nebraska, other lower 48 states, and U.S.
Department of Agriculture (disease and health issues,
tests, research); Rocky Mountain Elk Foundation
(interpretative panels, animal transfers); Fort Niobrara
Natural History Association (Refuge projects, sale of
books, postcards, posters, etc.); Valentine Chamber of
Commerce (community projects); Niobrara Council
(River management); Texas Longhorn Breeders
Association of America and International Texas Longhorn
Association (longhorn pedigree, registration); The
Nature Conservancy (fire management, research); Rural
Fire Protection Districts (wildfire suppression on-and
off-Refuge); and various universities (research).
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 27
Alternative B. Historical
Grassland/Fenced Animal Management
A major feature of the historical alternative is to maintain
the bison herd at 350 animals. The herd will be managed
as a closed herd with no introductions from other herds
in order to maintain specific genetic characteristics of
this herd. The existing elk herd would be maintained at
70 animals. Bighorn sheep will be reintroduced and
allowed to expand to 50 animals. Herd numbers are after
sale or wintering populations (breeding herd size).
Bighorn sheep would be restored as a component of the
historic assemblage of the resident wildlife formally
found on the Refuge area. The present Texas longhorn
herd will be removed and longhorn cattle will not be
maintained on the Refuge in the future. An attempt will
be made to place the herd with other responsible entities
that will maintain the herd intact. Large ungulate herds
will consume and/or remove by trampling an estimated
5,610 AUMs of forage a year which is approximately 27
percent of total plant production, leaving approximately
73 percent of the vegetation for plant vigor and use by
other wildlife (Waller et al. 1986, USDA Natural Resources
Conservation Service 1996). Exhibition herds and
government horses will be supplemented during the
winter as conditions warrant with approximately 40 tons
of prairie hay harvested from Valentine NWR.
The area available for use by wildlife herds will be
expanded by the addition of 8-11 miles of fence to enclose
nearly the entire Refuge and allow bison, elk, and
bighorn sheep access to most of the native prairie and
ponderosa pine savannah habitats. It is anticipated that,
at least initially, bighorn sheep will require a separate
enclosure.
As much interior fence as possible will be removed so
that herds will have more natural and open movement
patterns. The Service will use prescribed fire, windmills
and natural water sources, and salt to direct herd area
use. The purpose is to provide a mosaic of heavily used,
moderately used, and unused areas which will
accommodate native grassland birds and other wildlife
adapted to various grassland habitat conditions. The
prescribed fire program will increase with up to 2,700
acres treated annually to invigorate native prairie,
influence big game use, control cedars, encourage
regeneration of unique forest types, and simulate historic
fire intervals (Lenhouts 1995). Other annual management
actions include one or more years of rest on approximately
10 percent of the acreage and suppression of all wildfires.
Winter grazing of the Wilderness Area will be shortened
2-4 weeks to stay under the carrying capacity of the unit.
Assured levels of rest will be nonexistent during the
native bird breeding season.
Maintaining long-term population genetic variability of
the bison, elk, and bighorn sheep herds, which affects
population fitness or health, will be addressed through
population size, sex, and age ratio, and addition of animals
from other populations. Elk and bighorn herds will be
maintained below minimum population levels; therefore,
periodic introductions of animals from other populations
will be accomplished to minimize inbreeding. The bison
herd at its current level and sex ratio provides the
effective population size required for maintaining levels
of genetic variability, without induced immigration, that
commensurate with accepted standards of conservation
biology (Berger 1996, Berger and Cunningham 1994).
Sufficient monitoring of the herds to maintain current
age and sex ratios, herd health, populations levels at or
below maximum numbers will be completed. Surplus
animals will be disposed of through traditional annual
sales and donations and limited control hunts.
28 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Riparian and Woodland Management
Cornell Dam and all man-made tributary impoundments
will be removed allowing these areas to return to a
natural state. Nearly all of the River and associated
habitats will continue to be fenced to control access by
bison and elk.
Woodland management will increase and focus on cedar
reduction and regeneration of native plant communities
through the use of prescribed fire. Mature cottonwoods
will be maintained in the River corridor to ensure
wintering bald eagles have adequate roosting habitat.
Threatened and Endangered Species
The Refuge will conduct an American burying beetle
survey. The Refuge will also continue monitoring bald
eagle and peregrine falcon use. It is anticipated that
whooping crane and piping plover use will cease to occur
as braided habitat associated with the Dam will gradually
be lost as the River returns to natural conditions.
Native Birds and Other Wildlife
Native bird and other wildlife management under a
historic regime will include increased monitoring and
emphasis in planned habitat management. Management
actions that favor species of management concern will be
implemented to the extent possible. For example, the
prairie dog colony will be allowed to expand to 400 acres
which will benefit burrowing owls, a species of management
concern, and a variety of other birds, mammals, reptiles,
and insects. Prairie dogs will be controlled in areas
where they present a safety hazard or conflict with
management objectives.
Alternative summer habitat will be provided for the bat
colony currently using the historic barn and the colony
relocated. The barn will then be appropriately sealed to
prevent further degradation.
Exotic and Invading Species
The Service will continue its integrated pest management
program. A combination of biological, mechanical, and/or
chemical control methods will continue to be used to
reduce the presence of purple loostrife and leafy spurge.
Cedar control efforts will increase through the use of
prescribed fire and mechanical methods. Management
efforts will be implemented to reduce the presence of
invasive cool season grasses, sweet clover, Russian olive,
and other exotic/invasive species.
Public Use
River use will be returned to 1993 levels. This will be
accomplished by continuing the current restrictions on
permittees, and by restricting the number of launches to
all users to 1993 levels. In addition, bans on the possession
of alcohol, boom boxes, water balloons and water cannons
will be implemented. Also, no more than five tubes will
be allowed to be tied together.
Fishing will be allowed on the Niobrara River and
Minnichaduza Creek. Special events, such as youth
fishing day, will continue.
The Service will initiate and periodically conduct limited
Refuge hunts. Hunts are to help with herd stabilization
and will not replace roundups as the major means of
controlling big game populations.
The Service will seek funds to construct and staff a new
environmental education/visitor center to improve
environmental education and interpretation of wildlife,
cultural, and historic resources on the Refuge. A site
plan, being developed, will include a concept design for an
environmental education/visitor center. The site plan will
also contain suggestions for improving the existing visitor
center until such time as a new center is constructed.
Cultural and Paleontological Resources
The Service will develop a cultural resource/paleontological
management plan. The plan will include a Refuge-wide
cultural resource inventory and paleontological resource
inventory strategies. It will also include increased
interpretation, protection, and education about the
cultural and paleontological resources on the Refuge.
Partnerships
The Service will continue all existing cooperative
activities with other agencies currently in place, with the
exception of fish rearing in impoundments on tributaries
of the Niobrara River as these will be removed. The
Service will seek to establish additional partnerships and
outside funding sources for bison management.
Monitoring
The Service will revise the monitoring plan. At a minimum
the following monitoring will be conducted:
P wildlife herd monitoring sufficient to maintain age and
sex ratios, health, genetic diversity, and annual excess
removal.
P native bird species monitoring to supply trend
information on prairie grouse, species of management
concern, grassland neotropical migrants, biodiversity
trend indexes.
P monitor habitat parameters (i.e., vegetation composition
and structure, tree canopy, etc.) sufficient to ensure that
habitat objectives are being measured and determined
successful according to a Habitat Management Plan and
the adaptive management process.
P federally listed species monitoring, American burying
beetle survey.
P monitoring fire effects as part of the prescribed
burning program.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 29
Alternative C.
Intensive Wildlife Management
Grassland/Fenced Animal Management
A major feature of the intensive wildlife management
alternative is to reduce the bison herd to 225 animals. The
herd will be managed as an open herd with introductions
from other Department of Interior herds in order to
maintain genetic diversity within the herd. The existing
elk herd would be maintained at 50 animals. Herd numbers
are after sale or wintering populations (breeding herd size).
Bighorn sheep will be reintroduced and allowed to
expand to 50 animals. Bighorn sheep would be restored
for the purpose of restoring this species as a component
of the historic assemblage of the Refuge. The present
Texas longhorn herd will be reduced to 125. Cows will
number approximately 100, with 20 bulls and 5 steers.
Longhorn introductions/exchanges to maintain genetic
diversity of the herd will continue according to Service
policy. Sufficient monitoring of herds will be accomplished
to maintain herd structures, animal health, and populations
at or below maximum levels. Surplus animals will be
disposed of through traditional annual sales and donation.
Limited, controlled hunts may be used to remove
surplus big game.
Maintaining long-term population genetic variability of
the bison, elk, bighorn sheep, and longhorn herds, which
affects population fitness or health, will be addressed
through population size, sex, and age ratio, and addition
of animals from other populations. All herds will be
maintained below minimum population levels; therefore,
periodic introductions of animals from other populations
will be accomplished to minimize inbreeding. Induced
immigrations along with maintaining historic herd
structures will provide the effective population size
required for maintaining levels of genetic variability that
commensurate with accepted standards of conservation
biology (Berger 1996, Berger and Cunningham 1994).
Large ungulate herds will consume and/or remove by
trampling an estimated 5,115 AUMs of forage a year
which is approximately 24 percent of total plant production,
leaving approximately 76 percent of the vegetation for
plant vigor and use by other wildlife (Waller et al. 1986,
USDA Natural Resources Conservation Service 1996).
Texas longhorns, exhibition herds, and government
horses will be supplemented during the winter as
conditions warrant with approximately 250 tons of prairie
hay harvested from Valentine NWR. Interior fence will
be retained in the current configuration and units will be
managed under a deferred grazing rotation. Longhorns
may be used in the Valentine NWR habitat management
program to further increase habitat management
flexibility on Fort Niobrara NWR. Some additional big
game fence may be needed for initial introduction efforts
of bighorn sheep. Other annual habitat management
actions will include one or more years of rest on at least
10 percent of the acreage, no planned grazing or burning
on approximately 50 percent of the acreage during the
native bird breeding season, suppression of all wildfires,
and prescribed burning of approximately 500 - 1000 acres
to invigorate native plants, reduce cedars, and encourage
regeneration of woodlands.
Riparian and Woodland Management
Habitat associated with the Niobrara River and numerous
tributary streams will be maintained or enhanced. Cornell
Dam will be maintained to provide shallow-braided river
and sandbar habitat upstream. Functional tributary
impoundments will be maintained and non-functional
impoundments that will benefit native birds and fish will
be restored. Nearly all of the River and associated
habitat will be fenced to control access by bison, elk, and
Texas longhorns.
Efforts to improve the woodland community will focus on
reduction of cedars and regeneration of native woodland
species through the use of prescribed fire and other
forest management practices. Management will ensure
that an adequate number of mature trees are maintained
for winter roosting use by bald eagles.
30 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Threatened and Endangered Species
The Service will conduct an American burying beetle
survey and will also continue monitoring bald eagle and
peregrine falcon, whooping crane, and piping plover use.
Blowout penstemon will be introduced into suitable
habitat.
Native Birds and Other Wildlife
Native birds will receive greater management emphasis
with actions implemented to meet habitat requirements
of various species. Monitoring will increase to document
native bird response to habitat management.
The 20-acre prairie dog colony in the exhibition habitat
unit will be maintained and a second colony of prairie
dogs will be established in suitable habitat and allowed to
expand to approximately 380 acres. Prairie dogs will be
excluded from areas where their presence creates a
safety hazard or conflicts with management objectives.
Alternative roosting habitat will be provided for the bat
colony currently located in the historic north barn. The
north barn will then be appropriately sealed to prevent
further degradation.
Exotic and Invading Species
The Service will continue its integrated pest management
program. A combination of biological, mechanical, and/or
chemical control methods will continue to be used to
reduce the presence of purple loosestrife and leafy spurge.
Cedar control efforts will increase through the use of
prescribed fire and mechanical methods. Management
efforts will be implemented to reduce the presence of
invasive cool season grasses, sweet clover, Russian olive,
and other exotic/invasive species.
Public Use
The Service recognizes that an overcrowding situation
exists on the Niobrara River in the Wilderness Area of
the Refuge on summer weekends as a result of people
floating the River. River use will be capped at 1998 levels
and restrictions on number of outfitters will continue.
The Service will address the crowding situation by
determining acceptable peak use levels and implementing
management strategies that fairly distribute reduced
floating opportunities among outfitters and the general
public. In addition, bans on the possession of alcohol,
boom boxes, water balloons and water cannons will be
implemented. No more than five tubes will be allowed to
be tied together, and River floating will only be allowed
downstream of Cornell Dam.
Wildlife/wildland observation opportunities will be
increased with the addition of an access point for hiking and
horseback riding in the Wilderness Area, establishment of
a concession to take people to view the bison herd, and
construction of a trail to a scenic overlook of the
Niobrara canyon.
The Service will allow fishing on the Niobrara River and
Minnichaduza Creek. Special events, such as youth
fishing day, will continue.
The Service will initiate and conduct limited Refuge
hunts for elk and bighorn sheep.
The Service will seek funds to construct and staff a new
environmental education/visitor center to improve
environmental education and interpretation of wildlife,
cultural, and paleontological resources on the Refuge. A
site plan, being developed, will include a concept design
for an environmental education/visitor center. The site
plan will also contain suggestions for improving the
existing visitor center until such time as a new center is
constructed.
Cultural and Paleontological Resources
The Service will develop a cultural resource/paleontological
management plan. The plan will include Refuge-wide
cultural resource inventory and paleontological resource
inventory strategies. It will also include increased
interpretation, protection, and education about the
cultural and paleontological resources on the Refuge.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 31
Partnerships
The Service will explore partnerships with others
concerning bison management. Existing cooperative
efforts will be maintained for fire suppression, excess
bison for the Inter Tribal Bison Council, participation in
the Niobrara council, and other common coordination
efforts with other agencies and landowners. The Service
will seek to increase partnerships with others.
The Service will seek to develop outside funding sources.
Examples would be construction of the environmental
education center, big game fence, paleontological
inventory, and possible acquisition of nondevelopment
easements on the Refuge’s north and west borders.
Monitoring
The Service will revise the monitoring plan. At a minimum
the following monitoring will be conducted:
P wildlife herd and longhorn herd monitoring sufficient
to maintain age and sex ratios, health, genetic diversity,
and annual excess removal
P native bird species monitoring to supply trend
information on prairie grouse, species of management
concern, grassland neotropical migrants, and
biodiversity trend indexes
P monitor habitat parameters (i.e., vegetation composition
and structure, tree canopy, etc.) sufficient to ensure that
habitat objectives are being measured and determined
successful according to a Habitat Management Plan and
the adaptive management process.
P research/monitoring on Refuge resources and human
interactions from River floating will be conducted to
determine carrying capacity of the River.
P water quality parameters on the Niobrara River
P federally listed species monitoring, American burying
beetle survey
P monitoring fire effects as part of the prescribed
burning program
32 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Alternative D.
Modified Historical (Preferred Alternative)
Grassland/Fenced Animal Management
Approximately 200-300 bison and 70-100 elk will be
managed on the Refuge under reasonably natural
conditions. Bighorn sheep will be reintroduced to the
Refuge and allowed to grow to a herd of 50. Texas
longhorns will no longer be managed at Fort Niobrara.
In accordance with Service policy, animal numbers above
winter population levels will be transferred to other
refuges, sold, or donated annually. Limited Refuge hunts
may be used as a tool periodically to reduce the bighorn
sheep and elk populations. Sex and age ratios of the
herds will approximate historic free-ranging herds.
Bison, elk, and bighorn sheep populations will be managed
as “open” herds with introductions or exchanges made
periodically to maintain the genetic integrity of the herds
and minimize the negative effects of inbreeding. Sufficient
monitoring of the herds will be accomplished to ensure
genetics and health of the animals are maintained and
herd levels are at or below desired numbers.
Bison, elk, and bighorn sheep herds will have access to
nearly all of the grasslands and ponderosa pine savannah
habitats with the addition of 8-11 miles of big game fence.
As much interior fence as possible will be removed so
that herds have a more natural and open movement
pattern. Prescribed fire, water, and salt will be used to
influence habitat use. The prescribed fire program will
increase with up to 1,000 acres treated annually to
invigorate native prairie, influence big game use, control
cedars, and encourage regeneration of unique forest
types. Other annual management actions will include one
or more years of rest on approximately 10 percent of the
acreage and suppression of all wildfires. A Habitat
Management Plan will be developed and an adaptive
management approach will be used to measure
achievement toward the grassland habitat objectives.
Large ungulate herds will consume and/or remove by
trampling an estimated 3,500 - 5,000 AUMs of forage a
year which is approximately 17 to 24 percent of total
plant production, leaving approximately 76 to 83 percent
of the vegetation for plant vigor and use by other wildlife
(Waller et al. 1986, USDA Natural Resources Conservation
Service 1996). Exhibition herds and government horses
will be supplemented during the winter as conditions
warrant with approximately 40 tons of prairie hay
harvested from Valentine NWR.
Maintaining long-term population genetic variability of
the bison, elk, and bighorn sheep herds, which affects
population fitness or health, will be addressed through
population size, sex, and age ratio and addition of animals
from other populations. All herds will be maintained
below minimum population levels; therefore, periodic
introductions of animals from other populations will be
accomplished to minimize inbreeding. Induced
immigrations along with maintaining historic herd
structures will provide the effective population size
required for maintaining levels of genetic variability that
commensurate with accepted standards of conservation
biology (Berger 1996, Berger and Cunningham 1994).
Riparian and Woodland Management
The Niobrara River, numerous tributary streams, and
associated riparian habitat will be maintained. Cornell
Dam will be maintained to provide shallow-braided river
and sandbar habitat upstream. Twelve ponds formed by
damming tributary streams will continue to be held at
full capacity throughout most of the year for use by
waterfowl and other birds, bison and elk, and fish rearing
under cooperative agreement with the Nebraska Game
and Parks Commission. Breached impoundments in the
wilderness area will be returned to their natural state.
Nearly all of the River and associated habitat will
continue to be fenced to control access by bison, elk and
bighorn sheep.
Efforts to improve the woodland community will focus on
reduction of cedars and regeneration of native woodland
species through the use of prescribed fire and other
forest management practices. Management will ensure
that an adequate number of mature trees are maintained
for winter roosting use by bald eagles.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 33
Threatened and Endangered Species
In addition to continuing to provide for wintering bald
eagle use as mentioned above, the Service will conduct
an American burying beetle survey, introduce blowout
penstemon into suitable habitat for this species, and
continue to provide periodic migration habitat for
whooping cranes, plovers, and terns in the braided River
channel habitat upstream of Cornell Dam.
Native Birds and Other Wildlife
In addition to implementing habitat management actions
that improve and maintain the diverse native plant
communities, the Service will consider and implement
management regimes that meet various native bird
requirements. Biological monitoring of native birds and
other wildlife will increase to better document population
trends and effects of management.
Refuge acreage inhabited by prairie dogs will increase to
at least 400 acres with the establishment of a second
colony in suitable habitat. Prairie dogs will be excluded
from areas where their presence creates a safety hazard
or conflicts with management objectives.
Alternative summer roosting habitat will be provided for
the maternity colony of big brown bats currently using
the historic barn. The barn will then be appropriately
sealed to prevent further degradation.
Exotic and Invading Species
The Service will continue its integrated pest management
program. A combination of biological, mechanical, and/or
chemical control methods will continue to be used to
reduce the presence of purple loosestrife and leafy spurge.
Cedar control efforts will increase through the use of
prescribed fire and mechanical methods. Management
efforts will be implemented to reduce the presence
invasive cool season grasses, sweet clover, Russian olive,
and other exotic/invasive species.
Public Use
River Use
The Service recognizes that an overcrowding situation
exists on the Niobrara River, in the Wilderness Area of
the Refuge, on summer weekends as a result of people
floating the River. The Service will alleviate this using
the following processes:
Interim Strategy. Following completion of this
Comprehensive Conservation Plan, a detailed River
Management Plan will be prepared using one of the
strategies that follow. In the interim, no new outfitters
will be issued permits to launch canoes or tubes on the
Refuge. River use on weekends in the summer will be
capped at 1998 levels.
A social carrying capacity study of the River was started
in 1998. Visitors to the Refuge were interviewed and
asked to rate a series of photographs with varying
numbers of canoes and tubes in them. The study results
will be used to set upper limits of use for summer
weekends, weekdays during the summer, and the
remainder of the year. Once peak use levels have been
determined, one of the following strategies will be used
to distribute use among outfitters and the general public.
Strategy A. A reservation system would be implemented
to regulate the number of floaters on the River. The
reservation system would function similarly to other
high public use areas where an individual applies for a
limited number of opportunities on a first-come, first-serve
basis. Applications would be accepted 60 days in advance
of the desired floating date. This would allow the Service
to regulate the number of floaters during any particular
time period. For the past few years, the Service has
monitored floaters and determined reoccurring time
periods when the number of floaters exceed what the
Service deems as acceptable levels. Initially, the
reservation system would be employed during times that
float-use exceeds acceptable levels. As use continues to
expand and/or is redistributed from peak times, the
reservation system would be expanded. For time periods
that remain below the maximum number of floaters, no
reservation would be required and open floating would be
available. Since reservations would be secured by
individuals and not outfitters, the Service would not have
to regulate the number of outfitters using the Refuge.
Outfitters using the Refuge would be required to obtain
Service special use permits. Once individuals obtained a
floating reservation, they would be at liberty to make
floating arrangements with any outfitter working the
River or use their own equipment.
34 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Strategy B. A concession contract would be negotiated
between the Service and a private company or individual
to implement the reservation system as outlined in
Strategy A. The contractor would run the reservation
system and maintain the canoe launch area and also
possibly operate the visitor center, give tours to the main
bison herd, and offer hiking/horseback trips to the
Wilderness Area. The contractor would receive a
percentage of the income from reservation and/or user
fees charged to visitors. Canoe outfitters would operate
under the guidelines outlined in Strategy A, with
individuals getting a reservation and then choosing an
outfitter.
Strategy C. The current number (11) of outfitters would
be maintained; however, measures would be taken to
limit the number of floaters they serve and provide
longer term permits for use of the Refuge. Currently,
the Service issues one-year special use permits to the
outfitters holding permits the preceding year. Special
use permits for new outfitters wishing to establish a float
business on the Refuge have not been made available. In
order to treat all current and prospective outfitters
equally, a lottery system would be employed that when
fully implemented, each outfitter using the Refuge would
have a 10-year permit.
This strategy would require all existing outfitters (11) to
draw for a special use permit. These permits would vary
in length times of one, three, five, and ten years. Outfitters
drawing one-year permits would immediately be placed in a
new lottery with all interested outfitters that do not hold
Refuge permits. Successful drawers would receive 10-year
permits that are effective the year following expiration of
the one-year permits. Subsequent drawings would be
held in 3, 5, and 10 years resulting in all outfitters
possessing 10-year permits that expire at varying years.
A user fee of $2.00 per vessel per day or $25.00 per year
was implemented in 1998. Monies collected will be used
to maintain and improve the canoe launch area and add
additional law enforcement officers. Fees will be reviewed
periodically and adjusted to cover expenses.
Bans on the possession of alcohol, boom boxes, water
balloons and water cannons will be implemented. No
more than five tubes will be allowed to be tied together,
and River floating will only be allowed downstream of
Cornell Dam.
River floaters will be encouraged to follow the code of
ethics developed by the Niobrara Scenic River Council.
Hunting and Fishing
The Service will conduct periodic hunts to control
populations of elk and bighorn sheep. Hunts will be used
only when other means of excess disposal such as
roundup and donation are not feasible. The Refuge will
continue to be closed to all other hunting.
The Service will allow fishing on the Niobrara River and
Minnichaduza Creek. Special events, such as youth
fishing day, will continue.
Other Public Uses
The Service will seek funds to construct and staff a new
environmental education/visitor center to improve
environmental education and interpretation of wildlife,
cultural, and historic resources on the Refuge. A site
plan being developed will include a concept design for an
environmental education/visitor center. The site plan will
also contain suggestions for improving the existing visitor
center until such time as a new center is constructed.
Wildlife/wildland observation opportunities will be
expanded and include an access point for hiking and
horseback riding in the Wilderness Area and construction
of a trail to a scenic overlook of the Niobrara river
canyon.
Viewing of bison and elk will continue to be available year
round in an exhibition habitat unit. Current facilities and
wildlife observation and photography uses will remain
open. Access to the main herds will be allowed through a
concessionaire during peak public use periods, mainly
the summer months.
No additional roads or trails will be built; sufficient
connections currently exist with county and Refuge
roads.
Cultural and Paleontological Resources
The Service will develop a cultural resource/paleontological
management plan. The plan will include Refuge-wide
cultural resource inventory and paleontological resource
inventory strategies. It will also include increased
interpretation, protection, and education about the
cultural and paleontological resources on the Refuge.
The historic hay shed will be protected from further
degradation by sealing the building and relocating the
bat colony.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 35
Partnerships
The Service will continue to cooperate with Nebraska
Game and Parks Commission for rearing of brood fish in
tributary impoundments. Agreements in place for
wildlands wildfire suppression efforts, excess bison for
the Inter Tribal Bison Council, participation in the
Niobrara Council, and other common coordination efforts
with other agencies and landowners will continue. The
Service will seek to increase partnerships with others.
The Service will seek to develop outside funding sources
and support for implementing some aspects of this
preferred alternative. Examples would be construction
of the environmental education center, big game fence,
and possible acquisition of nondevelopment easements on
the Refuge’s north and west borders.
Monitoring
The Service will write a Habitat Management Plan that
will be stepped down from the CCP. At a minimum the
following monitoring will be conducted :
P wildlife herd monitoring sufficient to maintain age and
sex ratios, health, genetic diversity, and annual excess
removal.
P native bird species monitoring to supply trend
information on prairie grouse, species of management
concern, grassland neotropical migrants, biodiversity
trend indexes.
P monitor habitat parameters (i.e., vegetation composition
and structure, tree canopy, etc.) sufficient to ensure that
habitat objectives are being measured and determined
successful according to a Habitat Management Plan and
the adaptive management process.
P water quality parameters on the Niobrara River.
P federally listed species monitoring, American burying
beetle survey.
P monitoring/research on River use through the
Wilderness Area and it’s wildlife and social impacts.
P monitoring fire effects as part of the prescribed
burning program.
Implementing the Plan (Preferred Alternative)
This section is intended to provide additional information
to the preferred alternative section above. Where
possible, time frames are delineated, specific strategies
and actions are stated, and a list of projects is presented.
Habitat
Develop a Habitat Management Plan. Consider the
requirements of various native birds and other wildlife
(i.e., bison, elk, bighorn sheep).
Incrementally reduce the bison herd from its current
winter population level of 350 animals. Winter population
levels will vary from 200-300 animals and based on
habitat, native bird, and bison herd genetic objectives.
Surplus bison will be reintroduced to Valentine NWR.
Fort Niobrara herd reductions will correspond to
fencing of the southwest portion of Valentine NWR.
Excess bison will first be allocated for the Valentine
habitat program with remaining excess disbursed
through transfer to other Service herds, donation, and
public auction.
Remove Texas longhorn cattle from the Refuge within
1-2 years of completion of the Final Comprehensive
Conservation Plan and Environmental Assessment.
Wichita Mountains NWR will have priority in receiving
all or part of the herd. The Service will then attempt to
place the remaining longhorns with an entity willing to
manage the herd for genetic purposes. The last option
for disbursing the herd will be through public auction.
Incrementally remove interior fence where feasible and
construct 8-11 miles of big game boundary fence.
Reduce vehicle trails on the Refuge. Identify main access
trails to be maintained and discontinue use of other
trails. Complete minimum trail maintenance required for
Refuge vehicle access (i.e., mulch with native prairie hay).
Stabilize and encourage revegetation of blowouts located
on or adjacent to boundary fence, main access trails, etc.
Allow other blowouts to exist in a natural state if they
provide suitable habitat for blowout penstemon.
Reduce the presence of nonnative tree species in Refuge
plantations by allowing natural degeneration to occur.
Future replantings/plantings will include only native
tree and shrub species.
The Service’s Regional Dam Safety Officer will continue
to inspect Cornell Dam periodically to ensure compliance
with applicable laws, policies, directives, and technical
recommendations governing Federal safety of dams.
Furthermore, this Officer will provide technical assistance
should determination be made that the Dam is no longer
safe and needs to be removed.
36 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Develop and implement a monitoring program that
assesses landscape and individual habitat variables such
as vegetation species composition, grassland structure
(density, height) and ground cover, woodland structure
(percent tree, shrub, herbaceous, bare ground, canopy
cover; basal area, diameter and height, age, snags), and
utilization by large ungulates. Procedures will be
completed annually or at three- to five-year intervals
depending upon available staff and technique requirements.
Fire-funded personnel will develop and implement a fire
effects monitoring program that integrates with other
Refuge biological monitoring activities.
Wildlife
Continue to conduct sharp-tailed grouse and greater
prairie chicken lek counts. Obtain prairie grouse lek data
from the Nebraska Game and Parks Commission and
harvest data from Valentine NWR for general comparison
to Fort Niobrara NWR population trends.
Implement nongame bird monitoring techniques in the
grasslands and woodlands to document population
trends and species richness/diversity.
Conduct a graduate research project that documents
native bird response pre- and post-change in management
from current habitat management emphasizing fenced
animals to a more natural, less-controlled management
regime emphasizing native birds.
Conduct a graduate research project that compares
native bird use within the River corridor during high and
low public use periods.
Continue to maintain a general observation log of bird
sightings to document presence/absence, relative
abundance, and use areas.
Continue to implement fenced animal management
practices that ensure long-term health and survival of
the herds. Actions to be taken include periodic animal
introductions to minimize inbreeding, disease testing and
vaccination, and mineral supplementation. Geneticists
and health care professionals will be consulted on a
regular basis regarding recommended practices and/or
requirements.
Consult with population ecologists and/or bison geneticists
regarding genetic management recommendations/
options for the Fort Niobrara NWR bison gene pool
maintained in two herds; one herd on Fort Niobrara
NWR and the other herd on Valentine NWR. Collect and
analyze bison genetic material to establish baseline for
future comparison.
Conduct seasonal population surveys of bison, elk, and
bighorn sheep to document numbers by age and sex,
mortality, natality, and general health/condition. Annually
test excess animals for various diseases and ensure that
animals introduced to the Refuge meet all health test
requirements. Complete genetic testing of the herds at
intervals recommended by geneticists to assess if fenced
animals are being managed appropriately.
Maintain the black-tailed prairie dog colony in the
exhibition habitat unit at approximately 20 acres.
Attempt to establish a second, self-sustaining colony of
prairie dogs in suitable habitat and allow it to expand to
approximately 380 acres. The location and boundary of
the second colony will be determined based on Refuge
management concerns (i.e., facilities, large ungulate
handling areas) and adjacent landowners. Manage
predator populations and vegetation to hold prairie dogs
to designated acreage with other control measures
implemented as necessary.
Construct alternate, artificial bat roosts and locate near
water where insect populations are abundant, protected
against wind, predators, and direct sunlight. (Greenhall
1982) Maintain old, hollow trees to provide natural bat
roost sites. Encourage big brown bat colony to relocate.
Complete surveys of small mammals, reptiles, amphibians,
and fish at five year intervals.
Threatened and Endangered Species
Identify habitat suitable for blowout penstemon and, if it
exists, introduce plants at a minimum of two sites with
assistance from University of Nebraska - Lincoln.
Implement management actions that result in a
sustainable population of blowout penstemon.
Conduct an American burying beetle survey.
Continue to conduct biweekly eagle surveys October-April.
Monitor bald eagle mortality and submit carcasses to
the National Health Lab for analysis. Implement
appropriate protection measures. Conduct an aerial survey
of the Niobrara River every two years to document
proximity of or possible nesting activity on the Refuge.
Conduct periodic surveys of the Niobrara River to
document use or non-use by whooping cranes, least terns,
and piping plovers. Document habitat selection, usage, and
distribution. Implement appropriate protection measures.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 37
Public Use
The Service will seek funds to construct and staff a new
environmental education/visitor center to improve
environmental education and interpretation of wildlife,
cultural, and paleontological resources on the Refuge. A
site plan, being developed, will include a concept design
for the new center and suggestions for improving the
existing visitor center until such time as a new center is
constructed. Interim projects to complete include
updating exhibits and broaden themes to include wildlife
and their habitats; unusual ecological diversity; cultural
and paleontological resources; and management.
Investigate the possibility of a shared environmental
education/visitor center with the Nebraska Game and
Parks Commission, National Park Service, Forest
Service, The Nature Conservancy, Valentine Chamber of
Commerce, and others.
Develop and implement a River Management Plan the
year following the Final CCP that addresses the various
public use issues/concerns and describes/defines in detail
management strategies to be implemented.
Bans on the possession of alcohol, boom boxes, water
balloons and water cannons will be implemented.
Permits will be required for Scout, church, educational
and other such groups floating the River. Reservations
will be required and use will be limited to one group with
a maximum of 30 people per day.
Fort Falls Nature Trail will be maintained for public
enjoyment. The self-guiding interpretative brochure will
be updated.
Provide a wilderness access point. Use will be limited to
three groups at one time with a maximum group size of
five horses or ten people. An outfitter, selected by
lottery, will be allowed to guide a maximum of one group
per day and will pay a fee and/or a certain percent of
gross receipts to the Refuge.
Construct a trail to a scenic overlook of the Niobrara
canyon and provide appropriate interpretation.
Establish a concessionaire contract to view and interpret
the bison and elk herds during the summer tourist
season.
Continue to improve the main auto tour route by
resurfacing with gravel and closing/revegetating
numerous side trails. Expand the display habitat unit
and provide more natural and aesthetic setting by
removing and/or relocating fence.
Staff and expand the hours of operation of the visitor/
environmental education center.
Maintain the visitor center, information kiosks/leaflet
dispensers, education panels, other signs, picnic tables,
and rest rooms in clean, orderly, well cared for condition.
Update Refuge brochures to new Service standards.
Develop a Refuge specific environmental education
curricula for teachers to use independently.
Continue to prepare periodic news releases and send to
newspapers, radio, and television to inform the public
about Refuge events and issues.
Sport fishing regulations will follow those of the
Nebraska Game and Parks Commission except that
taking of frogs, turtles, and minnows will be prohibited.
A sport fishing plan will be prepared.
38 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Cultural and Paleontological Resources
Complete a Refuge-wide cultural resource survey and
develop a management plan based on results. The Plan
will include management strategies for the historic hay
shed based on future objectives and possible uses (i.e.,
storage, environmental education) for the designated
historic site.
Relocate the big brown bat colony and complete
appropriate bat proofing and renovations according to
future management plans.
Conduct a Refuge-wide paleontological inventory.
Display and interpret cultural and paleontological
specimens.
Ecosystem (Partners)
Maintain a contaminant database on the Niobrara River.
Cooperate with various entities (i.e., USFWS Ecological
Services; State of Nebraska) to collect data on flow,
temperature, sediment, nitrates, and other pollutants.
Work with Boy Scouts, Girl Scouts, 4-H, National
Audubon Society, Niobrara Outfitters Association, Fort
Niobrara Natural History Association, Cherry County
Schools, and others to complete at least two wildlife/
public use projects a year.
Contact and seek cooperation/partnership with universities
regarding a paleontological inventory of the Refuge.
Consider acquisition of nondevelopment easements from
willing adjacent landowners to protect refuge integrity.
Contact and seek cooperation/partnership with
International Safari Club, Rocky Mountain Elk
Foundation, and others regarding large ungulate
projects.
Work with USDA Natural Resources Conservation
Service (NRCS), Nebraska Game and Parks Commission,
U.S. Forest Service, National Park Service, Middle
Niobrara Natural Resource District, and others to
complete at least two wildlife habitat and/or public use
projects a year.
Continue to cooperate with NRCS on soil mapping and data
digitizing of Service lands, review and comment on revised
National Range and Pasture Handbook, participation in
range judging contests, range condition surveys, and
provide technical assistance on wildlife/wildland concerns.
Continue to cooperate with the Nebraska Game and
Parks Commission on wildlife surveys and fish rearing in
Refuge ponds.
Write a minimum of three grant proposals a year to seek
outside funding.
Work with State of Nebraska Veterinarian, Nebraska
Game and Parks Commission, National Park Service,
and others on management of fenced and free-ranging
elk.
Work with veterinarians for the State of Nebraska,
neighboring states, USDA-APHIS, and private sector on
disease/health issues, regulations, etc.
Fort Niobrara Draft Comprehensive Conservation Plan - April 1999 39
Staffing Needed to Implement the Fort Niobrara NWR
Preferred Alternative (CCP)
The following Staff Chart shows current staff and
proposed additional staffing needed to fully implement
the preferred alternative. If all positions were filled, the
Refuge Complex would be able to carry out all aspects of
the preferred alternative to a high standard. If some
positions are not filled, all aspects of the Plan may not be
able to be completed or those completed may be done
over a longer period of time. Staffing and funding are
expected to come over the 15 year life of this Plan.
Positions marked with an * are shared with Valentine
NWR. The new refuge operations specialist position
would be responsible for the Partners For Wildlife
program, Holt Creek WMA, and Tower WMA.
(X=filled; --=vacant)
Position Current Proposed
Refuge Manager* X X
Refuge Operations Specialist X X
Refuge Operations Specialist* -- X
Outdoor Recreation Planner* -- X
Law Enforcement Officer* X X
Administrative Officer* X X
Office Automation Clerk* X X
Wildlife Biologist X X
Bio. Technicians/Seasonal (2) -- X
Heavy Equipment Operator* X X
Maintenance Worker (2) X X
Maintenance Laborer/Seasonal (2) -- X
Asst. Fire Management Officer* X X
Range Technician (Fire) X X
Firefighters/Seasonal (3) X X
Funding Needed to Implement Fort Niobrara NWR
Preferred Alternative (CCP)
Currently, a large backlog of maintenance needs exists
on the Refuge. The needs are recorded in a national
Maintenance Management System (MMS). In 1997,
under current management plans, the backlog for Fort
Niobrara NWR was $3,830,000. Most of these needs would
also need to be met under this preferred alternative. A
synopsis of these needs is listed below:
Vehicles and Equipment $708,000
Fences, Corrals, and Wells $943,000
Water Control Structures and Dikes $197,000
Roads and Bridges $292,000
Public Use Facilities $709,000
Buildings and Maintenance Facilities $821,000
Residences $160,000
TOTAL $3,830,000
The System uses another database, the Refuge Operating
Needs System (RONS), to document proposed new
projects that will implement a comprehensive conservation
plan, implement ecosystem or federally listed species
goals or meet legal mandates. The total cost to implement
the preferred alternative is $3,908,000. A synopsis of
these needs is listed below:
Biological Monitoring and Studies $110,000
Habitat Management $443,000
Reintroduction of Bighorn Sheep $ 20,000
Resource Protection $393,000
Public Education and Recreation $742,000
Environmental Education Center $2,200,000
TOTAL $3,908,000
40 Fort Niobrara Draft Comprehensive Conservation Plan - April 1999
Affected Environment
Geographic/Ecosystem Setting
Fort Niobrara NWR is 19,131 acres in size and located in
north-central Nebraska along the Niobrara River. The
Refuge and surrounding area is recognized by ecologists
for its biogeographic significance due to the co-occurrence
of five distinctly different, major vegetation communities
within and adjacent to the Niobrara River corridor. The
region is the only place in North America where Rocky
Mountain Coniferous Forest (eastern limit), Northern
Boreal Forest (southern limit), Eastern Deciduous
Forest (western limit), Mixed Prairie and Sandhill
Prairie meet and intermingle (Kaul and Rolfsmeier 1993)).
The unusually diverse plant and animal assemblages found
in this area are due to unique surface and subsurface
geologic formations, water and soil conditions, current
and past climates, and differential sun exposure
(Churchill et al. 1988). Additional ecological factors that
had significant affect on the biological diversity that
evolved in this region prior to Euro-American settlement
includes wildfire and the use of fire by aboriginal men
(Higgins et al. 1986, Steutter 1991), and the unrestricted
grazing and impacts associated with grazing of bison, elk,
pronghorn antelope, and prairie dogs (Knopf 1994, Bragg
and Steuter 1996). Though changes in composition and
density of native flora and fauna have occurred since
settlement, Bogan (1995) reported that Fort Niobrara is
one of the few areas where the basic components of the
1850 landscape are still present and viable.
Climate
The climate of the region is highly variable and
characterized by cold winters and hot summers. Total
annual precipitation averages 18 inches with approximately
65 percent occurring during the May-to-September
growing season (National Oceanic and Atmospheric
Administration’s National Climatic Data Center 1996).
Winter precipitation is usually in the form of snow with the
annual accumulation a