Protection Island and San Juan Islands National Wildlife Refuges Draft Comprehensive Conservation Plan Draft Wilderness Stewardship Plan and Environmental Assessment

              Protection Island
and San Juan Islands
National Wildlife Refuges
Draft Comprehensive Conservation Plan
Draft Wilderness Stewardship Plan
and Environmental Assessment
U.S. Fish & Wildlife Service
Comprehensive Conservation Plans provide long-term guidance for
management decisions and set forth goals, objectives, and strategies needed to
accomplish refuge purposes and identify the U.S. Fish and Wildlife Service’s best estimates
of future needs. These plans detail program planning levels that are sometimes substantially above
current budget allocations, and as such, are primarily used for strategic planning and program prioritization
purposes. The plans do not constitute a commitment for staffing increases, operational and maintenance
increases, or funding for future land acquisition.
Protection Island Protection Island NWR
Protection Island’s unique combination of shoreline, spits,
and sandy bluffs are a safe haven for thousands of nesting
rhinoceros auklets as well as tufted puffins, pigeon
guillemots, and pelagic cormorants. Bald eagles roost
and nest in the forested uplands while harbor seals
and elephant seals haul out and raise their pups on the
shoreline. Environmental education opportunities are
available to dedicated college students and volunteers
through research and stewardship projects. Staff and
partners cooperatively conduct monitoring and research
on the flora and fauna, providing sound science to inform
management. Refuge staff and year-round resident
caretakers maintain minimal infrastructure. Although
the island is located close to human population centers,
people respect wildlife’s need for refugia and maintain
a distance from shorelines while viewing the abundant
seabird and marine mammals that can be found on
the island. Amid the cacophony of wildlife, a sense of
peace nurtures the desire to care for the natural
treasure that is Protection Island.
A Vision of Conservation
San Juan Islands NWR
The San Juan Islands NWR is a sanctuary for a dazzling array of marine life including black oystercatchers, pigeon guillemots,
tufted puffins, pelagic and double-crested cormorants, glaucous-winged gulls, and pinnipeds. Nestled among large islands and
marine waters abuzz with human activity, the refuge encompasses many small islands, rocks, and reefs scattered throughout the
San Juan Archipelago. The breathtaking forces of nature shaped this marine wilderness embracing many miles of shoreline,
reefs, lichened rocks, bluffs and old-growth forests. These wild lands inhabited by wild creatures and supporting healthy
breeding seabird colonies provide the backdrop for folks to enjoy, appreciate and understand the refuge’s valuable place in the
Salish Sea ecosystem. Working with partners, we provide opportunities for researchers, boaters, birders, and other nature
lovers to develop a stewardship ethic for our refuge islands.
Protection Island and San Juan Islands
National Wildlife Refuges
Draft Comprehensive Conservation Plan,
Draft Wilderness Stewardship Plan,
and Environmental Assessment
Jefferson, Island, San Juan, Skagit, Whatcom Counties, Washington
Prepared by:
U.S. Fish and Wildlife Service
Washington Maritime National Wildlife Refuge Complex
715 Holgerson Road
Sequim WA, 98382
And
U.S. Fish and Wildlife Service
Division of Planning and Visitor Services
911 NE 11th Avenue
Portland, OR 97232
August 2010
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Table of Contents i
Table of Contents
Chapter 1. Introduction and Background..........................................................1-1
1.1 Introduction.........................................................................................................................................1-1
1.2 Significance of the Refuges .................................................................................................................1-1
1.3 Proposed Action..................................................................................................................................1-9
1.4 Purpose and Need for the Plan.............................................................................................................1-9
1.5 Content and Scope of the Plan ..........................................................................................................1-10
1.6 Legal and Policy Guidance ................................................................................................................1-10
1.7 Refuge Establishment and Purposes ..................................................................................................1-13
1.8 Relationship to other Planning Efforts...............................................................................................1-14
1.9 Issues Addressed in the Draft CCP/WSP/EA ....................................................................................1-15
1.10 Refuge Vision Statements................................................................................................................1-16
1.11 Refuge Goals...................................................................................................................................1-16
1.12 Planning Process ..............................................................................................................................1-17
Chapter 2. Alternatives, Goals, Objectives, and Strategies..............................2-1
2.1 Alternative Development ....................................................................................................................2-1
2.2 Actions Considered but Not Developed .............................................................................................2-1
2.3 Similarities Among Alternatives .........................................................................................................2-2
2.4 Summary of Alternatives ....................................................................................................................2-5
2.5 Goals, Objectives, and Strategies ......................................................................................................2-29
Goal 1. Shoreline ...............................................................................................................................2-29
Goal 2. Sandy Bluffs .........................................................................................................................2-34
Goal 3. Savanna, Grasslands, and Balds ...........................................................................................2-38
Goal 4. Forests and Woodlands.........................................................................................................2-43
Goal 5. Small Wetlands.....................................................................................................................2-46
Goal 6. On-Refuge Visitor Services..................................................................................................2-47
Goal 7. Off-Refuge Visitor Services .................................................................................................2-52
Goal 8. Wilderness ............................................................................................................................2-56
Goal 9. Research and Monitoring......................................................................................................2-58
Chapter 3. Physical Environment .......................................................................3-1
3.1 Climate and Climate Change ...............................................................................................................3-1
3.2 Oceanography and Climate Change ....................................................................................................3-5
3.3 Topography and Bathymetry .............................................................................................................3-10
3.4 Recent Geological History and Geomorphology ...............................................................................3-11
3.5 Soils ..................................................................................................................................................3-13
3.6 Hydrology ........................................................................................................................................3-14
3.7 Fire ...................................................................................................................................................3-15
3.8 Air Quality .......................................................................................................................................3-15
3.9 Water Quality ...................................................................................................................................3-16
3.10 Environmental Contaminants ..........................................................................................................3-16
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
ii Table of Contents
Chapter 4. Refuge Biology and Habitats............................................................4-1
4.1 Biological Integrity Analysis ...............................................................................................................4-1
4.2 Priority Resources of Concern Selelction and Analysis ......................................................................4-
4.3 Shoreline ...........................................................................................................................................4-13 6
4.4 Sandy Bluffs......................................................................................................................................4-16
4.5 Savanna, Grasslands, and Balds.........................................................................................................4-19
4.6 Forests and Woodlands ......................................................................................................................4-23
4.7 Wetlands ...........................................................................................................................................4-28
4.8 Seabirds ............................................................................................................................................4-30
4.9 Bald Eagles .......................................................................................................................................4-42
4.10 Black Oystercatcher .........................................................................................................................4-45
4.11 Marine Mammals .............................................................................................................................4-47
4.12 Herbivores and Predtors of Management Concern .........................................................................4-52
4.13 Paleontological Resources ...............................................................................................................4-54
Chapter 5. Human Environment ........................................................................5-1
5.1 Cultural Resources ..............................................................................................................................5-1
5.2 Refuge Facilities ................................................................................................................................5-6
5.3 Research..............................................................................................................................................5-9
5.4 Refuge Recreation .............................................................................................................................5-12
5.5 Other Refuge Uses ............................................................................................................................5-16
5.6 Regional Recreational Opportunities ................................................................................................5-17
5.7 Regional Recreation Rates and Trends .............................................................................................5-26
5.8 Socioeconomics ................................................................................................................................5-28
Chapter 6. Environmental Consequences ..........................................................6-1
6.1 Overview of Effects Analysis ..............................................................................................................6-1
6.2 Summary of Effects .............................................................................................................................6-2
6.3 Effects to Physical Environment..........................................................................................................6-7
6.4 Effects to Habitats .............................................................................................................................6-10
6.5 Effects to Wildlife .............................................................................................................................6-13
6.6 Effects to Wilderness Resources........................................................................................................6-17
6.7 Effects to Cultural Resources.............................................................................................................6-18
6.8 Effects to Paleontological Resources.................................................................................................6-19
6.9 Effects to Research Program .............................................................................................................6-20
6.10 Social and Economic Effects ..........................................................................................................6-21
6.11 Cumulative Effects..........................................................................................................................6-25
Appendix A. Lands ...........................................................................................A-1
Appendix B. Island Resources ..........................................................................B-1
Appendix C. Habitats and Wildlife .................................................................C-1
Appendix D. Sign Plans ....................................................................................D-1
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Table of Contents iii
Appendix E. Integrated Pest Management Program.....................................E-1
Appendix F. Area Beaches ................................................................................F-1
Appendix G. Implementation ...........................................................................G-1
Appendix H. Wilderness....................................................................................H-1
Appendix I. Findings of Appropriateness for Refuge Uses ...........................I-1
Appendix J. Compatibility Determinations.....................................................J-1
Appendix K. Coordination, Consultation, and Compliance .........................K-1
Appendix L. Acronyms and Glossary..............................................................L-1
Figures
1.1 Salish Sea............................................................................................................................................1-3
1.2 Protection Island National Wildlife Refuge.........................................................................................1-5
1.3 San Juan Islands National Wildlife Refuge .........................................................................................1-7
2.1 Protection Island NWR - Alternative A ............................................................................................2-11
2.2 San Juan Islands NWR, Smith and Minor Islands - Alternative A ...................................................2-13
2.3 San Juan Islands NWR, Matia Island - Alternative A ......................................................................2-15
2.4 San Juan Islands NWR, Turn Island - Alternative A ........................................................................2-17
2.5 Protection Island NWR - Alternatives B and C ................................................................................2-19
2.6 San Juan Islands NWR, Smith and Minor Islands - Alternative B and C .........................................2-21
2.7 San Juan Islands NWR, Matia Island - Alternatives B and C ...........................................................2-23
2.8 San Juan Islands NWR, Turn Island - Alternative B ........................................................................2-25
2.9 San Juan Islands NWR, Turn Island - Alternative C ........................................................................2-27
3.1 Washington State average annual precipitation from 1971 to 2000 ....................................................3-3
3.2 Global ocean (surface) currents ...........................................................................................................3-6
3.3 Global sub-surface currents .................................................................................................................3-7
4.1 Protection Island Current Vegetation...................................................................................................4-9
4.1 Smith and Minor Islands Current Vegetation ....................................................................................4-11
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-1
Chapter 1. Introduction and Background
1.1 Introduction
Protection Island National Wildlife Refuge and San Juan Islands National Wildlife Refuge (NWR or
Refuge or Refuges) are managed by the U.S. Fish and Wildlife Service (USFWS or Service) as part of the
National Wildlife Refuge System (NWRS or System). They are two of the six refuges that comprise the
Washington Maritime National Wildlife Refuge Complex. Both of these Refuges are within a geographic
area now known as the Salish Sea (Figure 1.1). The Salish Sea is a single estuarine ecosystem that extends
from the north end of the Strait of Georgia to the west end of the Strait of Juan de Fuca and south to the
southern extent of Puget Sound. It encompasses the inland marine waters of Southern British Columbia,
Canada, and northern Washington, USA (WWU 2009).
Protection Island NWR is located in the Strait of Juan de Fuca near the entrance to Discovery Bay in
Jefferson County, Washington. It includes 659 acres of land and tideland lease. Kanem Point, the part of
Protection Island closest to the mainland, is 1.4 miles due north of Diamond Point and 5 miles due west of
Port Townsend, Washington (Figure 1.2).
Most of the San Juan Islands NWR consists of rocks, reefs, and islands scattered throughout the San Juan
Archipelago. Two islands, Smith and Minor, however, are located south of the archipelago within the
Strait of Juan de Fuca. The Refuge consists of approximately 449 acres in Island, San Juan, Skagit, and
Whatcom Counties, Washington. Most (353 acres) of San Juan Islands NWR is also designated
wilderness known as the San Juan Islands Wilderness Area (see Figure 1.3).
1.2 Significance of the Refuges
Protection Island NWR
Protection Island was given its present name by Captain George Vancouver, who visited in May 1792 and
described the landscape “as enchantingly beautiful as any of the most elegantly finished pleasure grounds
in Europe” (Meany 1907). An early naturalist, Suckley (1859), referred to Protection Island as a “favored
breeding ground of the rhinoceros auklet.” Subsequent farming and livestock grazing for over 100 years,
introduction of domestic cats, establishment of a Coast Artillery battery during WWII, major fires that
burned much of the island during the 1940s and 50s, plus subdivision for summer homes and a resort
during the late 1960s-70s, took their toll on the native plants and wildlife of Protection Island. Despite
habitat alteration, local naturalists and conservation organizations recognized the significant wildlife values
of the island and lobbied for its protection. In 1975 Washington State established the Zella M. Schultz
Seabird Sanctuary on the southwestern tip of the island, and in 1982 Congress established the Protection
Island NWR on the remaining portions of the island.
Native wildlife recovered such that today six species of seabirds (rhinoceros auklets, tufted puffin, pigeon
guillemot, pelagic cormorant, double-crested cormorant, and glaucous-winged gulls) nest on Protection
Island. This island continues to be particularly important for rhinoceros auklets. A recent survey indicates
that the breeding colony on Protection Island may be the third largest in North America (Pearson et al.
2009) and it is one of just eight islands that support more than 95% of the North American breeding
population of rhinoceros auklets (Gaston and Deschesne 1996). The island also supports a nesting pair of
bald eagles, several black oystercatcher territories, resting and feeding areas for harlequin ducks and black
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-2 and Background
brant, and many forest and grassland birds. In 1997, Protection Island became the first location in
Washington State where a few northern elephant seals were observed to haul-out and have pups (Jeffries et
al 2000). The island is also a haul-out and pupping site for hundreds of the much smaller harbor seal.
Paleontological materials, including remains of a mammoth and a giant beaver, have been seen on
Protection Island and at other nearby sites, indicating there may be much more to learn about prehistoric
wildlife from this nonrenewable resource.
Protection Island has been a center for learning and research since before the Refuge was established and
continues to the present. The Service, along with other Federal and State agencies, as well as university
professors and their students have conducted many studies on Protection Island. While Protection Island
remains closed to the public to provide wildlife sanctuary, visitors and local residents can enjoy observing
and listening to birds and marine mammals at a distance, from boats and points on the mainland.
San Juan Islands NWR
Though small in size, the scattered islands, rocks, and reefs of the San Juan Islands NWR are important for
marine wildlife. An estimated 80% of the breeding population of black oystercatchers in Washington’s
inland marine waters are using the rocks and islands within the San Juan Islands NWR for nesting
(Nysewander 2003). There is a rhinoceros auklet colony on Smith Island, which although much smaller
than the Protection Island colony, is still important for this species. Several pairs of Brandt’s cormorants
were recently confirmed nesting and tending their young on an island within the Refuge. There are also 11
bald eagle nesting territories on Refuge islands. A few northern elephant seals and hundreds of harbor
seals haul-out and care for their pups on Smith Island (Hayward 2003, Jeffries et al 2000). Federally
threatened Steller sea lions as well as California sea lions haul out on a few Refuge rocks from fall through
spring.
Matia Island, the largest within the Refuge, has a magnificent old-growth forest of Douglas-fir, cedars, and
hemlocks. Refuge rocks and islands are also home to a number of rare and endemic plants including brittle
prickly-pear cactus, California buttercup, and bear’s foot sanicle. Refuge islands have significantly more
species of native plants and fewer introduced species compared to adjacent islands (Bennett 2007).
The natural resources, recreational opportunities, and scenic beauty of the Salish Sea, including the San
Juan Archipelago, have resulted in several special designations of the area. In addition to establishing the
San Juan Islands NWR, most of this Refuge is also designated as the San Juan Islands Wilderness and
therefore part of the National Wilderness Preservation System. The Refuge is within the Cascadia Marine
Trail which is a National Recreation Trail and one of the premier water trails for non-motorized boaters in
the United States. Two Refuge islands, one of them a wilderness island, provide opportunities to camp
overnight. This facilitates wildlife observation and photography via non-motorized boats throughout the
area. The Refuge is also an important part of the San Juan Islands Scenic Byway. Residents and tourists
enjoy opportunities to learn about the Salish Sea and its natural resources as well as view wildlife and
Refuge islands from ferries, commercial tour boats, and private boats.
Victoria
Vancouver
Powell River
Nanaimo
Courtenay
Campbell River
Seattle
Olympia
Bremerton
Everett
Bellingham
Tacoma
Port Angeles
Figure 1.1 Salish Sea
Data Sources: Populated Places and Country Boundaries from Natural Earth; Imagery from NASA Blue Marble; Elevation from NASA/CGIAR-CSI
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1. Introduction and Background 1-3
0 Miles 50
0 Kilometers 50
NAD 83
UTM ZONE 10N
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-4 and Background
To preserve the quality of our map, this side was left blank intentionally.
Data Sources: Refuge Boundaries from USFWS/R1; State and County Boundaries from BLM; Imagery from 7/30/2003 WDOT True Color Aerial Photography
Figure 1.2 Protection Island National Wildlife Refuge
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Jefferson County
Clallam County
Chapter 1. Introduction and Background 1-5
Land Status
Approved Refuge Boundary
USFWS Fee Title
WDNR Easement/Lease
(from Mean High Tide to Mean Low Tide)
WDFW Zella Schultz Seabird Sanctuary
(not within Approved Refuge Boundary)
Adjacent Aquatic Lands
WDNR Bedlands Withdrawal
(200 Yards from Extreme Low Tide)
WASHINGTON
Area of map
0 Miles 0.4
0 Kilometers 0.4
UTM ZONE 10N
NAD 83
Violet Point
Kanem Point
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-6 and Background
To preserve the quality of our map, this side was left blank intentionally.
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Dungeness
Spit
Griffin
Bay
UNITED STATES
CANADA
Anacortes
Coupeville
Eastsound
Friday Harbor Guemes
Marietta
Oak Harbor
Orcas
Richardson
Roche Harbor
Shaw Island
Thatcher
Urban
Waldron
Washington
Onamac
Point
Point
Demock
British Columbia
Whatcom County
San Juan County
Whatcom County
Skagit County
Skagit County
San Juan County
San Juan C ounty
Island County
Island County
Jefferson County
Admiralty
Bay
Bellingham
Bay
Burrows
Bay
Crescent
Harbor
Dugualla
Bay
Dungeness
Bay
Fidalgo
Bay
Kiket
Bay
Lummi
Bay
Oak
Harbor
Padilla
Bay
Penn Cove
Race
Lagoon
Turners
Bay
Allan
Island
Burrows
Island
Center
Island
Henry
Island
Hope
Island
Johns
Island
Jones
Island
Kalamut
Island
Portage
Island
Samish
Island
Spieden
Island
Sucia
Island
Blakely
Island
Cypress
Island
Decatur
Island
Guemes
Island
Lopez
Island
Lummi
Island
Orcas
San Juan
Island
Shaw
Island
Stuart
Island
Waldron
Island
Whidbey
Island
Sinclair
Island
Island
Saturna Island
Pender
Island
Barnes Island
Clark Island
Patos Island 44
77
43
48
34 38
39
32 37 65
33
31 62
36
40
42
45
50
53
30
64
68
77
61 60
29
49
70
72
73
54 58
28
55 57 52
56
1
18
25 24 4
3
78
79
84
81
80
5
83
16
6
10 12
8
11
7
75 76
14 13
26 23
2
9
19
20
21
35
27 22
46
47
59
66
69
74
82
63
41
71
51
17
15
Figure 1.3 San Juan Islands National Wildlife Refuge
Data Sources: Refuge Boundaries from USFWS/R1; State and County Boundaries from BLM; Elevation from USGS; Bathymetry from UW PRISM,
NOAA, and NWIC; Roads from ESRI
1. Small Island
2. Rum & Rim Islands
3. Fortress Island
4. Skull Island
5. Crab Island
6. Boulder Island
7. Davidson Rock
8. Castle Island
9. Blind Island
10. Aleck Rocks
11. Swirl Island
12. Unnamed Rock
13. Unnamed
14. Unnamed
15. Hall Island
16. Unnamed
17. Secar Rock
18. Unnamed
19. Unnamed
20. Unnamed
21. Mummy Rocks
22. Unnamed
23. Shark Reef
24. Harbor Rock
25. North Pacific Rock
26. Halftide Rocks
27. Unnamed
28. Low Island
29. Pole Island
30. Barren Island
57. Pointer Island
58. Black Rock
59. Spindle Rock
60. Brown Rock
61. Unnamed
62. South Peapod
(Peapod Rocks)
63. Unnamed
(Peapod Rocks)
64. North Peapod
(Peapod Rocks)
65. Eliza Rock
66. Viti Rocks
68. Bird Rock
69. Unnamed
70. Low Island
71. Nob Island
72. Unnamed
73. Unnamed
74. Unnamed
75. Smith Island
76. Minor Island
77. Matia Island
78. Puffin Island
79. Turn Island
80. Bird Rocks
81. Williamson Rocks
82. Colville Island
83. Buck Island
84. Bare Island
31. Battleship Island
32. Sentinel Rock
33. Center Reef
34. Gull Reef
35. Ripple Island
36. Unnamed (Shag Reef)
37. Unnamed (Little Cactus
Island)
38. Gull Rock
39. Flattop Island
40. White Rock (Danger
Rock)
41. Mouatt Reef
42. Skipjack Island
43. Unnamed
44. Clements Reef
45. Unnamed
46. Parker Reef
47. Lone Tree Island
(The Sisters)
48. Little Sister
(The Sisters)
49. Unnamed
50. Tift Rocks
51. Reef Point
52. Turn Rock
53. Shag Rock
54. Flower Island
55. Willow Island
56. Lawson Rock
San Juan Islands Refuge ID and Name
Land Status
Refuge Lands with
Wilderness Designation
Refuge Lands without
Wilderness Designation
WASHINGTON
Area of map
UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1. Introduction and Background 1-7
0 Kilometers 4
0 Miles 4
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-8 and Background
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Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-9
1.3 Proposed Action
The Service is proposing to adopt and implement a Comprehensive Conservation Plan for Protection
Island and San Juan Islands NWRs and a Wilderness Stewardship Plan for the San Juan Wilderness. This
document is the Refuges’ Draft Comprehensive Conservation Plan, Wilderness Stewardship Plan, and
Environmental Assessment (Draft CCP/WSP/EA, CCP, or plan). This Draft CCP/WSP/EA has been
prepared pursuant to the National Wildlife Refuge System Administration Act of 1966 (Administration
Act), the National Environmental policy Act of 1969 (NEPA), and the Wilderness Act of 1964.
The Administration Act requires CCPs to identify and describe:
• The purposes of the refuge;
• The fish, wildlife, and plant populations, their habitats, and the archaeological and cultural values
found on the refuge;
• Significant problems that may adversely affect wildlife populations and habitats and ways to
correct or mitigate those problems;
• Areas suitable for administrative sites or visitor facilities; and
• Opportunities for fish and wildlife dependent recreation.
The Service developed and evaluated three alternative management approaches which are described in
Chapter 2 of this Draft CCP/WSP/EA. The proposed action is to implement Alternative B which has been
identified as the Service’s Preferred Alternative. Among the alternatives evaluated, this alternative appears
to best achieve the purpose, vision, and goals for the Refuges. The preferred alternative may be modified
between the draft and final documents depending upon comments received from the public or other
agencies and organizations. The Service’s Regional Director for the Pacific Region will decide which
alternative will become the Refuges’ Comprehensive Conservation Plan.
1.4 Purpose of and Need for the Plan
National Wildlife Refuge System (Refuge System) planning policy (Service Manual Part 602 FW3, June
21, 2000) states that the purpose of CCPs is to “describe the desired future conditions of a refuge and
provide long-range guidance and management direction to achieve refuge purposes; help fulfill the
National Wildlife Refuge System mission; maintain and, where appropriate, restore the ecological integrity
of each refuge and the Refuge System; . . . and meet other mandates.” The plan is expected to serve as a
management guide for approximately the next 15 years.
Long-range management direction for the Refuges is needed to address Refuge management concerns for
wildlife and habitats, including human-caused wildlife disturbance, the risk of oil spills, marine debris, the
increasing deer herd on Protection Island, invasive species, and where possible, to anticipate management
concerns related to climate change including sea level rise. There is a need to re-evaluate the research
activities and facilities on Protection Island to see if they can be improved in ways that better support
Refuge management. There is also a need to evaluate the quality, appropriateness, and compatibility of
visitor services programs and activities.
Prior management plans for these Refuges were developed in the 1980s. These older plans are now
outdated both in terms of Refuge resources and conditions, as well as current policies and mandates. Once
an alternative has been selected and the plan is finalized and approved, it will supersede the Master Plan
for Protection Island National Wildlife Refuge (USFWS 1985), Refuge Management Plan for San Juan
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-10 and Background
Islands National Wildlife Refuge (USFWS 1986) and the San Juan Islands Wilderness Plan (USFWS
1978).
1.5 Content and Scope of the Plan
The content and scope of this plan is based on meeting the requirements of the Administration Act, NEPA,
and Service policies within the context of the purposes of the Refuges and the natural, cultural, and
wilderness resources they contain. This plan includes:
• A long-term vision for each Refuge (inside cover and Chapter 1).
• Goals and objectives for Refuge resources, wilderness values, and public use programs, as well as
strategies for achieving the objectives (Chapter 2).
• A description of the physical environment including geology and climate change (Chapter 3).
• A description of the Refuge resources, their conditions, and trends on the Refuges and within the
ecosystem (Chapter 4).
• A description of the cultural resources and public use programs on and near the Refuges, as well as
Refuge facilities, and local socioeconomic conditions (Chapter 5).
• The anticipated effects of each alternative (Chapter 6).
• Detailed information about Refuge establishment, land status, and habitat protection priorities
(Appendix A).
• Information regarding specific rocks, islands, and reefs within the San Juan Islands NWR (Appendix
B).
• Additional information about Priority Resources of Concern and Ecological Systems (Appendix C).
• Sign Plans for each of the Refuges (Appendix D) and an Integrated Pest Management Plan for the
entire Complex (Appendix E).
• Memorandum of Understandings with other Agencies (Appendix F).
• Staffing, funding, and partnerships necessary to implement the plan (Appendix G).
• Wilderness Reviews and Minimum Requirements Analyses (Appendix H).
• Appropriateness Findings (Appendix I) and Compatibility Determinations (Appendix J) for Refuge
uses.
• Summary of public involvement activities as well as legal compliance information (Appendix K).
• Guide to acronyms used in the document and well as some definitions (Appendix L).
1.6 Legal and Policy Guidance
Protection Island NWR and San Juan Islands NWR are managed as part of the National Wildlife Refuge
System within the legal and policy framework of the U.S. Fish and Wildlife Service within the Department
of the Interior. The Refuge System Administration Act of 1966, as amended, serves as the primary
guidance for management of the System. The Wilderness Act also guides the management of the San Juan
Islands NWR because most of this Refuge is included in the designated San Juan Islands Wilderness Area.
1.6.1 U.S. Fish and Wildlife Service
The U.S. Fish and Wildlife Service is the principal Federal agency responsible for conserving, protecting
and enhancing fish, wildlife, and plants and their habitats for the continuing benefit of the American
people. The Service manages the National Wildlife Refuge System which includes Protection Island NWR
and San Juan Islands NWR. It also operates national fish hatcheries, fishery resources offices, and
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Chapter 1 – Introduction and Background 1-11
ecological services field stations. The agency enforces federal wildlife laws, administers the Endangered
Species Act, manages migratory bird populations, restores nationally significant fisheries, conserves and
restores wildlife habitat such as wetlands, and helps foreign and Native American tribal governments with
their conservation efforts. It also oversees the Federal Assistance program, which distributes hundreds of
millions of dollars in excise taxes on fishing and hunting equipment to state fish and wildlife agencies.
The mission of the U.S. Fish and Wildlife Service is:
“Working with others to conserve, protect, and enhance fish, wildlife, and plants and
their habitats for the continuing benefit of the American people.”
1.6.2 National Wildlife Refuge System
Starting with the first refuge, Florida’s Pelican Island, established in 1903 by President Theodore
Roosevelt, the National Wildlife Refuge System has grown to more than 150 million acres in size. It
includes more than 520 refuges, at least one in every state, and thousands of small wetlands and other
special management areas. The needs of wildlife and their habitats come first on refuges, in contrast to
other public lands managed for multiple uses.
The National Wildlife Refuge System Administration Act
The National Wildlife Refuge System Administration Act of 1966, as amended (16 U.S.C. 668dd et seq.),
serves as the primary guidance for management of the System. One very important amendment to the
Administration Act was the National Wildlife Refuge System Improvement Act of 1997 (Public Law 105-
57). This amendment included a unifying mission for the Refuge System; a new process for determining
compatible uses on refuges; and a requirement that each refuge will be managed under a Comprehensive
Conservation Plan. It also states that wildlife conservation is the priority of NWRS lands and that the
Secretary of the Interior shall ensure that the biological integrity, diversity, and environmental health of
refuge lands are maintained. Each refuge must be managed to fulfill the Refuge System mission and the
specific purposes for which it was established. The Service is required to monitor the status and trends of
fish, wildlife, and plants on each refuge. Additionally, the Act identifies six wildlife-dependent
recreational uses. These uses are hunting, fishing, wildlife observation and photography, environmental
education and interpretation. As priority public uses of the Refuge System, these uses will receive
enhanced consideration over other uses in planning and management. Lands within the National Wildlife
Refuge System are different from other, multiple-use public lands in that they are closed to all public uses
unless specifically and legally opened. No refuge use may be allowed unless it is determined to be
compatible with refuge purposes and the System Mission.
The Mission of the National Wildlife Refuge System is:
“To administer a national network of lands and waters for the conservation,
management, and where appropriate, restoration of the fish, wildlife, and plant
resources and their habitats within the United States for the benefit of present and
future generations of Americans.”
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Chapter 1 – Introduction 1-12 and Background
The Goals of the National Wildlife Refuge System are:
 Conserve a diversity of fish, wildlife, and plants and their habitats, including species that are
endangered or threatened with becoming endangered.
 Develop and maintain a network of habitats for migratory birds, anadromous and interjurisdictional
fish, and marine mammal populations that is strategically distributed and carefully managed to meet
important life history needs of these species across their ranges.
 Conserve those ecosystems, plant communities, wetlands of national or international significance, and
landscapes and seascapes that are unique, rare, declining, or underrepresented in existing protection
efforts.
 Provide and enhance opportunities to participate in compatible wildlife-dependent recreation (hunting,
fishing, wildlife observation and photography, and environmental education and interpretation).
 Foster understanding and instill appreciation of the diversity and interconnectedness of fish, wildlife,
and plants and their habitats. (Fish and Wildlife Service Manual Part 601 FW 1 sec1.8, June 2006)
1.6.3 National Wilderness Preservation System
The Wilderness Act of 1964 (16 U.S.C. 1131-1136, 78 Stat. 890) -- Public Law 88-577, approved
September 3, 1964, directed the Secretary of the Interior and the Secretary of Agriculture to review every
roadless area of 5,000 or more acres and every roadless island (regardless of size) within National Wildlife
Refuges, National Parks, and National Forests and to recommend to the President the suitability of each
such area or island for inclusion in the National Wilderness Preservation System, with final decisions made
by Congress. The Act provides criteria for determining suitability and establishes restrictions on activities
that can be undertaken on a designated area.
Under the authority of the Wilderness Act, over 20 million acres of land and water in 66 National Wildlife
Refuges have been designated as part of the National Wilderness Preservation System by special Acts of
Congress. The San Juan Islands Wilderness area, which includes 353 acres within the San Juan Islands
NWR, was established in 1976 under Public law 94-557 (USFWS 2009a). The only parts of this Refuge
that are not designated wilderness are Smith and Minor Islands, Turn Island, and a small portion of Matia
Island.
1.6.4 Other laws and mandates
Many other Federal laws, executive orders, Service policies, and international treaties govern the U.S. Fish
and Wildlife Service and Refuge System lands. Examples include the Migratory Bird Treaty Act of 1918,
Refuge Recreation Act of 1962, National Historic Preservation Act of 1966, and the Endangered Species
Act of 1973. A list and brief description of Federal laws of interest to the Service can be found in the
Laws Digest at http://www.fws.gov/laws.
Over the last few years the Service has developed or revised numerous policies to reflect the mandates and
intent of the Improvement Act. Some of these key policies include Comprehensive Conservation Planning
process (602 FW 3); Appropriate Refuge Uses (603 FW 1); Compatibility (603 FW 2); Wildlife-
Dependent Recreation (605 FW 1-7); Biological Integrity, Diversity, and Environmental Health (601 FW
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-13
3); and Pesticide Safety (242 FW 7). In addition, the Service has recently revised the Wilderness
Stewardship policy (610 FW 2). These and many other policies that guide the U.S. Fish and Wildlife
Service and management of Refuge System lands can be found within the Service Manual which can be
accessed at http://www.fws.gov/policy/manuals/.
1.7 Refuge Establishment and Purposes
The Service defines the purposes of a National Wildlife Refuge when the refuge is established or when
new land is added to an existing refuge. When an addition to a refuge is acquired under an authority
different from the authority used to establish the original refuge, the addition takes on the purposes of the
original refuge, but the original refuge does not take on the purposes of the addition. Each refuge must be
managed to fulfill the Refuge System mission and the specific purposes for which the refuge was
established. Managers must consider all refuge purposes; however, purposes dealing with the
conservation, management, and restoration of fish, wildlife and plants, and their habitats, take precedence
over other purposes. If a conflict exists between the Refuge System mission and the refuge purposes,
the purposes may supersede the mission. The following paragraphs identify refuge purposes with bold
italics and provide a brief description of refuge establishment history related to those purposes. For more
details on refuge establishment history, see Appendix A.
Protection Island NWR Establishment and Purposes (purposes are bold and italicized)
Refuge establishment was authorized by the Protection Island National Wildlife Refuge Act, Public Law
97 – 333, Oct 15, 1982 (96 Stat. 1623): “The purposes of the refuge are to provide habitat for a broad
diversity of bird species, with particular emphasis on protecting the nesting habitat of the bald eagle,
tufted puffin, rhinoceros auklet, pigeon guillemot, and pelagic cormorant; to protect the hauling-out
area of harbor seals; and to provide for scientific research and wildlife-oriented public education and
interpretation (96 Stat. 1623)” and applies to all portions of Protection Island NWR. The first 1.42 acres
of the Refuge were donated by Admiralty Audubon Society “. . in accordance with Public law 97-333 (96
Stat. 1623) Protection Island National Wildlife Refuge Act (Donation Warranty Deed, December 22,
1982).” Most of the over 800 tracts that make up the Refuge were authorized by the same act and
purchased from 1983-1987 with funds authorized by the Land and Water Conservation Fund Act of 1965,
as amended. Purposes of this fund include “acquisition of ...(d) any areas authorized for the National
Wildlife Refuge System by specific Acts” (16 U.S.C. 460l-9). The Service also has a 20-year aquatic
lands lease for the second class tidelands around Protection Island (No 20-013245) from the Washington
Department of Natural Resources (WDNR). This lease is authorized by the Fish and Wildlife Act of 1956,
“. . . for the development, advancement, management, conservation, and protection of fish and wildlife
resources . . .” (16 U.S.C.742 f(a)(4)).
San Juan Islands NWR Establishment and Purposes (purposes are bold and italicized)
San Juan Islands NWR was first established in 1960 to be “. . . reserved under jurisdiction of the Bureau
of Sport Fisheries and Wildlife, United States Fish and Wildlife Service. . .” (PLO 2249). In 1975, the
San Juan Islands NWR was consolidated with Smith Island NWR (est. 1914), Matia Island NWR (est.
1937) and Jones Island NWR (est. 1937) and additional lands were reserved under the name of San Juan
Islands NWR (PLO 5515). PLO 5515 does not state a purpose for this newly consolidated Refuge but an
earlier proposal published in 38 FR 29831 on Oct 29, 1973, stated it was to “. . .facilitate the
management of migratory birds for which the United States has a responsibility under international
treaties and to further effectuate the purposes of the Migratory Bird Conservation Act.” Smith and
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Chapter 1 – Introduction 1-14 and Background
Minor Islands also retain their original establishing purpose from E.O. 1959 “as a preserve, breeding
ground and winter sanctuary for native birds.” Similarly, Matia Island retains its original establishing
purpose from E.O. 7595 “ . . . as a refuge and breeding ground for migratory birds and other wildlife.”
In October 1976, the San Juan Islands Wilderness was established (P.L. 94-557) which added the purposes
of the Wilderness Act (P.L. 88-577, Sept. 3, 1964) including “. . .to secure for the American people of
present and future generations the benefits of an enduring resource of wilderness” to all units of the
Refuge except for Smith, Minor, Turn, and Jones Islands, and a small portion of Matia Island. Under P.L.
97-333 (1982) and PLO 6489 (1983) Jones Island was removed from the San Juan Islands NWR and
transferred to the State of Washington for use as a public recreation area. Under executive orders since the
mid-to-late 1800s and in the Refuge establishing documents, it was stated that some islands which are now
units of the San Juan Islands NWR retain “lighthouse purposes.” These “lighthouse purposes” today
translate into a variety of navigation aids which are maintained under the jurisdiction of the U.S. Coast
Guard.
1.8 Relationship to Other Planning Efforts
When developing a CCP, the Service considers the goals, objectives, strategies, and other information
available in existing national, regional, and ecosystem plans, state fish and wildlife conservation plans, and
other landscape-scale plans developed for the same watershed or ecosystem in which the Refuges are
located. To the extent possible, the CCP is expected to be consistent with the existing plans and assist in
meeting their conservation goals and objectives. The following table identifies some of the key plans
which were reviewed by members of the core team while developing the CCP. Columns indicate portions
of the Draft CCP/WSP/EA where these plans were applicable.
Relationship of Other Planning Efforts to the Protection Island
and San Juan Islands CCP/WSP/EA
Plans Reviewed
Goals,
Objectives,
& Strategies
(Chapter 2)
Affected
Environment
(Chapters 3-5)
Appendices
State of Washington Comprehensive Wildlife Conservation Strategy
(WDFW 2005)
  
Willamette Valley, Puget Trough, Georgia Basin Ecoregional
Assessment (Floberg et al 2004)
 
San Juan County Marine Stewardship Area Plan (Evans and
Kennedy 2007)
 
Strait of Juan de Fuca Geographic Response Plan (WDOE 2008)  
San Juan Islands and North Puget Sound Geographic Response
Plans (WDOE 2009)

DRAFT Rising to the Challenge: Strategic Plan for Responding to
Accelerating Climate Change (USFWS 2009b)

DRAFT Strategic Plan for Inventories and Monitoring on National
Wildlife Refuges: Adapting to Environmental Change (USFWS 2010)

The California Current Marine Bird Conservation Plan (Mills et al
2005)
 
Seabird Conservation Plan (USFWS 2005)   
Black Oystercatcher (Haematopus bachmani) Conservation Action
Plan (Tessler et al 2007)
 
National Bald Eagle Management Guidelines (USFWS 2007)  
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-15
Recovery Plan for the Stellar Sea Lion (NMFS 2008)  
2009-2015 Game Management Plan (WDFW 2008) 
Recovery Plan For The Golden Paintbrush (Castilleja levisecta).
(USFWS 2000)
 
1.9 Issues Addressed in the Draft CCP/WSP/EA
The Service defines an issue as “Any unsettled matter that requires a management decision, e.g., an
initiative, opportunity, resource management problem, threat to the resources of the unit, conflict in uses,
public concern, or the presence of an undesirable resource condition (602 FW 1 1.6 K).” The following
issues are within the scope of the CCP/WSP/EA and are considered by the Service to be the major issues
to address in this planning process:
Human-caused wildlife disturbance: How do we reduce the incidences of human-caused wildlife
disturbance? How do we keep people and their pets off closed Refuge islands? How do we encourage
boaters to stay far enough away from closed shorelines and closed islands to not disturb wildlife? How
do we discourage low-flying aircraft?
Oil and other contaminant spills: What can the Service do to reduce the risk of oil and other
contaminant spills? In the event of a spill, is there anything the Service can do to change or modify the
impacts? How can we reduce the amount of liquid fuel transported to Protection Island? What can be
done about local contaminants affecting Refuge resources (i.e., rogue creosote logs and marine pilings)?
Marine debris and derelict fishing gear: What role can the Service play in reducing the presence of
marine debris and derelict fishing gear from the Refuge and adjacent marine areas?
Invasive Species: What can the Service do to prevent the introduction and dispersal of invasive plants
and animals and facilitate their removal from the Refuges?
Climate Change: What monitoring is needed to better prepare for and address climate change impacts
to species and habitats?
Deer Management: Should the Service eliminate deer on Protection Island to enhance seabird nesting
habitat and reduce erosion?
Habitat Restoration: Should we actively restore native plant communities on the bluffs, shoreline,
grasslands, and forests of the Refuges, and if so, which areas should be restored?
Camping: Should we continue to allow camping on Matia and Turn Islands? Are there ways of
modifying the camping program to make it more appropriate for San Juan Islands Refuge and to better
facilitate wildlife-dependent uses? How do we prevent illegal camping?
Boat Access: What is the best way to manage watercraft access to Refuge islands and still provide
undisturbed shoreline for wildlife use? How do we reduce the incidences of unauthorized landings and
trespass on closed shorelines and closed islands?
Wildlife-Dependent Uses: How do we educate Refuge visitors and the communities around the
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Chapter 1 – Introduction 1-16 and Background
Refuges about the natural and cultural resources of the Salish Sea? How can we enhance visitors’
abilities and opportunities to observe and photograph wildlife both on- and off-Refuge?
Community Outreach: How can we use community outreach to enhance Salish Sea conservation
efforts?
Wilderness: How do we identify Refuge islands or inform the public to maintain a distance from the
islands to prevent disturbance with Refuge signs and still meet the intent of wilderness? How do we
maintain or enhance the visitor’s wilderness experience on Matia Island and within the San Juan
Archipelago?
Research: How can the Service improve coordination with the larger research community? What
research studies would assist in answering Refuge management questions? How can impacts to wildlife
and habitats from research activities be minimized? How can the Service encourage off-Refuge research
which benefits Refuge resources?
1.10 Refuge Vision Statements
Protection Island’s unique combination of shoreline, spits, and sandy bluffs are a safe haven for thousands
of nesting rhinoceros auklets, as well as tufted puffins, pigeon guillemots, and pelagic cormorants. Bald
eagles roost and nest in the forested uplands while harbor seals and elephant seals haul out and raise their
pups on the shoreline. Environmental education opportunities are available to dedicated college students
and volunteers through research and stewardship projects. Staff and partners cooperatively conduct
monitoring and research on the flora and fauna, providing sound science to inform management. Refuge
staff and year-round resident caretakers maintain minimal infrastructure. Although the island is located
close to human population centers, people respect wildlife’s need for refugia and maintain a distance from
shorelines while viewing the abundant seabird and marine mammals that can be found on the island.
Amid the cacophony of wildlife, a sense of peace nurtures the desire to care for the natural treasure that is
Protection Island.
Protection Island NWR
The San Juan Islands NWR is a sanctuary for a dazzling array of marine life, including black
oystercatchers, pigeon guillemots, tufted puffins, pelagic and double-crested cormorants, glaucous-winged
gulls, and pinnipeds. Nestled among large islands and marine waters abuzz with human activity, the
Refuge encompasses many small islands, rocks, and reefs scattered throughout the San Juan Archipelago.
The breathtaking forces of nature shaped this marine wilderness embracing many miles of shoreline, reefs,
lichened rocks, bluffs and old-growth forests. These wild lands inhabited by wild creatures and supporting
healthy breeding seabird colonies provide the backdrop for folks to enjoy, appreciate, and understand the
Refuge’s valuable place in the Salish Sea ecosystem. Working with partners, we provide opportunities for
researchers, boaters, birders, and other nature lovers to develop a stewardship ethic for our Refuge islands.
San Juan Islands NWR
1.11 Refuge Goals
Goal 1: Protect, maintain, and restore high quality natural shoreline and rocky cliff habitats for optimum
productivity and abundance of seabirds, marine mammals, waterfowl, and shorebirds.
Goal 2: Protect, maintain, and restore the native vegetative communities and structure of sandy bluffs to
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-17
maximize habitat for breeding seabirds.
Goal 3: Restore, maintain, and protect high quality native savanna, grasslands, and herbaceous bald habitat
to increase the species diversity, richness, and population levels of associated flora and fauna.
Goal 4: Restore, maintain, and protect the species richness and diversity of the forests and woodlands by
fostering a complex understory and diversity of tree age classes.
Goal 5: Restore, maintain, and protect the biological integrity of natural, small wetlands to increase species
diversity and productivity.
Goal 6: Increase Refuge visitors’ knowledge of the natural and cultural resources of the Salish Sea
ecosystem; help visitors understand the role of the National Wildlife Refuge System; and encourage them
to contribute to the stewardship of Protection Island and San Juan Islands NWRs.
Goal 7: Increase Salish Sea residents’ and visitors’ knowledge of the natural and cultural resources of the
ecosystem; help them understand the Refuges’ role in protecting those resources, and learn how they can
reduce their impacts to those resources.
Goal 8: Promote the wilderness character and experience of the San Juan Islands Wilderness Area.
Goal 9: Encourage and support collection of scientific information that assists in managing Refuge
resources and contributes to a greater understanding of the natural and cultural resources of the Salish Sea
ecosystem.
1.12 Planning Process
The Service began the process of gathering information needed in developing a CCP/WSP for these
Refuges in 2006. The core planning team consists of a project leader, deputy project leader, biologist,
public use/law enforcement officer, GIS specialist, and a regional planner. An extended team assisted in
the development of the CCP by providing special expertise and/or by reviewing and commenting on early
drafts of the plan. The extended team consisted of various professionals from other agencies and within
the Service. A list of core and extended team members is located in Appendix K.
The National Wildlife Refuge System Improvement Act requires that the public have an opportunity for
active involvement in CCP development and revision. Service policy also states that CCPs are to be
developed in an open, public process and the agency is committed to securing public input throughout the
process. A Notice of Intent (NOI) was published in the Federal Register on August 14, 2007, to invite the
public to participate in the planning process and solicit their comments. Additional outreach efforts during
initial scoping (Aug 2007-April 2008) emphasized face-to-face meetings with key state and federal
agencies, marine resource committees, federally elected officials, tribal governments, non-governmental
organizations, and the research community. After initial public scoping, preliminary management options
were presented at two public open house meetings in September 2008, and additional agency coordination
occurred. The Service also distributed two planning updates, initiated news releases, and gave
presentations at community and other non-governmental organizations to inform the public, invite
discussion and solicit feedback. Planning issues, management alternatives and an internal review draft of
the CCP were developed taking into consideration comments received throughout the planning process.
Additional information regarding public involvement activities is located in Appendix K.
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction 1-18 and Background
References
Evens, K. and J. Kennedy. 2007. San Juan County Marine Stewardship Area Plan. Accessed at
http://www.sjcmrc.org/programs/msaplan_files/msaplan.htm on 2/2/2010.
Bennett, J. 2007. Summary of field work on NWR islands, 2007. Report to USFWS – Washington
Maritime NWRC. Sequim, WA. 2pp.
Floberg , J., M. Goering, G. Wilhere, C. MacDonald, C. Chappell, C. Rumsey, Z. Ferdana, A. Holt, P.
Skidmore, T. Horsman, E. Alverson, C. Tanner, M. Bryer, P. Iachetti, A. Harcombe, B.
McDonald, T. Cook, M. Summers, D. Rolph. 2004. Willamette Valley-Puget Trough-Georgia
Basin Ecoregional Assessment, Volume One: Report. Prepared by The Nature Conservancy with
support from the Nature Conservancy of Canada, Washington Department of Fish and Wildlife,
Washington Department of Natural Resources (Natural Heritage and Nearshore Habitat programs),
Oregon State Natural Heritage Information Center and the British Columbia Conservation Data
Centre. 150pp.
Gaston, A. J. and S. B. Dechesne. 1996. Rhinoceros Auklet (Cerorhinca monocerata), The Birds of North
America Online (A. Poole, Ed.). Ithaca: Cornell Lab of Ornithology; Retrieved 2/10/2010 from the
Birds of North America Online: http://bna.birds.cornell.edu/bna/species/212
Jeffries, S.J.1, P.J. Gearin2, H.R. Huber2, D.L. Saul1, and D.A. Pruett1. 2000. Atlas of Seal and Sea Lion
Haulout Sites in Washington. Washington Department of Fish and Wildlife, Wildlife Science
Division, 600 Capitol Way North, Olympia WA. 150pp. Retrieved 2/10/2010 from
http://wdfw.wa.gov/wlm/research/papers/seal_haulout/seal_atlas.pdf
Meany, Edmond. 1907. Vancouver’s Discovery of Puget Sound: Portraits and Biographies of the Men
Honored in the Naming of Geographic Features of Northwestern America. The MacMillan
Company, London.
Mills, K. L., Sydeman, W.J. and Hodum, P. J. (Eds.). 2005. The California Current Marine Bird
Conservation Plan, v. 1, PRBO Conservation Science, Stinson Beach, CA
NMFS 2008. National Marine Fisheries Service. 2008. Recovery Plan for the Steller Sea Lion
(Eumetopias jubatus). Revision. National Marine Fisheries Service, Silver Spring, MD. 325 pp.
Nysewander, D. R. 2003. Summary of May 2003 survey of breeding American black oystercatchers in the
San Juan Island/Bellingham Bay/Deception Pass vicinity, in preparation for May 2005
oystercatcher breeding surveys. Washington Department of Fish and Wildlife, Olympia, WA.
Pearson, S.F., P.J. Hodum, M. Schrimpf, J. Dolliver, T.P. Good, and J.K. Parrish. 2009. Rhinoceros
Auklet (Cerorhinca monocerata) Burrow Counts, Burrow Density, Occupancy Rates, and
Associated Habitat Variables on Protection Island, Washington: 2008 Research Progress Report.
Washington Department of Fish and Wildlife, Wildlife Science Division, Olympia, WA.
Suckley, G. 1859. Water birds. Zoological report. In Explorations and surveys for a railroad route from the
Mississippi River to the Pacific Ocean. Vol. 12, Pt. 3, No. 3, Chap.II. Washington, D.C.
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 1 – Introduction and Background 1-19
Tessler, D.F., J.A. Johnson, B.A. Andres, S. Thomas, and R.B. Lanctot. 2007. Black Oystercatcher
(Haematopus bachmani) Conservation Action Plan. International Black Oystercatcher Working
Group, Alaska Department of Fish and Game, Anchorage, Alaska, U.S. Fish and Wildlife Service,
Anchorage, Alaska, and Manomet Center for Conservation Sciences, Manomet, Massachusetts.
115 pp.
USFWS 1985. Master Plan, Protection Island National Wildlife Refuge. USDI, U.S. Fish and Wildlife
Service, Region 1.
USFWS 1986. Refuge Management Plan, San Juan Islands National Wildlife Refuge. U.S. Fish and
Wildlife Service, Region 1.
USFWS 1978. San Juan Islands Wilderness Plan. U.S. Fish and Wildlife Service, Olympia, WA. 40 pp.
USFWS 2000. Recovery Plan for the Golden Paintbrush (Castilleja levisecta). U.S. Fish and Wildlife
Service, Portland, Oregon. 51 pp.
USFWS 2005. Regional Seabird Conservation Plan, Pacific Region. U.S. Fish and Wildlife Service,
Migratory Birds and Habitat Programs, Pacific Region, Portland, Oregon.
USFWS 2007. National Bald Eagle Management Guidelines. U.S. Fish and Wildlife Service. Arlington,
VA. 23 pp.
USFWS 2009a. Annual Report of Lands Under Control of the U.S. Fish & Wildlife Service as of
September 30, 2009. USDI, USFWS, Division of Realty, January 2010.
USFWS 2009b. DRAFT Rising to the Challenge: Strategic Plan for Responding to Accelerating Climate
Change. U.S. Fish and Wildlife Service. Accessed Feb 2, 2010 from
http://www.fws.gov/home/climatechange/strategic_plan.html
USFWS 2010. DRAFT Strategic Plan for Inventories and Monitoring on National Wildlife Refuges:
Adapting to Environmental Change. U.S. Fish and Wildlife Service, Washington, D.C. 55
pp.
WDFW 2005. State of Washington Comprehensive Wildlife Conservation Strategy. Washington
Department of Fish and Wildlife. Olympia, WA.
WDFW 2008. 2009-2015 Game Management Plan. Wildlife Program, Washington Department of Fish
and Wildlife, Olympia, WA.
WDOE 2008. Strait of Juan de Fuca Geographic Response Plan. Washington Department of Ecology.
Accessed from http://www.ecywa.gov/programs/spills.preparedness/GRP/strait_juan.htm
WDOE 2009. San Juan Islands and North Puget Sound Geographic Response Plan. Washington
Department of Ecology. Accessed from
http://www.ecywa.gov/programs/spills.preparedness/GRP/san_juan.htm
WWU 2009. The Salish Sea Map, Stefan Freelan, Western Washington University, 2009.
Accessed Feb. 8, 2010 from http://myweb.facstaff.wwu.edu/~stefan/SalishSea.htm
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-1
Chapter 2. Alternatives, Goals, Objectives, and Strategies
The National Environmental Policy Act (NEPA) requires Federal agencies to evaluate a full range of
reasonable alternatives to a proposed action. This chapter describes the alternatives development process
and three possible alternatives for management of Protection Island and San Juan Islands Refuges.
2.1 Alternatives Development
During development of the CCP alternatives presented in this chapter, the Service reviewed and
considered a variety of local and regional physical and biological resource conditions, as well as social,
economic, and organizational aspects important for managing the Refuges. This background information
is described more fully in Chapters 3, 4, and 5. As is appropriate for a National Wildlife Refuge, natural
resource considerations were fundamental in designing alternatives. House Report 105-106
accompanying the National Wildlife Refuge System Improvement Act of 1997 (Pubic Law 105-57) states
“…the fundamental mission of our System is wildlife conservation: wildlife and wildlife conservation
must come first.”
Public involvement was and will continue to be an important part of the planning process. Local, State,
and Federal agencies and elected officials were contacted by the Refuge planning team to ascertain
priorities and problems as perceived by others. The team also contacted Refuge users, nonprofit groups,
and community organizations to ensure that their comments and ideas were considered during the
development of alternatives. The planning team then developed preliminary management concepts and
strategies which they presented to the public in a planning update and at two public meetings in
September 2008. More details regarding public involvement can be found in Appendix K.2.
Based on all of the information gathered and feedback from others through the public involvement
process, the Service developed three alternatives for the Comprehensive Conservation Plan for Protection
Island and San Juan Islands NWRs. Alternative A: Current Management is how the Refuges are being
managed now and can also be referred to as the “Status Quo” or “No Action” Alternative. Alternatives B
and C are the “Action” alternatives that reflect changes from current management. Alternative B is the
Service’s preferred alternative.
2.2 Actions Considered but Not Developed
Early in the alternatives development process, the planning team considered including the following
actions in one or more CCP alternatives. These actions were ultimately eliminated from further
consideration in this CCP for the reasons provided.
The Service initially considered eliminating camping on both Turn and Matia Islands because the
Service’s Appropriate Refuge Uses policy raised concerns regarding the appropriateness of camping on
the San Juan Islands Refuge. After hearing the State’s concerns, gathering additional information, and
conducting a review of the situation, the Service has a better appreciation for how camping on Refuge
islands facilitates multi-day, non-motorized boat trips to observe wildlife and enjoy nature in the San Juan
Islands (also see Appendix I – Findings of Appropriateness). Therefore the Service is no longer
proposing to eliminate all camping as part of Alternatives B and C. Elimination of camping, on Turn
Island only, is still under consideration in Alternative C and there will be other changes to camping under
both Alternatives B and C.
Elimination of Camping from Matia Island
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-2
A Variety of Nearshore Management Tools
The planning team reviewed and considered promoting a large variety of nearshore management tools for
their potential to provide greater protection for Refuge wildlife and habitats. The tools that were
considered but are not currently proposed in the CCP include Washington Department of Fish and
Wildlife (WDFW) designations, including sea urchin exclusion zones and shellfish beach closures; San
Juan County initiatives, including voluntary bottomfish recovery areas and boat-free zones for orcas;
United States Coast Guard’s regulated navigation areas; and the International Maritime Organization’s
Areas to be Avoided. Where they occur around Refuge islands, many of these tools can and do help to
reduce human disturbance to Refuge wildlife. However, these particular tools were intended primarily for
purposes other than Refuge wildlife and therefore the Service has decided not to propose initiating new
designations of these types around Refuge islands. The Service will continue to work with the
Washington Department of Natural Resources (WDNR) and their aquatic lands designations which are
appropriate for protecting Refuge wildlife. There are currently two aquatic reserve proposals that include
areas around Protection Island Refuge and portions of San Juan Islands Refuge.
Opening More Refuge Islands to Public Access
During public scoping there were a few requests made for allowing public access to closed islands. The
Service did consider these requests, but ultimately decided not to open any Refuge islands that are
currently closed to the public. Refuge islands provide some of the last areas where seabirds and marine
mammals can remain relatively undisturbed. Some of the best Refuge wildlife observation opportunities
are available not on the islands themselves but by observing from a boat at a distance that does not disturb
the wildlife. The Service does propose improving their visitor services program on the two Refuge
islands that are currently open to the public. There will also be some opportunities for limited public
access to closed Refuge islands in association with volunteering for Refuge stewardship projects and
conducting or assisting with approved research or monitoring studies.
2.3 Similarities Among Alternatives
Alternatives contain some common features. These are presented below to reduce the length and
redundancy of the individual alternative descriptions in other portions of this chapter.
2.3.1 Features Common to all Alternatives (A through C)
Under each alternative, actions will be implemented over a period of 15 years as funding becomes
available. Priorities are identified in Appendix G although special funding initiatives, unforeseeable
management issues, and other budget issues will likely require adjustments to the implementation
schedule. The CCP will be reviewed at least every five years and updated as necessary.
Implementation Subject to Funding Availability
In accordance with Department of the Interior and Service Policies (517 DM 1, 30 AM 12, and 7 RM 14,)
an integrated pest management (IPM) approach would be utilized to eradicate, control, or contain pest,
nuisance, and invasive species on the Washington Maritime National Wildlife Refuge Complex
(Complex). IPM would involve determining the best control methods based upon effectiveness, cost, and
minimal ecological disruption. These methods may include physical, cultural, biological, and chemical
treatments which may be used alone or in combinations. If a pesticide would be needed on a Refuge, the
most specific (selective) chemical available for the target species would be used unless considerations of
Integrated Pest Management (IPM)
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-3
persistence or other environmental and/or biotic hazards would preclude it. Appendix E provides more
details regarding the selective use of pesticides for pest management on the Refuges.
Minimizing Human-caused Wildlife Disturbance
Current staffing and funding levels limit staff presence in this very popular boating area. As a result,
enforcement of regulations, including no trespassing on closed islands and no harassment of Refuge
wildlife, is limited. Limited staff also means that there are few contacts with boaters and other visitors
and limited capacity to educate the public about “why a closer look hurts.” Refuge staff and partners
have identified the reduction of human disturbance to be one of the highest priorities for seabird and
marine mammal management (USFWS 2005, WDFW 2005, NMFS 2009, Evans and Kennedy 2007,
Mills et al 2005). Given the increasing levels of recreation in the area (see Chapter 5) and limited places
of refuge for wildlife in the San Juan Archipelago, efforts must be made to protect wildlife from human
disturbance on Refuge islands. Throughout the term of this plan, Refuge staff will continue to prohibit
public access on Refuge lands except for designated areas of Matia and Turn Islands; work with
volunteers and partners (U.S. Coast Guard, Washington State Parks and Recreation Commission, WDFW,
Sheriff’s Office, Sound Watch, commercial cruise boats, etc.) to adequately patrol Refuge islands and to
report incidences of non-compliance; and cooperate with DNR to maintain a 200-yard conservation lease
and tideland withdrawal at Protection Island to reduce human disturbance. Also see Chapter 4 for more
information regarding the threat of human-caused disturbance.
The Complex staff will actively participate in and contribute to planning and conservation efforts for
ongoing and future land and energy development projects, monitoring and research associated with
climate change, oil spill response, removal of derelict fishing gear, and other activities that may affect
Refuge wildlife resources and habitats. Pre-spill planning and preparedness is required by the Federal Oil
and Pollution Act of 1990. Refuge staff have been involved with Washington State Department of
Ecology and others in preparing Area Geographic Response Plans, as part of the oil and hazardous
substance spill prevention and response (
Participation in Regional Planning and Conservation Efforts
RCW Title 90 Chapter 90.56). Participation in the North Pacific
Coast Landscape Conservation Cooperative will provide Refuge staff with a means to tie in with a larger
scale assessment of the impacts of climate change (USFWS 2009a). Protecting focal resources by
supporting partners’ efforts to reduce or eliminate fisheries bycatch and the removal of derelict fishing
gear continues to be a priority for the Refuges. Complex staff would cultivate working relationships with
pertinent local, county, State, and Federal agencies to stay abreast of current and potential developments;
and would utilize outreach, education, and information as needed to raise awareness of Refuge resources
and their dependence on a healthy local environment.
The Service will continue to uphold Federal laws protecting cultural resources, including the National
Historic Preservation Act (NHPA), Archaeological Resources Protection Act (ARPA), and Native
American Graves Protection and Repatriation Act (NAGPRA). These laws also mandate consultation
with Native American tribes, the State Historic Preservation Office (SHPO), and other preservation
partners. The NHPA mandates that all projects that use federal funding, permitting, or licensing be
reviewed by a cultural resource professional to determine if there is the potential to affect cultural
resources. An inventory will be conducted as necessary, and appropriate actions to mitigate effects will
be identified prior to implementation of the project. A project-specific determination will be conducted
for all undertakings as defined by NHPA, including habitat maintenance and restoration projects as well
as new or expanded trails, roads, facilities, and public use areas.
Cultural Resources Protection
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-4
The Service will continue to uphold laws protecting paleontological resources. These include the
National Environmental Policy Act of 1969 (NEPA), the Paleontological Resources Preservation Act of
2009 (PRPA), and various sections of Fish and Wildlife Service regulations. If found in direct
association with archaeological resources they are also protected by the Archaeological Resources
Protection Act (ARPA Section 3).
Paleontological Resources Protection
Maintaining of Existing Facilities
Periodic maintenance of Refuge buildings and facilities will be necessary regardless of the alternative
selected. Periodic maintenance and upgrading of facilities is necessary for safety and accessibility and to
support management and visitor needs, and is incorporated in the Service Asset Management System.
The Complex will continue to coordinate with Washington State agencies regarding areas of mutual
interest. This includes communications with WDFW regarding management of state wildlife resources,
and in particular, the state-owned Zella Schultz Seabird Sanctuary on Protection Island; WDNR regarding
aquatic lands management; Washington State Parks and Recreation Commission regarding Visitor
Services programs on Turn and Matia Islands.
State Coordination
Communication with Native American Tribes who have an interest in the Refuges would continue under
all alternatives. The Service seeks assistance from Tribes in Native American Graves Protection and
Repatriation Act and National Historic Preservation Act and related issues. The Service is also interested
in partnering with Tribes to provide cultural resources education and interpretation opportunities.
Tribal Coordination
2.3.2 Features Common to Action Alternatives (B & C)
Protection Island Site Plan Development and Implementation
Many Refuge buildings on Protection Island need to be removed, upgraded, or replaced. Expanding solar
power capabilities and reducing the need to transport liquid fuels to the island is another high priority.
Several roads associated with prior resort development on the island have been decommissioned while
others are still being used for Refuge management purposes, however their locations may not be ideal. At
the same time, some seabird areas have expanded or changed locations and are now in close proximity to
buildings. Both Alternatives B and C would include the development and implementation of a site plan
for all Refuge administration and research facilities, buildings, roads, and trails on Protection Island to
improve Refuge management capability, facilitate research activities, and reduce disturbance to important
wildlife habitat areas.
Increase Land and Resource Protection
Due to the high level of management concern, Refuge staff will work in cooperation with the State to
increase protection of Refuge islands. Protections include coordinating with WDFW to include Zella M.
Schultz Seabird Sanctuary in the Protection Island Refuge boundary; allowing the enforcement of Refuge
laws and regulations throughout the island; cooperating with WDNR in establishing an aquatic reserve
designation around Protection and Smith/Minor Islands; working with WDNR to acquire tideland and
bedland leases/withdrawls around Refuge islands; and limiting or eliminating aquaculture activities near
Refuge islands.
The overall objective for fire management on the Complex is to promote a program that provides for
firefighter and public safety, reduces the occurrence of human-caused fires, and ensures appropriate
Fire Management
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Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-5
suppression response capability to meet expected wildland fire complexity. A Fire Management Plan was
completed for the entire Complex, including Protection Island and San Juan Islands Refuges, in 2004.
The use of prescribed fire as a management tool was not included in that plan. Since Alternatives B and
C describe habitat restoration projects and IPM techniques that may include the use of prescibed fire, the
Fire Management Plan would be updated to reflect this.
Increase Staffing Levels
Alternatives B and C identify many actions above and beyond those under current management
(Alternative A). The ability to accomplish those actions depends in part on increased staffing, which is
also proposed in Alternative B and C. While increased staffing is never guaranteed, it is anticipated that
over the 15-year life of the CCP there would be some increase in staffing levels. For additional
information regarding proposed staffing levels, see Appendix G.
2.4 Summary of Alternatives
Alternative A: Current Management
Under Alternative A, the Refuges would continue with current management which focuses on
stewardship, including removing unnecessary roads and human structures; allowing natural processes to
occur with minimal human intervention; monitoring wildlife species; and working with partners to reduce
the risk of oil spills, clean up marine debris, and educate boaters to minimize human-caused wildlife
disturbance. Recreational activities would continue as they have in the past and be facilitated through a
State Parks partnership.
Alternative B: Preferred Alternative
This alternative would continue many of the activities in Alternative A, but would also include more
active habitat management projects, such as removing deer from Protection Island to enhance seabird
nesting habitat and forest habitat; restoration projects on the spits, grasslands, and forests to increase
native plant diversity; and the facilitation of research studies that answer Refuge management questions.
Public use changes include enforcing no-pets regulations on all San Juan Islands Refuge lands and closing
some areas on Turn Island, including all of the rocky shoreline to the east and the south east “pocket”
beach as well as some of the Island’s interior. Overnight camping on Turn and Matia Islands would be
limited to visitors arriving by human-powered craft only, and a camping reservation system would be
initiated. There would be more emphasis on enhancing the public’s understanding and appreciation of the
Refuges’ natural, cultural, and wilderness resources through both on- and off-Refuge interpretation and
education programs. There would be fewer large signs but more medium sized signs installed on San
Juan Islands Refuge units to discourage close approach or trespassing on closed islands. There would
also be more emphasis on working with existing partners and developing new partnerships to accomplish
objectives.
Alternative C
This Alternative is very similar to Alternative B, although there are differences. In Alternative C there
would be fewer acres of native habitat restoration, as well as fewer research studies and surveys compared
to Alternative B; camping would continue with fewer campsites on Matia Island, however, Turn Island
would be limited to day-use only. Compared to Alternative B, fewer and mostly smaller signs would be
used in Alternative C to identify closed Refuge islands and reduce human-caused wildlife disturbance.
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-6
Table 2.1 Summary of CCP Alternatives (PI = Protection Island Refuge and SJ = San Juan Islands Refuge)
Key Management Topics Alternative A (Current Management) Alternative B (CCP Team Preferred) Alternative C
HABITAT MANAGEMENT
Multiple Habitats -Work with partners to minimize human
disturbance to wildlife and habitats.
-WDNR tideland lease and bedland
withdrawal around PI.
- Participate in oil spill prevention and
preparedness planning and activities near PI.
- Opportunistic shoreline clean-up activities
with volunteers and partners.
- Survey and use integrated pest management
strategies on invasive species, except no
prescribed burning.
Same as Alt A., plus:
- Increase efforts to work with partners to minimize human disturbance to wildlife and
habitats.
-Work with WDNR to renew and enhance the Service’s ability to manage the tidelands
and protect bedlands up to 200 yards waterward from the low water line around PI and
SJ.
- Participate in oil spill prevention and preparedness planning and activities in PI and SJ
vicinity.
- Regularly work with partners and volunteers to conduct yearly shoreline clean-up
activities on all Refuge islands. Support off-Refuge efforts to remove derelict fishing
gear from the marine environment surrounding the Refuges.
- Include prescribed burning as a potential restoration and integrated pest management
tool.
-Work with WDFW to reduce deer impacts by removing deer from PI.
- Monitor for and remove non-native rats, rabbits, and red fox.
- Conduct a survey of mammalian predators, assess impacts, and develop a management
plan if necessary.
Shoreline - Occasional mowing of spits on PI.
- Periodic shoreline nourishment with gravel
on PI.
- Restore a total of approximately 41 acres of
spit habitat on PI, Smith, and Minor Islands to
native-species-dominated strand community and
manage spits for more open vegetation.
- Continue shoreline nourishment with gravel
stockpiles on PI.
- Remove marine debris and contaminated
materials.
- Conduct a survey of herbivores and predators
of management concern, assess impacts, and
develop a management plan if necessary.
Same as Alt. B, except:
Only up to 15 acres of spit
restoration.
Sandy Bluffs No specific habitat enhancement actions. - Control invasive plants and increase native plants.
- At end of lease term, remove structures and improve habitat conditions in the
expanding area of the auklet colony.
- Enhance vegetation characteristics on up to 20 acres of bluffs on PI.
Savanna Grasslands and
Herbaceous Balds
Removal of unnecessary roads and structures
on PI.
- Restore up to 200 acres of savanna grassland
on PI and up to 20 acres on Smith and Turn
Islands to increase native species composition to
Same as Alt. B, except:
- Manage/restore up to 40 acres of
savanna grassland on PI and up to 10
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-7
Key Management Topics Alternative A (Current Management) Alternative B (CCP Team Preferred) Alternative C
benefit a variety of wildlife.
- Maintain herbaceous bald patches and where
appropriate, associated rare plants on 28 islands
within SJ.
acres on Smith and Turn Islands.
- Maintain herbaceous bald patches
on 14-28 islands within SJ.
Forests and Woodlands Removal of unnecessary roads on PI. - Restore connectivity, crown closure, regeneration, and associated understory of 80
acres of forest and woodland on PI.
- Increase protection and maintenance of mature and old-growth forests and associated
understory on 6 islands within SJ.
Wetlands No specific habitat enhancement actions. - Determine if it is feasible to restore part of the historic wetlands on PI.
- Conduct hydrologic study, and if needed, restore natural hydrology to Smith and Matia
Islands wetlands.
- Monitor and control invasive plants and animals.
RESEARCH AND MONITORING
Research Program
Management
- Good collaboration between the Service and
long-term PI researchers.
- Old buildings used by researchers in 2
separate locations on PI.
- Increase collaboration between the Service and the larger research community.
- Place more emphasis on studies that answer Refuge management questions and species
information gaps.
- Replace old buildings with a single bunkhouse relocated on PI to serve researchers and
short-term volunteers.
-Develop Refuge databases, GIS layers, and integrate data into regional databases.
Research - Glaucous-winged gull behavior studies.
- Studies on a variety of other topics.
Same as Alt. A, plus more emphasis on the
following topics:
- Conduct research to determine best
habitat restoration methods.
- Study erosion rates of bluffs and
deposition on spits.
- Research to evaluate wildlife response to
habitat restoration.
- Demography studies of seabirds and
marine mammals.
- Hydrology studies of wetlands.
Same as Alt. B, minus:
- Demography study of marine mammals.
- Study of bluffs erosion and deposition
Surveys - Long-term monitoring of rhinoceros auklets,
pigeon guillemots, glaucous-winged gulls, and
marine mammals.
- Summer wildlife surveys.
Same as Alt. A, plus:
- Refuge and ecosystem-wide monitoring
of nesting seabirds and black
oystercatchers.
- Bald eagle surveys.
- Periodic surveys for rare butterflies and
Same as Alt. B, minus:
- Winter wildlife survey.
- Bald eagle survey.
- Breeding bird survey on PI.
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-8
Key Management Topics Alternative A (Current Management) Alternative B (CCP Team Preferred) Alternative C
rare plants.
-Winter wildlife surveys.
- Breeding bird survey on PI.
Scientific Assessments - Some assessments conducted and species
lists developed.
- Systematically complete plant surveys on
SJ.
- Determine and map Refuge vegetation
types to the association level.
- Conduct assessment of reptiles and
amphibians.
- Conduct assessment of invasive wetland
species as well as herbivores and predators
of management concern.
Same as Alt. B, minus:
- Reptile and amphibian assessment.
Cultural and Paleontological
Resources
- Cultural resource surveys of mostly project-specific
locations.
- No paleontological studies conducted.
Same as Alt. A, plus complete prioritized systematic cultural resource surveys of all
Refuge lands and resurvey known sites approximately every 5 years.
- Systematic paleontological survey on PI.
- Develop GIS layer for paleontological resources.
Effectiveness Monitoring -Limited monitoring - As strategies are implemented, monitor progress toward meeting CCP objectives under
Goals 1-8
ON-REFUGE VISITOR SERVICES AND FACILITIES
Protection Island No public access.
SJ Refuge entry areas and
open and closed areas.
Turn Island
- All beaches are Refuge entry and boat
landing areas.
- All island areas except steep slopes are
open.
Turn Island
-West and southwest beaches are the only authorized entry and boat landing areas.
- Southeast beach is closed to landing and public use.
- Designated public use area and loop trail are open to visitors; the rest of the island is
closed.
Matia Island
- Rolfe Cove dock and beach are the only authorized entrances to the island.
- Refuge access and camping prohibited at or from the 4 other pocket beaches.
- 2-acre public use area adjacent to Rolfe Cove is open to day-use and camping.
- Wilderness loop trail is open to visitors; the rest of the island (wilderness area and island perimeter) is closed.
- All other Refuge islands and rocks are closed.
SJ Public Use Times and
Other Restrictions
- Turn and Matia Islands open year-round, 24
hours per day.
- Turn - Pets allowed on leash.
- Matia - Pets allowed on leash within 2-acre
picnic/campground area only.
- Turn and Matia public use areas open to day-use.
- Outside of day-use hours, only authorized
campers arriving via human-powered boats are
allowed on Turn and Matia Islands.
Same as Alt. B, except Turn Island is
only open to day-use; no camping
allowed.
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-9
Key Management Topics Alternative A (Current Management) Alternative B (CCP Team Preferred) Alternative C
- No pets allowed.
SJ -WA State Parks
Seasonal Dock and Mooring
Buoys
Dock on Matia Island at Rolfe Cove from mid-April to mid/late-October.
Turn – 3 buoys off N. beach – available year round.
Matia – 2 buoys in Rolfe Cove - available year round.
SJ - Camping Camping allowed only in designated
campsites: Turn Is - 13 campsites.
Matia Is. - 6 campsites.
Visitors arriving by motorized and
nonmotorized boats are permitted to camp on
the Refuge.
Camping allowed only in designated campsites:
Turn Is. - 8 campsites.
Matia Is. - 6 campsites.
Only visitors arriving by human-powered boats
are permitted to camp on the Refuge.
New camping reservation system initiated.
Same as Alt. B, except
Turn Is - no camping.
Matia Is. - 4 campsites.
SJ - Campfires Liquid fuel or gel camp stoves allowed. Some
unauthorized charcoal and wood campfires
occurring.
Matia and Turn – Better enforcement of no fires. Liquid fuel or gel camp stoves
allowed.
SJ - Trails Turn - 0.9 mile loop trail around perimeter.
Matia - 1.2 mile loop trail.
Re-evaluate trail locations for impacts to cultural resources and small meadow. Reroute
if necessary but continue to provide a loop trail on both Turn and Matia Islands.
Wildlife Observation,
Photography, and
Interpretation
Unstructured opportunities. No interpretive
signs. Infrequent interpretive walks
conducted.
- Design and install informational and interpretive signs at Turn and Matia Islands.
- Interpretive trail at Turn Island.
- Local experts and/or trained volunteers provide short “ranger” programs during some
summer weekends.
Environmental Education -
Scientific Studies
Some students given opportunities to do
scientific studies on PI and SJ.
At least 3 college students/5 years given opportunities to do scientific studies on PI and
SJ.
Environmental Education -
Stewardship Projects
PI - 1 per year.
SJ – less than 1 per year.
PI - 1+ projects per year
SJ - 1+ projects per year
SJ - Commercial Outfitters Allowed for camping and day-use on Turn and Matia Islands. Special use permit required Allowed for camping and day-use on
Matia Is. and day-use only on Turn
Is. Special use permit required.
Visitor Services Facilities
and Maintenance
WA State Parks provides public use facilities (toilets, picnic tables, campsite markers, etc.) and
maintenance on Turn and Matia Islands.
Same as Alts. A and B, except:
The Service/other partners would
provide facilities and maintenance on
Turn Is. after camping is phased out.
SJ - Law enforcement for
public safety/resource
protection on Turn and
Matia.
WA State Parks enforces State Parks
regulations on Turn Island and on 2 acres of
Matia Island. The Service enforces
regulations on all Refuge lands.
WA State Parks enforces State Parks regulations
and new Service regulations on all of Turn and
Matia Islands. The Service enforces regulations
on all Refuge lands.
Same as Alt. B, except phase out WA
State Parks law enforcement on Turn
Is. as camping is phased out.
OFF-REFUGE VISITOR SERVICES
Wildlife Observation and Some staff coordination with Port Townsend Same as Alt. A, plus additional Refuge staff time, volunteers, and partners facilitate and
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-10
Key Management Topics Alternative A (Current Management) Alternative B (CCP Team Preferred) Alternative C
Photography Marine Science Center (PI) and SoundWatch
(SJ) to facilitate wildlife observation and
minimize human-caused wildlife disturbance.
educate many individuals, organizations, and ecotourism businesses to enhance wildlife
observation and appreciation of Refuge wildlife and minimize human-caused wildlife
disturbance.
Natural and Cultural
Resource Interpretation
PI - 1 panel at John Wayne Marina and no
other interpretive activities.
SJ - no interpretive panels or activities.
Same as Alt. A, plus:
PI – 1 more panel (Port Townsend area)
and 2 additional interpretive venues.
SJ – Panels at 5 marina locations and 2
additional interpretive venues.
Same as Alt. B, except:
SJ – Panels at 5 marina locations only.
Environmental Education
Materials
SJ - Refuge poster at marinas. Same as Alt. A, plus educational materials prepared for use by local teachers. Provide
information at local community events, tourist agencies, ferries, etc.
Boater Education to Reduce
Human-Caused Wildlife
Disturbance
PI - Direct boater education.
SJ - Poster at marinas and some coordination
with partners to provide boater education
regarding human-caused disturbance to
wildlife.
PI - Continue direct boater education.
PI & SJ - Increase educational materials, working with partners, and direct contacts with
boaters to improve education regarding human-caused disturbance to wildlife.
SAN JUAN ISLANDS WILDERNESS
Many of the above actions apply to wilderness as well as non-wilderness lands. The following items are more specific to wilderness concerns.
Refuge Signs to Reduce
Human-Caused Wildlife
Disturbance
Standard text and 11” x 14” size Refuge
boundary/closure signs used on most islands.
Very large (4’x 6’) “stay away 200 yds” signs
on approximately 15 islands.
Improve text and increase size of boundary/
closure signs to medium (15’’ x 20’’) on most
islands and a larger version (22” x 28”) on some
islands. Use very large “stay away 200 yds”
signs on up to 10 of the most sensitive islands.
Improve text of boundary/closure
signs, but use standard 11” x 14” size
only. Use very large “stay away 200
yds” signs on up to 10 of the most
sensitive islands.
Sights and Sounds - Use only tools authorized for wilderness areas (e.g., no chainsaws) to maintain a narrow and natural appearing trail on Matia Island.
- Conduct garbage and marine debris cleanups.
- Promote 2000-foot aircraft ceiling over wilderness islands.
Solitude and Numbers of
Visitors
- Boat landing limited to Rolfe Cove only, but
not well enforced.
- No number limits on commercial day-use
groups.
- Enhance enforcement of limited landing and camping areas.
- Limit the size of commercial day-use groups to not more than 20 people.
Wilderness Education Limited wilderness education. - Integrate wilderness themes and messages in new or updated Refuge information
products, interpretive panels, volunteer training, and outreach programs whenever
appropriate.
Researchers' House
Marina
Maintenance Shop
and Garage
Field/Research Office
Unoccupied Residences
Extended User's Residence
Refuge Caretaker's Cabin
Pumphouse
Tower Water Storage Tank
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 7/30/2003 WDOT True Color Aerial Photography
Figure 2.1 Protection Island NWR - Alternative A (Current Management)
Legend
Facilities and Infrastructure
Existing Building
Roads, Trails, and Yards
Land Status
Refuge Managed Lands
Zella Schultz Seabird Sanctuary
(not within Approved Refuge Boundary)
No public access is allowed on Protection Island
NWR. Extended users' access is based on the
terms of their lease. Researchers and others'
access is by special use permit.
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-11
!
!
Sequim Bay
Discovery
Bay
PROTECTION ISLAND
NATIONAL WILDLIFE REFUGE
Port Townsend
Sequim
)l
AÎ
?¨
UV19
Strait of Juan de Fuca
0 5 10
Miles
UTM ZONE 10N VICINITY MAP
NAD 83
Kilometers
Miles
0 0.4
0 0.4
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-12
To preserve the quality of our map, this side was left blank intentionally.
Large Unused USCG Cistern
Unused USCG Concrete Watch Shack
Unused USCG Wooden Residential Building
NOAA Tower
Unused USCG Concrete Block Light and Foghorn
Metal SST RADAR Tower
USCG Light Tower
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2006 USDA NAIP True Color Aerial Photography
Figure 2.2 San Juan Islands NWR, Smith and Minor Islands - Alternative A (Current Management)
!
!
!
!
! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Facilities and Infrastructure
Existing Infrastructure
Land Status
Refuge Managed Lands
VICINITY MAP
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-13
Smith and Minor Islands are closed to public
use.
UTM ZONE 10N
NAD 83
Kilometers
Miles
0 0.2
0 0.2
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-14
To preserve the quality of our map, this side was left blank intentionally.
Wilderness Loop Trail
1.2 Mile Loop Trail
FWS Partnership with WSPRC for
Management of Public Uses and Facilities
WSPRC Seasonal Dock
Available mid-April
to mid/late-October
6 Fee-Use Campsites
Visitors arriving by motorized
and human-powered boats are
permitted to camp.
Liquid Fuel Camp Stoves Allowed
!]
!]
!]
!] L L
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2004 WDNR True Color Aerial Photography
Figure 2.3 San Juan Islands NWR, Matia Island - Alternative A (Current Management)
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!
! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Public Use
!x Dock
!g Information and Pay Station
!9 Campsite
! Composting Toilet
!5 Picnic Site
!] Large Refuge Sign
L Mooring Buoy (available year-round)
Wilderness Loop Trail
Shoreline Landing and Public Access
Open Shoreline
Closed Shoreline
2 Acre Public Use Area
Closed to Public Access
Land Status
Refuge Managed Lands
VICINITY MAP
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Rolfe Cove
!g
!5
!9
!9
!9 !9
!9
!x !9 !
!]
Area Enlarged
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-15
Year-round 24 hours/day public access.
WSPRC enforces State Parks regulations on 2
acres of Matia Island. FWS enforces regulations
on all refuge lands.
Kilometers
Miles
0 0.2
0 0.2
UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-16
To preserve the quality of our map, this side was left blank intentionally.
!9
L
L
L
13 Fee-Use Campsites
Visitors arriving by motorized
and human-powered boats
are permitted to camp.
FWS Partnership with WSPRC for
Management of Public Uses and Facilities
Charcoal Fires or Liquid Fuel Campstoves Allowed
0.9 Mile Loop Trail
!]
!9
!9
!9 !g
!9
!9
!
!9
!9
!9
!9
!9
!9
!9
!!5
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2004 WDNR True Color Aerial Photography
Figure 2.4 San Juan Islands NWR, Turn Island - Alternative A (Current Management)
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! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Public Use
!g Information and Pay Station
!9 Campsite
! Composting Toilet
!5 Picnic Site
!] Large Refuge Sign
L Mooring Buoy (available year-round)
Hiking Trail
Shoreline Landing and Public Access
Open Shoreline
Land Status
Refuge Managed Lands
Year-round 24 hours/day public access.
WSPRC enforces State Parks regulations on Turn
Island. FWS enforces regulations on all refuge
lands.
VICINITY MAP
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-17
Miles
Kilometers
0 0.1
0 0.1 UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-18
To preserve the quality of our map, this side was left blank intentionally.
Relocate and Replace
Researchers' House
with Bunkhouse
Maintain Marina and
Replace Creosote Pilings with
Non-Toxic Pilings
Maintain
Maintenance Shop
and Garage
Replace and Possibly Relocate
Field/Research Office
Remove Unoccupied Residences
As Soon As Possible
Remove Extended User's Residence
at the End of Extended User's Term
Relocate and Replace
Refuge Caretaker's Cabin
Coinciding with End of
Extended User's Term
Maintain Pumphouse
Maintain and Upgrade
Water Storage and Delivery Infrastructure
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 7/30/2003 WDOT True Color Aerial Photography
Figure 2.5 Protection Island NWR - Alternatives B and C
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!
Sequim Bay
Discovery
Bay
PROTECTION ISLAND
NATIONAL WILDLIFE REFUGE
Port Townsend
Sequim
)l
AÎ
?¨
VICINITY MAP UV19
Strait of Juan de Fuca
0 5 10
Miles
Legend
Habitat Restoration
Forest and Woodland
Restore connectivity, crown closure,
regeneration, and associated understory
of approximately 80 acres.
Spits
Restore up to 40 (Alt. B) or 5-15 (Alt. C)
acres on Protection, Smith, and Minor
Islands.
Wetland
If feasible, restore part of the extent of the
historic (1868) wetland.
Savanna and Grassland
Manage and/or restore up to 200 (Alt. B)
or 20-40 (Alt. C) acres.
Rhinoceros Auklet Nesting Habitat
Evaluate and improve vegetation
characteristics on up to 20 acres.
Facilities and Infrastructure
Remove
Maintain and/or Upgrade
Relocate/Replace
Roads, Trails, and Yards
Land Status
Refuge Managed Lands
Zella Schultz Seabird Sanctuary
(coordinate with WDFW to include within
Approved Refuge Boundary)
No public access is allowed on Protection Island
NWR. Extended users' access is based on the
terms of their lease. Researchers and others'
access is by special use permit.
Chapter 2. Refuge Management Direction 2-19
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
UTM ZONE 10N
NAD 83
Kilometers
Miles
0 0.4
0 0.4
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-20
To preserve the quality of our map, this side was left blank intentionally.
Leave Large Unused USCG Cistern
As Is but Seal Holes
NOAA Tower
Metal SST RADAR Tower
USCG Light Tower
Unused USCG Concrete Block Light and Foghorn
Remove Unused USCG Wooden Residential Building and
Associated Contaminants to the Maximum Extent Possible
Remove Unused USCG Concrete Watch Shack and
Associated Contaminants to the Maximum Extent Possible
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2006 USDA NAIP True Color Aerial Photography
Figure 2.6 San Juan Islands NWR, Smith and Minor Islands - Alternatives B and C
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! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Habitat Management
Spits
Restore up to 40 (Alt. B) or 5-15 (Alt. C)
acres on Protection, Smith, and Minor
Islands.
Wetland
Conduct hydrologic study and if necessary,
restore hydrological processes.
Savanna, Grassland, and Balds
Manage and/or restore up to 20 (Alt. B)
or 10 (Alt. C) acres on Smith and Turn
Islands.
Facilitites and Infrastructure
Remove
Leave As Is with Modifications
and/or Contaminants Removal
Land Status
Refuge Managed Lands
VICINITY MAP
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-21
Smith and Minor Islands are closed to public
use.
UTM ZONE 10N
NAD 83
Kilometers
Miles
0 0.2
0 0.2
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-22
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Wilderness Loop Trail
1.2 Mile Loop Trail
Reevaluate trail locations for impacts.
Reroute if necessary.
FWS Partnership with WSPRC for
Management of Public Uses and Facilities
WSPRC Seasonal Dock
Available mid-April
to mid/late-October
6 (Alt. B) or 4 (Alt. C) Fee-Use Campsites
Only visitors arriving by human-powered
boats are permitted to camp.
New camping reservation
system initiated.
Design and install informational
and interpretive signs.
Liquid Fuel Camp Stoves Allowed
!]
!]
!]
!] L L
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2004 WDNR True Color Aerial Photography
Figure 2.7 San Juan Islands NWR, Matia Island - Alternatives B and C
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!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Shading of text and/or symbols indicates:
Proposed Action (Alternatives B/C)
Public Use
!x Dock
!g Information and Pay Station
!9 Campsite
! Composting Toilet
!5 Picnic Site
!] Large Refuge Sign
L Mooring Buoy (available year-round)
Wilderness Loop Trail
Shoreline Landing and Public Access
Open Shoreline
Closed Shoreline
2 Acre Public Use Area
Closed to Public Access
Habitat Management
Forest and Woodland
Protect and maintain existing areas.
Wetland
Conduct hydrologic study and if necessary,
restore hydrological processes.
Savanna, Grassland, and Balds
Maintain patches and associated rare
plants on 28 (Alt. B) or 14-28 (Alt. C) islands.
Land Status
Refuge Managed Lands
Public use areas open to day-use. Outside of
day-use hours, only authorized campers arriving
via human-powered boats are allowed.
WSPRC enforces State Parks regulations and
new FWS regulations on all of Matia Island.
FWS enforces regulations on all refuge lands.
VICINITY MAP
Alt. C: Remove 2
campsites
!
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Rolfe Cove
!g
!5
!9
!9
!9 !9
!9
!x !9 !
!]
Area Enlarged
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-23
Kilometers
Miles
0 0.2
0 0.2
UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-24
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L
L
L
8 Fee-Use Campsites
Only visitors arriving by human-powered
boats are permitted to camp.
New camping reservation
system initiated.
FWS Partnership with WSPRC for
Management of Public Uses and Facilities
Liquid Fuel Campstoves Only
0.9 Mile Interpretive Loop Trail
Reevaluate trail locations for impacts.
Reroute if necessary.
Design and install informational
and interpretive signs.
!]
!9
!9
!9 !g
!9
!9
!
!9
!9
!9 !!5
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2004 WDNR True Color Aerial Photography
Figure 2.8 San Juan Islands NWR, Turn Island - Alternative B
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! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Shading of text and/or symbols indicates:
Proposed Action (Alternative B)
Public Use
!g Information and Pay Station
!9 Campsite
! Composting Toilet
!5 Picnic Site
!] Large Refuge Sign
L Mooring Buoy (available year-round)
Hiking Trail
Shoreline Landing and Public Access
Open Shoreline
Closed Shoreline
Closed to Public Access
Habitat Management
Forest and Woodland
Protect and maintain existing areas.
Savanna, Grassland, and Balds
Manage and/or restore up to 20 acres on
Smith and Turn Islands.
Land Status
Refuge Managed Lands
Designated public use areas and loop trail open
to day-use. Outside of day-use hours, only
authorized campers arriving via non-motorized
boats are allowed.
WSPRC enforces State Parks regulations and
new FWS regulations on all of Turn Island. FWS
enforces regulations on all refuge lands.
VICINITY MAP
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-25
Miles
Kilometers
0 0.1
0 0.1 UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-26
To preserve the quality of our map, this side was left blank intentionally.
L
L
L
Only open to day-use.
No camping allowed.
FWS and other partners
Management of Public Uses and Facilities
0.9 Mile Interpretive Loop Trail
Reevaluate trail locations for impacts.
Reroute if necessary.
Design and install informational
and interpretive signs.
Liquid Fuel Campstoves Only
!]
!g
!
!!5
Data Sources: Refuge Boundaries from USFWS/R1; Imagery from 2004 WDNR True Color Aerial Photography
Figure 2.9 San Juan Islands NWR, Turn Island - Alternative C
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! !
!
Sequim Bay
Discovery
Bay
!`
Victoria
Sidney
Bellingham
Anacortes
Port Angeles Port Townsend
Friday Harbor
!`
0 20 40
Miles
Legend
Shading of text and/or symbols indicates:
Proposed Action (Alternative C)
Public Use
!g Information and Pay Station
! Composting Toilet
!5 Picnic Site
!] Large Refuge Sign
L Mooring Buoy (available year-round)
Hiking Trail
Shoreline Landing and Public Access
Open Shoreline
Closed Shoreline
Closed to Public Access
Habitat Management
Forest and Woodland
Protect and maintain existing areas.
Savanna, Grassland, and Balds
Manage and/or restore up to 10 acres on
Smith and Turn Islands.
Land Status
Refuge Managed Lands
Designated public use areas and loop trail open
to day-use.
Phase out WSPRC law enforcement as camping
is phased out. FWS enforces regulations on all
refuge lands.
VICINITY MAP
Protection Island and San Juan Islands National Wildlife Refuges Draft CCP/WSP/EA
Chapter 2. Refuge Management Direction 2-27
Miles
Kilometers
0 0.1
0 0.1 UTM ZONE 10N
NAD 83
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-28
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Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-29
2.5 Goals, Objectives, and Strategies
Goals and objectives are the unifying elements of successful refuge management. They focus and
describe management priorities and actions that resolve issues and help bring a refuge closer to its
vision. A vision broadly reflects the refuge purposes, the Refuge System mission and goals, other
statutory requirements, and larger-scale plans as appropriate. Public use and wildlife/habitat
management goals then define general targets in support of the vision, followed by objectives that
direct effort into incremental and measurable steps toward achieving those goals. Finally, strategies
identify specific tools and actions to accomplish objectives.
The goals for Protection Island and San Juan Islands Refuges over the next 15 years under the CCP
are presented on the following pages. The goal order does not imply any priority. Each goal is
followed by the objectives that pertain to that goal. Some objectives pertain to multiple goals and
have simply been placed in the most appropriate spot. Similarly, some strategies pertain to multiple
objectives. The timeframe for accomplishing CCP objectives is the 15-year life of the CCP, unless
otherwise specified in the objective.
In the development of this CCP, the Service has prepared an environmental assessment that evaluates
three management alternatives. One set of goals applies to all alternatives. The objectives and
strategies, however, vary by alternative.
Readers, please note the following:
The objective statement as written, including bulleted items, specifically applies to the Preferred
Alternative, Alternative B. In some objectives, bolded text is used to show how the preferred
alternative varies from the other alternatives. How it varies is displayed in the short row that comes
after each objective statement where text substituting for the bolded text is provided for the other
alternatives.
Below each objective statement are the strategies that could be employed in order to accomplish the
objective. The  marks alongside each strategy show which alternatives include that strategy. If a
column for a particular alternative does not include a  mark for a listed strategy, it means that
strategy would not be used in that alternative.
The “Rationale” section provides additional information and the reasoning behind the objectives and
strategies.
GOAL 1: Protect, maintain, and restore high quality, natural shoreline and cliff habitats for
optimum productivity and abundance of seabirds, marine mammals, waterfowl, and
shorebirds.
Objective 1.1 Restore Spit Habitat
Restore and manage up to 41 acres on Violet Spit, Protection Island, and spits associated with
Smith/Minor Islands for nesting glaucous-winged gulls, breeding and molting elephant seals, and other
native wildlife and plant species with the following attributes:
• Sparse (<30% cover), medium to low (max. 3-4 feet in height) grasses interspersed with vegetation
composed of species associated with the North Pacific Maritime Coastal Sand Dune and Strand
ecological system (e.g., gum weed, dune grass, sand verbena, plantain, and yarrow).
• Natural screens (e.g., driftwood or variation in topography) for concealment of nearest nests.
• <25% invasive species (e.g., Scotch broom or Spartina grass) on spit habitat.
• Eliminate disturbance and impacts to seabird nesting habitats from deer.
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-30
• No non-native rats, rabbits, or red fox.
�� No feral cats or trespassing domestic cats or dogs.
• Reduce impacts from other native mammalian predators (e.g., coyote, raccoon, mink, and river
otter).
Alternatives Refuge/Unit Alt A Alt B Alt C
The alternative is modified by replacing bold
type above with the text in this row.
PI and
Smith/Minor
0 acres Up to 41
acres
5-15 acres
Strategies Applied to Achieve Objective Refuge/Unit Alt A Alt B Alt C
a. Remove, control, and prevent establishment
of invasive non-native plant species and treat
infestations with IPM techniques using
cultural, mechanical, physical, biological, or
chemical means.
PI and
Smith/Minor
---  
b. Restore the strand vegetation community
using prescribed burns and mechanical
techniques (e.g., mowing, grading), planting,
and maintenance. Update the fire
management plan to include prescribed fires
and wildfire suppression tactics.
PI ---  
c. Monitor response of glaucous-winged gull
fledgling rates and predation after restoration.
PI ---  
d. Work with WDFW to remove deer from PI.
Appropriate methods to remove deer will be
determined in a step-down planning process.
PI ---  
e. Continue to survey for presence of non-native
rats, rabbits, red foxes, feral cats and
dogs, and use appropriate tools to maintain
zero population levels.
PI and
Smith/Minor
PI only  
f. Conduct a survey of native mammalian
predators (e.g., coyote, raccoon, mink, and
river otter), determine impacts, and if
necessary develop management actions under
a separate step-down management plan.
PI and
Smith/Minor
PI only  
g. Monitor, and when found, remove marine
debris and contaminated material.
PI and
Smith/Minor
PI only  
Rationale: This objective will preserve this rare habitat type in the Salish Sea and restore the plant
communities found there. These spits are formed when marine currents sweep large volumes of sand
and gravel from the sandy cliffs and bluffs of Protection and Smith Islands and deposit them onto the
shoreline. Armoring of the shorelines with jetties, bulkheads, and seawalls has often resulted in the
alteration or disappearance of these unique habitats in the Salish Sea. The distal end of Violet Spit on
Protection Island is densely choked with non-native beach grass that fills deep ruts left from machinery.
Closer to the marina, a remnant population of native plants can be found that are associated with spit
habitats (called strand communities) such as gum weed, yarrow, beach morning glory, sea plantain,
thrift, and yellow sand verbena. Strand communities typically grow in sand, have low density of
vegetation, and provide open spaces between plants.
This objective will also reduce gull chick mortality through habitat management. An invasion by
nonnative plant species (i.e., beach grass) has rendered sections of the spit that once supported the
highest abundance of gull nests as unsuitable. Researchers have noted that gull nests located in or near
Protection Island and San Juan Islands National Wildlife Refuges Administrative Draft CCP/WSP/EA
Chapter 2 Alternatives, Goals, Objectives, and Strategies 2-31
the taller, dense vegetation are more susceptible to bald eagle predation (80%), while those located in
more open strand communities appear to be more successful (15%, J Galusha, pers. comm.). This is
due, in part, because the open space allows better access to eagles on the ground by mobbing gulls. In
addition, research in other colonies has shown that a high degree of heterogeneity (i.e., debris) around
nests provides concealment from predation and natural screens from nearby nests (Good 2002). These
components are particularly important in areas with high disturbance and predation pressure, as is the
case on Violet Spit, where disturbance or predation from bald eagles, other gulls, and deer can limit
reproductive success (Hayward and Henson 2008, Galusha et al. 2005). Restoration should be
conducted in a manner that maintains the cohesion of the colony because the colony is less likely to
shift to new, disjointed areas (J. Galousha, pers. comm.). In addition, this objective will also benefit
elephant seals which have recently pupped on Protection and Smith/Minor Islands. Replacing the thick
European beach grass with more open vegetation will provide more habitat for elephant seals, which
prefer open sandy beaches, dunes, and spits for breeding and molting.
Approximately 93% of bird species or subspecies that have become extinct since the 1800s were found
on island habitats and 42% of those occurred due to predation by introduced mammals (Courchamp et
al. 2003). Rats are present on approximately 80% of the world’s islands and are responsible for at least
50% of global extinctions and countless local extinctions (Dolan and Heneman, 2007). There is no
indication that rats are present on Refuge islands, however they could potentially colonize an island via
a ship wreck or by accessing the island via authorized vessels. Given that they reproduce quickly and
can have a devastating effect on island breeding seabirds, detection and control must be rapid. Rabbits
are ubiquitous on San Juan and Lopez Islands and pellets have been observed on Nob Island within the
San Juan Islands NWR (Murphy pers. comm.), however, they have not been found on Protection
Island. Rabbits can denude small islands of vegetation leading to erosion and loss of nesting habitat,
compete for nesting burrows and eject eggs from occupied burrows, and serve as a year-round food
resource for predators (USFWS 2005, McChesney & Tershy 1998, Hodum & Wainstein 2002, Donlan
& Heneman 2007). Rabbits also reproduce rapidly and control measures must be rapid to be effective.
Other non-native mammalian predators include red fox, feral cats, and domestic cats and dogs; native
mammalian predators of concern are coyote, raccoon, mink, and river otter.
Deer populations can thrive with an increase in abundance of forage as will be the case with intensive
revegetation efforts planned for the island. In New Zealand, researchers found that changes caused by
heavy fallow deer browsing may have permanently altered the ecosystem and suggested that
maintaining very few or zero deer was the only successful method to assist regeneration of native
species (Husheer and Frampton 2005). In fact, Simberloff (2008)