Lower Suwannee National Wildlife Refuge Comprehensive Conservation Plans

              Comprehensive Conservation Plan I
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Table of Contents
INTRODUCTION________________________________________________1
Mission of the National Wildlife Refuge System ___________________________________ 1
Description of the Refuges ____________________________________________________ 1
Purpose of and Need for Plan __________________________________________________ 1
Overview of the Department of the Interior________________________________________ 3
Mission of the Fish and Wildlife Service _________________________________________ 3
Ecosystem Management and Priorities __________________________________________ 3
Legal Policy, Administrative Guidelines, and Other Considerations ____________________ 5
PLANNING ISSUES AND OPPORTUNITIES___________________________5
Overview of the Public Involvement Process ______________________________________ 5
Scope of Issues, Concerns and Opportunities _____________________________________ 6
LOWER SUWANNEE NATIONAL WILDLIFE REFUGE ____________________7
Background Information ______________________________________________________ 7
Location _______________________________________________________________ 7
History ________________________________________________________________ 7
Purpose _______________________________________________________________ 7
Function within the Ecosystem ___________________________________________ 8
Agreements____________________________________________________________ 8
Management Direction _______________________________________________________ 8
Mission ________________________________________________________________ 8
Vision Statement ______________________________________________________ 10
Management Alternatives ______________________________________________ 10
Management Action ____________________________________________________ 10
Goals, Objectives and Strategies _________________________________________ 11
Plan Implementation ________________________________________________________ 22
Partnerships __________________________________________________________ 22
Annual Work Plans_____________________________________________________ 23
Step-Down Management Plans __________________________________________ 23
Funding and Staffing ___________________________________________________ 25
Resource Projects _____________________________________________________ 25
Volunteers ____________________________________________________________ 33
Monitoring and Evaluation ______________________________________________ 34
CEDAR KEYS NATIONAL WILDLIFE REFUGE _________________________35
Background Information _____________________________________________________ 35
Location ______________________________________________________________ 35
History _______________________________________________________________ 35
Purpose ______________________________________________________________ 35
Function within the Ecosystem __________________________________________ 37
Agreements___________________________________________________________ 37
Management Direction ______________________________________________________ 38
Mission ______________________________________________________________ 38
Vision Statement ______________________________________________________ 38
Management Alternatives ______________________________________________ 38
II Lower Suwannee
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Management Action ____________________________________________________ 38
Goals, Objectives and Strategies _________________________________________ 39
Plan Implementation ________________________________________________________ 46
Partnerships __________________________________________________________ 46
Annual Work Plans_____________________________________________________ 46
Step-Down Management Plans __________________________________________ 46
Funding and Staffing ___________________________________________________ 48
Resource Projects _____________________________________________________ 48
Volunteers ____________________________________________________________ 51
Monitoring and Evaluation ______________________________________________ 51
APPENDIX A. ________________________________________________53
Legal Mandates____________________________________________________________ 53
Service-Wide Policy Directions _______________________________________________ 55
APPENDIX B. ________________________________________________57
The Public Involvement Process
Value Statements________________________________________________________ 58
Keys Issues and Concerns Summary_________________________________________ 59
Attachment One: Summary of
Public Scoping Comments ____________________________________________ 65
Attachment Two: Notes from the
Public Scoping Meeting, September 21,1999 ____________________________ 66
Attachment Three: Notes from the
Public Scoping Meeting, July 27, 1999 __________________________________ 68
Attachment Four: Background Information,
Comment Sheet, and Mailing Request Form ____________________________ 70
Attachment Five: Planning Update____________________________________ 77
APPENDIX C. ________________________________________________83
Mailing List of Agencies and Individuals
APPENDIX D. ________________________________________________87
Comments and Service Responses to the Draft Comprehensive Conservation Plans
APPENDIX E. _________________________________________________95
References
APPENDIX F. _________________________________________________99
Glossary of Terms
APPENDIX G. _______________________________________________ 103
Refuge Operational Needs System
Maintenance Management System
APPENDIX H. _______________________________________________ 105
Federal and State Listed Species
APPENDIX I. ________________________________________________ 121
Lower Suwannee National Wildlife Refuge Compatibility Determination
Comprehensive Conservation Plan III
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APPENDIX J. ________________________________________________ 133
Cedar Keys National Wildlife Refuge Compatibility Determination
APPENDIX K. _______________________________________________ 141
Intra-Service Section 7 Consultation
APPENDIX L. ________________________________________________ 145
List of Preparers
FIGURES
1. Organizational Chart of the Fish and Wildlife
Service within the U.S. Department of the Interior _______________________________ 2
2. North Florida Ecosystem Map, Fish and Wildlife Service __________________________ 4
3. Vicinity Map, Lower Suwannee National Wildlife Refuge _________________________ 9
4. Organizational Chart for Lower Suwannee and
Cedar Keys National Wildlife Refuges _______________________________________ 26
5. Land Acquisition Map, Lower Suwannee National Wildlife Refuge_________________ 29
6. Vicinity Map, Cedar Keys National Wildlife Refuge _____________________________ 36
TABLES
1. Inholdings Within the Approved Boundary of
Lower Suwannee National Wildlife Refuge ___________________________________ 30
2. Funding Needs for Special Resource Projects of
Lower Suwannee National Wildlife Refuge ___________________________________ 33
3. Funding Needs for Special Resource Projects of
Cedar Keys National Wildlife Refuge ________________________________________ 50
4. Federal and State Listed Species that Occur or
May Potentially Occur on Lower Suwannee National Wildlife Refuge _____________ 105
5. Federal and State Listed Species that Occur or
May Potentially Occur on Cedar Keys National Wildlife Refuge __________________ 109
6. Priority Bird Species for South Atlantic Coastal Plain __________________________ 111
7. Species Suites for Lower Suwannee and
Cedar Keys National Wildlife Refuges ______________________________________ 119
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Comprehensive Conservation Plan 1
INTRODUCTION
Mission of the National Wildlife Refuge System
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.
Description of the Refuges
Located along the southern edge of the Big Bend Region of Florida’s
west coast, Lower Suwannee and Cedar Keys National Wildlife Refuges
represent two jewels of the National Wildlife Refuge System (Fig. 2).
Lower Suwannee National Wildlife Refuge was established on April 10,
1979, for the purpose of protecting, maintaining, and enhancing a rare
and beautiful ecosystem. The refuge, which is predominantly wetlands,
is bisected by 20 miles of Stephen Foster’s famous Suwannee River
and includes 20 miles of coastal marsh habitat along the Gulf coast.
The salt marshes and tidal flats at the river’s mouth are a paradise for
shorebirds and fish. The refuge also encompasses an unusual diversity
of floodplain hardwoods; cypress-lined sloughs; cabbage palm and cedar
islands; cypress domes; hydric, mesic, and xeric hardwood hammocks; and
low pine flatwoods.
Cedar Keys National Wildlife Refuge was established on July 16, 1929,
to protect a breeding ground for colonial nesting migratory birds. Today,
the refuge is comprised of 13 islands ranging in size from 1 to 120 acres
and totaling 762 acres. Four of the islands, Snake, Seahorse, North and
Deadman Keys, are designated Wilderness Areas. Additionally, Atsena
Otie Key is state-owned and managed as part of Cedar Keys National
Wildlife Refuge through a Memorandum of Understanding. Cedar Keys
Refuge ranks as one of the largest nesting areas for colonial wading birds
in north Florida.
Purpose of and Need for the Plan
Under the provisions of the National Wildlife Refuge System
Improvement Act of 1997, the U. S. Fish and Wildlife Service is required
to develop comprehensive conservation plans for all lands and waters of
Introduction
Comprehensive
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Skimmers
USFWS Ken Litzenberger
Iris
USFWS Robert LeMarie
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the National Wildlife Refuge System. These plans will guide management
decisions and set forth strategies for achieving the purposes of each refuge
unit. The National Environmental Policy Act ensures that the Service
will assess the environmental impacts of any actions taken as a result of
implementing these plans.
The following Comprehensive Conservation Plans and have been prepared
for the Lower Suwannee and Cedar Keys National Wildlife Refuges,
located in Levy and Dixie Counties, Florida. Their purposes are to identify
the roles the refuges will play to support the mission of the National
Wildlife Refuge System and the North Florida Ecosystem. The plans
outline issues, concerns, and opportunities expressed to the Service during
a series of public scoping meetings, workshops, and on comment sheets.
They also provide a description of desired future conditions and propose
long-range guidance to accomplish the purposes, missions, and visions of
the refuges. This guidance is presented for each refuge in a listing of
goals, objectives, and strategies resulting from an analysis of possible
management alternatives.
The final plans will serve as operational guides for management of these
refuges over the next 10 to 15 years.
The plans will:
n provide a clear statement of the desired future conditions when refuge
purposes and goals are accomplished;
n provide refuge neighbors and visitors with a clear understanding of the
reasons for management actions on the refuge;
n ensure management of the refuge reflects policies and goals of the
National Wildlife Refuge System;
n ensure refuge management is consistent with federal, state, and county
plans;
n provide long-term continuity in refuge management; and
n provide a basis for operation, maintenance, and capital improvement
budget requests.
River Trail Overlook
USFWS ©Ken Sourbeer
Introduction
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Figure 1. Organizational Chart of the Fish and Wildlife Service within the U.S. Department of the Interior
Comprehensive Conservation Plan 3
Overview of the Department of the Interior
The Department of the Interior is the principal landowner of most of
our nationally owned public lands and cultural resources. Management
responsibilities include fostering wise use of our land and water resources,
protecting our fish and wildlife, preserving the environmental and cultural
values of our national parks and historical places, managing the National
Wildlife Refuge System, and providing for the enjoyment of life through
outdoor recreation (Fig. 1).
Mission of the Fish and Wildlife Service
The Fish and Wildlife Service is the principal organization through which
the Department of the Interior carries out its responsibilities of working
with others to conserve, protect, and enhance the nation’s fish and wildlife
and their habitats for the continuing benefit of people.
The Service manages the National Wildlife Refuge System, the world’s
largest collection of lands set aside specifically for the protection of fish and
wildlife populations and habitats. More than 520 national wildlife refuges
covering more than 93 million acres provide important habitat for native
plants and many species of insects, amphibians, reptiles, fish, birds, and
mammals. These refuges also play a vital role in preserving threatened
and endangered species, as well as offering a wide variety of recreational
opportunities. Many refuges have visitor centers, wildlife trails, and
environmental education programs. Nationwide, more than 30 million
visitors annually hunt, fish, observe and photograph wildlife, or participate
in interpretive activities on national wildlife refuges. The Service also
manages all national fish hatcheries.
Ecosystem Management and Priorities
For the Service, the North Florida Ecosystem includes portions of south
Georgia and most of north and central Florida (Fig 2). The area includes
southern temperate and subtropical climates, numerous physiographic
districts, and many unique and widely varied habitat types. The northern
boundary of this ecosystem includes the watersheds of the St. Mary’s
and Suwannee Rivers, including the Okefenokee Swamp. The northeast
boundary begins at Camden County, Georgia, and proceeds down the east
Introduction
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Swallow-tailed Kite
USFWS ©Ken Myers
Cypress Swamp
USFWS ©Ken Sourbeer
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Figure 2. North Florida Ecosystem Map, Fish and Wildlife Service
Comprehensive Conservation Plan 5
coast of Florida to the line separating Brevard and Indian River Counties.
The ecosystem boundary then turns west and includes Orange, Lake, and
Sumter Counties as its southern border. The western boundary includes
all Florida counties from Sarasota north through Taylor and Jefferson
Counties. In Georgia, the ecosystem is inclusive of all counties east
and south of Thomas, Colquitt, Worth, Turner, Ben Hill, Coffee, Ware,
Charlton, and Camden Counties.
Habitats found within this ecosystem include barrier islands; xeric scrub;
pine flatwoods; freshwater marshes, lakes, streams and springs; mixed
hardwood/pine forests; cypress swamps and domes; dry prairies; maritime
forests; hardwood hammocks; estuarine marshes; pine rocklands; sandhill
woodlands; coastal strands; sawgrass prairies; sloughs; and tree islands.
The North Florida Ecosystem team currently has three priorities which
include restoring scrub habitat, conserving coastal habitat, and protecting
the water quality of the Suwannee River Basin.
Legal Policy, Administrative Guidelines, and Other Considerations
Administration of national wildlife refuges is governed by various
international treaties, federal laws, Presidential Executive Orders and
regulations affecting land and water, as well as by the conservation
and management of fish and wildlife resources. Policies for management
options for the refuge are further refined by administrative guidelines
established by the Secretary of the Interior and policy guidelines
established by the Director of the Fish and Wildlife Service.
Select legal summaries of treaties and laws relevant to administration of
the National Wildlife Refuge System and management of these refuges are
provided in Appendix A.
Overview of the Public Involvement Process
The Comprehensive Conservation Plans for Lower Suwannee and Cedar
Keys National Wildlife Refuges have been prepared in compliance with
the provisions of the National Wildlife Refuge System Improvement
Act of 1997. Plan preparation is in compliance with the National
Environmental Policy Act of 1969, which requires the Service to
actively seek public involvement in the preparation of environmental
assessments and environmental impact statements. It also requires the
Service to seriously consider all reasonable alternatives, including a No
Action Alternative and a Proposed Alternative. These alternatives are
described in Environmental Assessements prepared in conjunction with
the comprehension conservation plans for both Lower Suwannee and
Cedar Keys Refuges.
Planning Issues
and Opportunities
Introduction
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CCP Planning Team
USFWS Allyne Askins
Boat on River
USFWS Allyne Askins
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Identification of important issues provides a sound basis for initiating
the development of management alternatives, objectives, and strategies.
To ensure that the future management of these refuges reflects the
issues, concerns, and opportunities expressed by the public, a variety
of scoping mechanisms was used. A complete description of the public
participation process during the draft and final plan preparation is included
in Appendices B and D.
Public Participation Highlights
n A comment packet was used to gather general information on current
and potential refuge operations.
n Letters were mailed to affected and interested members of the public to
inform them of the planning process and to invite their participation.
n Refuge personnel presented informative programs to community
organizations and stakeholder groups.
n A series of stakeholder workshops and public scoping meetings were
held to develop components of the draft plans.
n The draft plans were distributed to approximately 300 individuals,
organizations, agencies, and Native American tribes.
n More than 80 participants attended a public meeting to discuss the draft
plans.
n Both written and oral comments were received during a 60-day
comment period.
Scope of Issues, Concerns, and Opportunities
Several key issues and concerns surfaced during two public meetings, two
stakeholder workshops, and from written comments. The planning team
reviewed the issues and concerns raised by the approximately 100 people
who participated in the scoping process. This list was based on the team’s
knowledge of the area, information gathered during the scoping meetings,
and written comments submitted by the public.
Introduction
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CCP Planning Team
USFWS Allyne Askins
Comprehensive Conservation Plan 7
Lower Suwannee
National Wildlife Refuge
Location
Located along the southern edge of the Big Bend Region of Florida’s
west coast, the Lower Suwannee National Wildlife Refuge is found in the
westernmost part of Levy County and the southern tip of Dixie County
(Fig. 3). The refuge is approximately 50 miles southwest of Gainesville,
Florida.
History
Lower Suwannee National Wildlife Refuge was established on April 10,
1979, under the authority of the Fish and Wildlife Act to protect the lower
Suwannee River ecosystem. The initial acquisition in 1979 was 5,300 acres
of land at Shired Island. Additional parcels of land were acquired over a
15-year period, until the refuge reached its present size of 52,935 acres.
The refuge, which is predominantly wetlands, is bisected by 20 miles of
Stephen Foster’s famous Suwannee River and includes more than 20 miles
of coastal marsh along the Gulf coast. The refuge also encompasses an
unusual diversity of floodplain hardwoods; cypress-lined sloughs; cabbage
palm and cedar islands; cypress domes; hydric, mesic, and xeric hardwood
hammocks; and low pine flatwoods. Each of these diverse vegetative
communities contributes to making Lower Suwannee National Wildlife
Refuge one of the largest undeveloped river delta-estuarine systems in the
United States.
Purpose
The purpose of Lower Suwannee National Wildlife Refuge is:
“...for the development, advancement, management, conservation,
and protection of fish and wildlife resources....” 16 U.S.C. § 742f(a)(4)* and
“...for the benefit of the United States Fish and Wildlife Service,
in performing its activities and services. Such acceptance may be subject
to the terms of any restrictive or affirmative covenant, or condition of
servitude....” 16 U.S.C. § 742f(b)(1) (Fish and Wildlife Act of 1956,
16 U.S.C. § 742f(a)-754, as amended.
Background
Information
Aerial View of the Suwannee River
USFWS Ken Litzenberger
Marsh
USFWS ©Ken Sourbeer
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8 Lower Suwannee
Lower Suwannee National Wildlife Refuge was established to protect,
maintain, enhance, and where appropriate, restore habitats along the
lower reaches of the Suwannee River. The refuge also protects water
quality and quantity through sound land resource management and
cooperative relationships with state agencies that have jurisdictional
authority over the water and aquatic resources therein. Further, the
refuge provides habitat for several threatened and endangered species and
species of special concern in the State of Florida (Appendix H).
Function within the Ecosystem
Lower Suwannee National Wildlife Refuge, along with Okefenokee
National Wildlife Refuge, anchors the Suwannee River Basin - an area
consisting of 10,000 square miles across two states. The primary focus
of the Service in this ecosystem is to maintain the quality of large,
undeveloped forested and wetland habitats in the upper and lower portions
of the Suwannee River by linking those areas with a corridor of habitat
along the river. The Service is also concerned with maintaining the
quantity and quality of river flows and the rich biological heritage of the
native plant species within the river basin. The refuge plays an integral
role in meeting these ecosystem goals by protecting nearly 53,000 acres of
riverine habitat and more than 20 miles of river corridor along the lower
reaches of the Suwannee River.
Agreements
n Memorandum of Understanding with the Suwannee River Water
Management District for management of its 420-acre St. Petersburg
tract, as part of the Lower Suwannee National Wildlife Refuge.
n Memorandum of Understanding that gives management authority of
the 146-acre, Service-owned Canavan tract in Columbia County to the
District. This property was a Farmers Home Administration property
that the Service acquired and is adjacent to other property owned by the
Suwannee River Water Management District.
n Lease agreement with the State of Florida, Division of Lands, for the
Service to manage 624 acres in T 12 S, R 11 E, Section 16, as part of the
Lower Suwannee National Wildlife Refuge.
n Lease agreement with The Nature Conservancy for the Service to
manage the 786-acre, Conservancy-owned, Cummer tract, as part of the
Lower Suwannee National Wildlife Refuge.
n Lease agreement with the Dixie County Board of Commissioners for the
Commissioners to maintain the Shired Island boat ramp.
n Memorandum of Understanding between the Service and Levy County
Sheriff’s Department allowing either agency to provide emergency
assistance to the other upon request.
n Memorandum of Understanding between the Service and Dixie County
Sheriff’s Department allowing either agency to provide emergency
assistance to the other upon request.
n Memorandum of Understanding between the Service and the State of
Florida, Department of Agricultural and Consumer Services, Division of
Forestry, to provide wildfire suppression.
Mission
The mission of the Lower Suwannee National Wildlife Refuge is to protect,
maintain, and enhance a significant natural ecosystem which encompasses
flood plain hardwoods, coastal and freshwater marshes, and upland forests;
provide optimum habitat conditions and protection for native wildlife with
special emphasis on threatened and endangered species and migratory
birds; provide wildlife-oriented recreational/educational opportunities to
the public; and preserve significant archaeological sites.
Management
Direction
Paddling the Refuge Canoe Trail
USFWS Ken Litzenberger
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Figure 3. Vicinity Map, Lower Suwannee National Wildlife Refuge
10 Lower Suwannee
Vision Statement
The watershed and estuary of the Lower Suwannee National Wildlife Refuge
contain valuable water resources and fish and wildlife habitat. The refuge will be
managed for the conservation of fish and wildlife and their habitat, with special
emphasis on the protection and restoration of wetland and upland communities.
Education, research, and wildlife-dependent recreational opportunities will be
available, insofar as they are compatible with refuge health and preservation.
Management will partner with local, state and federal agencies; community
organizations; and individuals to ensure the protection and conservation of the
vast Suwannee River ecosystem for current and future generations.
Management Alternatives
Once the key issues and concerns were identified, the planning team determined
a reasonable range of alternatives for managing the refuge. The Environmental
Assessment, which is under a separate cover, contains a full review of the
alternatives considered and their impacts on the socioeconomic, environmental,
and cultural resources, along with alternatives discussed but not fully developed.
Management Action
The management action was selected based on conformity with the refuge’s
mission, vision, ecosystem function, and current uses, as well as on the needs
expressed by the public during the scoping process. The action will result in a
better understanding of the refuge resources used by threatened and endangered
species, migratory birds, and resident wildlife; the protection and enhancement
of these resources; the protection of water quality and quantity; the restoration
of refuge habitats; and accessibility of the refuge to the public for compatible
wildlife-dependent public uses.
An overriding concern reflected in the plan is that wildlife comes first in refuge
management. Public uses are allowed and encouraged if they are compatible
with wildlife conservation. Wildlife-dependent recreational uses such as hunting,
fishing, wildlife observation, wildlife photography, and environmental education
and interpretation are emphasized.
The end result is a set of goals, objectives, and strategies related to key issues
that will guide management of the refuge for the next 10 to 15 years.
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Birders on Canoe Trail
USFWS Ken Litzenberger
Comprehensive Conservation Plan 11
Goals, Objectives, and Strategies to Support the Management Action
Five management goals for Lower Suwannee National Wildlife Refuge
were developed from several workshops held during the scoping process.
n Wildlife Expand scientifically based monitoring and research to support
management decisions regarding wildlife habitat and populations.
n Habitat Restore, conserve, and enhance the natural diversity, abundance,
and ecological function of refuge habitat, with an emphasis on managing
habitat to benefit threatened and endangered species and species of
special concern in the State of Florida.
n Resource Protection Protect the natural and cultural resources of the
refuge to ensure their integrity and to fulfill the mission of the National
Wildlife Refuge System.
n Public Use Provide opportunities for environmental education and
interpretation and wildlife-dependent recreation in accordance with the
National Wildlife Refuge System Improvement Act of 1997.
n Landscape Management Promote interagency and private landowner
cooperation and partnerships for the management and protection of
natural and cultural resources within the Big Bend Region of Florida,
the Suwannee River Basin, and the North Florida Ecosystem to benefit
wildlife, water quality and quantity, and the American people.
The goals, objectives, and strategies are the Service’s response to the
issues and concerns expressed by the planning team and the general public
at the workshops, public meetings, and in the comment packet, and will
be used to implement the management action. These goals, objectives,
and strategies reflect the refuges’s commitment to achieving the missions
of the Service and of the National Wildlife Refuge System; ecosystem
priorities; refuge purposes, mission and vision; and the expressed needs of
the public—provided that necessary funding requirements are met.
Wildlife
Goal
1. Expand scientifically based monitoring and research to support
management decisions regarding wildlife habitat and populations.
Objective
1.1 Conduct surveys of vertebrates, invertebrates, and plant
species and habitat associations; develop monitoring
programs for priority species; and establish targets for
population levels. Expand current monitoring programs.
Strategies
1.1.1 Continue current monitoring program for bald eagles
during the nesting season using aerial surveys
to determine nest status and production. Provide
data to the Florida Fish and Wildlife Conservation
Commission and the Service to aid in monitoring the
delisting of this species.
1.1.2 Continue current monitoring program during the
osprey nesting season to determine fledgling success
and to evaluate overall population trends.
1.1.3 Expand the current, sporadic monitoring program
for manatees into a regular, consistent monitoring
program using aerial surveys of the coastal and
riverine habitats of the refuge. Provide data to the
Service Manatee Recovery Coordinator to aid in
statewide monitoring and recovery efforts.
Snapping Turtle
USFWS Ken Litaenberger
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Youth Hunting
USFWS
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1.1.4 Continue to support the U.S. Geological Survey
and the Service’s efforts to monitor threatened Gulf
sturgeon that use the Suwannee River and coastal
estuary. Provide assistance for storage, transporting,
and setting up equipment. Assist in field research as
needed.
1.1.5 Continue monitoring the population status and health
of resident wildlife species (e.g., white-tailed deer
and wild turkey) and tailor management activities
and hunting regulations to maintain healthy and
stable populations of game species. Use Southeastern
Cooperative Disease Study Unit at the University of
Georgia to monitor health of deer herd on a 5-year
basis.
1.1.6 By 2001, develop and implement an annual Breeding
Bird Survey.
1.1.7 By 2001, participate in migratory shore bird surveys
in spring and fall and provide data to the Manomet
Laboratory.
1.1.8 By 2002, conduct a population survey of gopher
tortoises and their habitat associations. Trap five
tortoises and conduct blood tests to determine
if the population harbors the respiratory disease
which threatens this species. Beginning in 2005,
monitor gopher tortoise populations every 5 years
to determine long-term population trends. (Resource
Project 4)
1.1.9 By 2003, conduct furbearer counts, determine their
effects on the ecosystem, and develop population
management strategies (e.g., hunting and trapping)
to promote diversity and stability among species and
their habitats.
1.1.10 By 2003, initiate a nesting survey of swallow-tailed
kites to be conducted every 5 years to determine
long-term population trends.
1.1.11 By 2004, identify exotic plant and animal species on
the refuge and develop a strategy to eliminate or
control them.
1.1.12 By 2005, partner with the University of Florida to
conduct a survey of herpetofauna and develop a long-term
monitoring technique for amphibians.
1.1.13 By 2005, partner with the Suwannee River Water
Management District and/or the U.S. Geological
Survey to conduct an aquatic inventory of fishes and
mussels of the lower reaches of the Suwannee River.
1.1.14 By 2008, develop a list of significant flora and conduct
surveys for rare and endangered plant species.
Objectives
1.2 By 2004, revise the Wildlife Inventory Plan into a Wildlife
Management Plan which would be based on data gathered
during initial surveys. The Wildlife Management Plan would
guide all aspects of refuge management and be based on
reliable data and sound techniques.
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Great Blue Heron
USFWS ©Bruce Colin
Alligator
USFWS ©Bruce Colin
Comprehensive Conservation Plan 13
1.3 By 2010, conduct a biological review of the refuge. Ideally,
this review would have occurred prior to the initiation of
this comprehensive conservation plan. It will be necessary
to conduct a biological review prior to its revision to
determine if biological strategies outlined in the plan and in
the Wildlife Management Plan are resulting in good science
and sound management practices.
1.4 Develop a Geographic Information System database
management and mapping system with plant and wildlife
communities and management layers. (Resource Project 7).
Strategies
1.4.1 By 2003, develop a computerized database for current
and past monitoring and research activities using
Microsoft Access and input all available records.
1.4.2 By 2003, develop a computerized database for current
and past forestry and fire activities using Microsoft
Access and input all available records.
1.4.3 By 2003, maintain database and develop a query
system to facilitate data retrieval.
1.4.4 By 2004, train professional staff in data collection and
usage of Geographic Information System.
1.4.5 By 2006, build Geographic Information System
databases with several coverages including: roads;
land cover types; prescribed burn units; timber
sales; inholdings; hydrology; soils; wildfires; boundary
maintenance; boundaries; breeding bird survey
transects; data points and data; eagle nests; osprey
nests; gopher tortoise burrows; gopher tortoise
study transects; archaeological and cultural sites;
topography; assets (structures and facilities); public
use structures and trails; swallow-tailed kite nests;
forest compartments and stands; insect/disease/
disturbance events; beaver ponds and dams; refuge
ponds; blue bird boxes; and wood duck boxes.
Habitat
Goal
2. Restore, conserve, and enhance the natural diversity, abundance,
and ecological function of refuge habitats, with an emphasis on
managing habitat to benefit threatened and endangered species and
species of special concern in the State of Florida.
Objective
2.1 Maintain habitat for migrating, wintering, nesting, and
foraging birds, with special emphasis on threatened and
endangered species, neotropical migratory birds, and
colonial wading birds.
Strategies
2.1.1 Maintain existing pine and hardwood habitat for at
least 20 pairs of swallow-tailed kites.
2.1.2 Maintain existing nesting habitat for 4 pairs of bald
eagles.
2.1.3 Maintain existing habitat for 30 to 40 nesting pairs
of osprey.
2.1.4 Provide high quality foraging habitat for colonial
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Pine Lily
USFWS Robert LeMarie
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wading birds by manipulating water levels in three
existing management areas.
2.1.5 By 2002, initiate a research project with the Service’s
Ecological Services Division, the University of
Florida, and the Suwannee River Water Management
District to study mercury levels in the river and its
tributaries and the effects on foraging wading birds.
Objective
2.2 Refine and implement a prescribed fire program to restore
and maintain healthy, fire-dependent communities.
Strategies
2.2.1 Implement the Fire Management Plan (1997), with
annual reviews and updates to incorporate applied
research findings.
2.2.2 Continue on an annual basis to use prescribed fire on
at least 3,000 acres, using a combination of dormant
season and growing season burns. Both uplands and
marshlands will be burned.
2.2.3 By the 2003 fire season, initiate fire research on the
effects of burning frequency, seasonality, and spatial
distribution on the refuge’s pine flatwoods, mixed
cypress, and marsh ecosystems. (Resource Project 5)
2.2.4 By 2004, investigate the impacts of prescribed
fire on isolated wetlands in relation to restoring
and maintaining aquatic habitats for herpetofauna
threatened by hardwood succession caused by the
exclusion of fire. (Resource Project 5)
Objective
2.3 Refine and implement an active forest management
program to restore and maintain healthy and diverse forest
communities.
Strategies
2.3.1 Plant wiregrass plugs in the longleaf pine restoration
sites and log decks at a density of 1,000-per-acre with
an annual average restoration of 10 acres.
2.3.2 Maintain and promote propagation of wiregrass
through prescribed fire.
2.3.3 In 2001, monitor restoration efforts of native long
leaf pine and wiregrass communities on slash
pine conversion sites (clearcuts). Conduct seedling
survival counts in the restoration areas to determine
survival rate.
2.3.4 By 2002, update and implement the Forest
Management Plan (1989).
2.3.5 By 2002, complete inventory preparations for the
forested habitats, including inventory schedules, data
to be collected, preparation of cruise maps based
on refuge management compartment maps, and
methods for analyzing data.
2.3.6 In 2002, begin inventory of the 32,571 acres of
forested habitats to obtain the necessary data to
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USFWS Ken Litzenberger
Planting Trees
USFWS Ken Litzenberger
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USFWS Ken Litzenberger
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refine forest and wildlife management strategies. A
minimum of 3,000 acres will be inventoried annually.
Complete the inventory project in 2011, followed by
the necessary revisions to the Forest Management
Plan.
2.3.7 Use commercial timber sales to thin slash pine
plantations to promote the regeneration of early
successional understories, provide quality habitat
and forage for native wildlife species, and prepare
plantations for a shift to growing season fires.
Specific harvest schedules will be developed in the
Forest Management Plan.
2.3.8 Monitor and evaluate the wiregrass restoration
effort and determine if the project should continue
past 2004.
2.3.9 If adequate, wiregrass stands could be used as a seed
source. Implement a seed harvest program to expand
the restoration process, if previous restoration
efforts are successful.
Objective
2.4 Protect wildlife habitat and water quality and quantity
through land acquisition. (Resource Project 3)
Strategies
2.4.1 Protect important habitat for threatened Gulf
sturgeon and water quality of the Suwanee
River by acquiring, through fee title ownership
or easements, the tracts identified in the
Environmental Assessment and Land Protection
Plan for the Expansion of the Lower Suwannee
National Wildlife Refuge (1995).
2.4.2 Protect and restore Florida scrub jay habitat and
provide contiguous habitat for numerous other
species through the acquisition of the Caber Tract, if
this land becomes available for purchase.
2.4.3 Acquire the 17 remaining privately owned properties
(inholdings) within the original approved acquisition
boundary of the refuge, as they become available for
purchase.
Resource Protection
Goal
3. Protect the natural and cultural resources of the refuge to ensure
their integrity and to fulfill the mission of the National Wildlife
Refuge System.
Objective
3.1 Protect known archaeological and historical sites on the
refuge from illegal take or damage in compliance with
the Archaeological Resources Protection Act, the Native
American Graves Protection and Repatriation Act, and the
National Historic Preservation Act.
Strategies
3.1.1 Conduct law enforcement patrols at all known
archaeological and historical sites on a regular basis
to inspect for disturbance and illegal digging and/or
looting.
Pine Forest
USFWS ©Ken Sourbeer
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3.1.2 By 2003, compile a comprehensive literature review
of past archaeological, anthropological, and historical
investigations within and near the refuge. Produce
an annotated bibliography to document the area’s
history.
3.1.3 By 2006, inventory and GPS the refuge’s
archaeological sites. (Resource Projects 7 and 14)
3.1.4 By 2010, develop and implement a plan to protect
identified archaeological sites in consultation with
the Service’s Archaeologist, the State Historic
Preservation Office, Native American tribes, and
the professional archaeological community. (Resource
Project 14)
Objectives
3.2 Annually evaluate a minimum of 15 miles of refuge
boundary. Delineate refuge boundaries with signs and paint,
as needed.
3.3 Continue to protect refuge habitats from wildfire through
the fire program, properly trained staff, and equipment
readiness. The station will monitor fire conditions and
respond according to approved plans and procedures.
3.4 Continue to protect bald eagle nests by monitoring for
disturbance and, if necessary, by closing areas around nests
during the nesting season.
3.5 Continue to provide visitor safety, protect resources, and
ensure compliance with refuge regulations for more than
100,000 annual visitors through law enforcement patrols and
public use contacts.
Strategy
3.5.1 By 2005, revise and update the refuge’s Law
Enforcement Plan.
Objectives
3.6 Continue to work cooperatively with local, state, and other
federal law enforcement agencies to enhance resource
protection.
3.7 Maintain present road system containing 50 miles of
primary refuge roads by grading, mowing, and replacing
culverts, as needed, for public vehicle access and for habitat
improvement, protection, and management.
3.8 Maintain access to secondary roads system by mowing,
boom axing, grading, and replacing culverts, as needed,
for habitat protection, management, and improvement for
refuge staff and for public foot and bicycle traffic.
3.9 Identify additional lands and seek funding to acquire such
lands that will improve resource protection and aid in
fulfilling the mission and purpose of the refuge.
3.10 Maintain more than $1,000,000 worth of capitalized
equipment used in all aspects of refuge management
including habitat, wildlife, and public use.
Grading Roads
USFWS Ken Litzenberger
Shired Creek Bridge
USFWS Ken Litzenberger
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3.11 By 2006, conduct a wilderness review of the refuge. The
purpose of a wilderness review is to determine whether
any refuge lands or waters meet the characteristics of
wilderness. Any lands determined to meet these criteria
will then be nominated for inclusion as Wilderness Areas.
Public Use
Goal
4. Provide opportunities for environmental education and
interpretation and wildlife-dependent recreation in accordance
with the National Wildlife Refuge System Improvement Act of
1997.
Objectives
4.1 By 2003, develop and implement a Visitor Services
Management Plan.
4.2 By 2002, identify site for a visitor center or visitor contact
station to serve both Lower Suwannee and Cedar Keys
National Wildlife Refuges. Visitors will learn about the
Service, the National Wildlife Refuge System, and both
local refuges and the trust resources they protect. Seek
funding support from Congressional representatives, local
governments, organizations, and individuals. (Resource
Project 2)
4.3 Develop and implement an environmental education
program that will result in a greater understanding and
appreciation of refuge flora, fauna, and habitats.
Strategies
4.3.1 By 2001, quarterly provide ranger- or volunteer-led
canoe tours, wildflower and butterfly walks, and
birding trips.
4.3.2 By 2002, develop environmental education
curriculum for the refuge consistent with Florida
Department of Education (Sunshine State)
standards.
4.3.3 By 2002, develop at least three refuge specific
messages, complete with a teacher’s guide on
wetlands and wetlands species for local teachers and
community organizations.
4.3.4 By 2003, develop teacher workshop materials and
host an annual teacher’s workshop for environmental
education curriculum.
4.3.5 Provide and train staff, student interns, and
community volunteers to implement an
environmental education program. By 2003, increase
staff and volunteer presence in the public schools and
the community for educational purposes.
4.3.6 By 2005, provide temporary housing and
transportation for student interns.
Objective
4.4 Update existing materials and develop new interpretive
materials, including brochures, interpretive panels, kiosks,
and exhibits that highlight refuge resources.
Cub Scouts
USFWS Allyne Askins
Fishbone Creek Observation Tower
USFWS Ken Litaenberger
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Strategies
4.4.1 By 2001, replace temporary marsh walkways with
elevated, accessible boardwalks. To provide resting
spots, place benches along the trail. (Resource
Project 9)
4.4.2 By 2001, develop interpretive panels which highlight
the Dixie County portion of the refuge. The panels
will be included on kiosks located near the refuge, on
property owned by the county and town of Suwannee.
4.4.3 By 2002, develop a self-guided walking trail through
the pine forests and marsh at Salt Creek.
4.4.4 By 2002, replace visitor’s kiosk at River Trail with a
new structure, panels, and brochure box. (Resource
Project 8)
4.4.5 By 2003, develop interpretive panels and build a kiosk
at the Shell Mound Unit. Interpretive panels will
highlight coastal habitat and associated wildlife. A
map will be included to identify refuge lands and
public use facilities. (Resource Project 9)
4.4.6 By 2003, construct an observation tower at Dennis
Creek Landing similar to the tower/disability
accessible deck on the River Trail. (Resource
Project 9)
4.4.7 By 2004, establish a native plants, wildflower, and
butterfly garden at the refuge headquarters. Through
interpretive signs and an accompanying guide, the
area would become an outdoor classroom and serve
as a demonstration area for “Backyard Wildlife
Management.”
4.4.8 By 2005, develop interpretive panels and incorporate
into kiosks for the Dennis Creek and Shell Mound
trails similar to those found along the River Trail.
(Resource Project 9)
4.4.9 By 2006, construct an observation tower with
interpretive panels overlooking an interior
freshwater marsh/pond along the visitor loop road in
Levy County.
4.4.10 Evaluate other areas where walking trails for
wildlife observation might be compatible with
the purpose and mission of the refuge or
refuge system.
Objective
4.5 Provide opportunities for hunting and fishing
on the refuge in a manner which minimizes
conflicts between consumptive and
non-consumptive user groups.
Strategies
4.5.1 Provide high quality hunting opportunities
for small game, big game, and waterfowl
consistent with sound biological principles and in
accordance with the approved Refuge Hunt Plan
(1988).
Hunter
USFWS Ken Litzenberger
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4.5.1.1 Maintain the archery-only area in Dixie
County.
4.5.1.2 Continue to staff a centralized check station
in each county during the general gun
season to collect harvest data and provide a
hunter contact point.
4.5.1.3 Continue to monitor and evaluate the
hunt program annually to determine health
of game species. Modify seasons and/or
regulations, if necessary, to ensure the
hunt program is based on sound biological
information and achieving management
goals.
4.5.1.4 By 2001, increase law enforcement presence
during hunting seasons to ensure hunter
safety, to provide contact information, and
to monitor compliance.
4.5.1.5 By 2002, designate non-hunting areas in
both counties to minimize potential conflicts
between hunters and non-hunters. Potential
areas to be included are the property owned
by The Nature Conservancy, Shell Mound,
Fishbone Creek, and Shired Island. These
areas have public use facilities (e.g., trails
and boardwalks).
4.5.1.6 By 2002, modify deer hunting regulations
to increase the number of does harvested.
This will achieve a balanced sex ratio and
improve overall deer herd health.
4.5.1.7 By 2003, evaluate the potential of
conducting a youth-oriented deer hunt.
4.5.2 Provide high quality fishing opportunities consistent
with sound biological principles.
4.5.2.1 By 2001, increase law enforcement patrol
of fishing areas to ensure public safety and
maintain refurbished facilities.
4.5.2.2 By 2002, construct a disability-accessible
fishing platform at Fishbone Creek.
4.5.2.3 By 2004, repair boat launch and resurface
parking area at Shired Island. (Resource
Project 12)
4.5.2.4 By 2005, explore additional ways to increase
land based fishing opportunities by
emphasizing access and facility
improvements.
4.5.2.5 By 2006, develop and implement a fisheries
management plan.
4.5.2.6 By 2008, support National Fishing Week by
conducting an annual event.
Fishing at Shell Mound Pier
USFWS Ken Litzenberger
Mother and Son Fishing
USFWS Ken Litaenberger
Volunteer with Children
USFWS Ken Litaenberger
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Objective
4.6 Develop a volunteer program which offers resource,
educational, and maintenance projects to accommodate a
diverse volunteer community.
Strategies
4.6.1 Create partnerships with community-based
organizations to adopt specific refuge trails and/or
areas.
4.6.1.1 Continue coordinating with the Wetlands
Clubs from area high schools to conduct
regular clean-up days on the refuge.
4.6.1.2 By 2002, partner with the Suwannee River
Chamber of Commerce to adopt the Dixie
Mainline Trail.
4.6.2 Provide volunteer training opportunities.
4.6.2.1 Continue to provide training to teach refuge
volunteers about the Service, the refuge
system, and the local refuges.
4.6.2.2 By 2002, provide opportunities for
volunteers to attend teacher workshops to
develop skills for conducting educational
programs.
4.6.2.3 By 2003, provide opportunities for
volunteers to attend Service-sponsored
training on related topics to improve their
ability to serve refuge needs.
4.6.3 By 2001, provide support and recognition to
volunteers for their contributions to refuge
operations and programs.
4.6.4 By 2003, develop volunteer-led tours of various
refuge trails.
4.6.5 By 2004, use volunteers to assist with staffing needs
for the new refuge visitor center or contact station.
Objective
4.7 By 2001, develop a Friends Group for Lower Suwannee and
Cedar Keys National Wildlife Refuges.
Landscape Management
Goal
5. Promote interagency and private landowner cooperation and
partnerships for the management and protection of natural and
cultural resources within the Big Bend Region of Florida, the
Suwannee River Basin, and the North Florida Ecosystem to benefit
wildlife, water quality and quantity, and the American people.
Objectives
5.1 Continue participation on North Florida Ecosystem Team
Lily Pads and support team priorities and projects.
USFWS ©Bruce Colin
Stugeon Capture
USFWS Jim Clugston
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5.2 By 2005, develop partnerships with local school districts
and state environmental agencies such as the Suwannee
River Water Management District, Florida Department
of Environmental Protection, and Florida Fish and
Wildlife Conservation Commission to promote and provide
environmental education opportunities on and off the
refuge.
Strategies
5.2.1 By 2003, expand partnership with the Levy County
School District to include it as an involved
participant in the Interdisciplinary Watershed
Education Program.
5.2.2 By 2004, expand partnership with the Dixie County
School District to assist with the development of
environmental education facilities and programs.
(Resource Project 10)
Objective
5.3 By 2006, develop partnerships to protect water quality and
quantity and to promote research on the trust resources of
the refuge.
Strategies
5.3.1 By 2002, expand partnership with the University
of Florida to conduct research on the refuge and
provide research sites and field experiences to
students.
5.3.2 By 2002, expand partnership with the Suwannee
River Water Management District and the U.S.
Geological Survey to include monitoring water flows
and quality in the lower reaches of the Suwannee
River, to inventory and study aquatic species,
and to protect the Suwannee River corridor from
development and activities which could negatively
impact water quantity and quality.
5.3.3 By 2003, explore potential for working with the
Florida Fish and Wildlife Conservation Commission
to reintroduce black bear into the Big Bend Region
of Florida.
5.3.4 Conduct a basin-wide mussel survey to determine
species abundance and distribution with emphasis on
determining status of the Suwannee moccasinshell
mussel for possible listing, by the year 2005. Threats
to the Suwannee River Basin include degradation
of water quality resulting from increased pesticide
and fertilizer use by dairy and poultry operations,
contaminants from phosphate mines and pulp mills,
and increased ground and surface water consumption
(specifically, a proposal to divert water from the
Suwannee River to the Tampa area [minimum flows
issue]).
Objective
5.4 Maintain partnerships with local community organizations
and environmental agencies to promote and guide the
development of nature-based tourism while maintaining the
“wildlife first” requirement of the Refuge Improvement Act.
Bicyclists on the Dixie Mainline
USFWS
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Strategies
5.4.1 Continue to work with the Florida Park Service and
other governmental agencies, as well as community
organizations, in the sponsorship of the Suwannee
River Naturefest, an annual nature-based festival.
5.4.2 Continue to partner with local organizations to seek
out and apply for grants on collaborative projects.
5.4.3 By 2002, work with the Suwannee River and
Dixie County Chambers of Commerce to develop
interpretive material about the Dixie County
portion of the refuge and nature-based recreation
opportunities provided by the refuge.
5.4.4 By 2003, seek support from community organizations
and governmental agencies for the establishment of
a Refuge Visitor and Education Center which will
serve both refuges and could serve as a central
information point for environmental activities in the
area.
Objectives
5.5 Continue to develop partnerships with national and state
organizations to acquire necessary lands for the protection
of trust resources and the fulfillment of the purpose and
mission of the refuge.
5.6 Seek mutual cooperation with recognized Native American
tribes in Florida to protect Native American sites on the
refuge.
Strategy
5.6.1 By 2003, negotiate and implement a long-term
archaeological research agreement with the
Department of Anthropology at the University of
Florida and the Museum of Natural History.
Partnerships
A crucial component to implementing this comprehensive conservation
plan is the development and expansion of partnerships with the local
community and other environmental agencies. Significant partnerships
with the Suwannee River Water Management District and The Nature
Conservancy contributed to both the establishment and management of
the refuge. Local organizations that have contributed to the operation of
the refuge include the Suwannee River and Dixie County Chambers of
Commerce, the Suwannee Audubon Society, and the “Save Our Suwannee”
organization. Personal contacts and working relationships have been
established with other governmental organizations including the following:
University of Florida; Florida Fish and Wildlife Conservation Commission;
Florida Park Service; Florida Department of Environmental Protection;
Florida Division of Forestry; Levy County School District; Dixie County
School District; Chiefland City Council; Levy County Commissioners;
Dixie County Commissioners; Levy County Development Authority;
North Florida Economic Development Council; Levy County Economic
Development Council; and North Central Florida Regional Planning
Council.
In addition to dynamic partnerships with organizations, the refuge is
fortunate to have a small but dedicated group of individuals who volunteer
and assist the refuge with various projects. These volunteers will continue
to play a pivotal role in the accomplishment of refuge objectives and
Swamp Lily
USFWS Robert LeMarie
Plan
Implementation
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strategies. In addition to assisting with refuge projects, this cadre of
volunteers serves as an important link with the community at large,
promoting refuge messages and garnering additional support for the
refuge system.
Partnerships with other environmental agencies, local school districts,
and community groups have the greatest potential to benefit refuge
resources. Biological and environmental research and monitoring will
be improved through enhanced partnerships with the Suwannee River
Water Management District, the University of Florida, and the Florida
Fish and Wildlife Conservation Commission. Environmental education
opportunities will be enhanced through expanded partnerships with both
local school districts, the Suwannee River Water Management District
and the Florida Fish and Wildlife Conservation Commission. The limiting
factor in the advancement of these partnerships is the lack of staffing and
funding to nurture these programs and relationships.
Annual Work Plans
Future annual work plans will be developed to reflect the priorities
and intent of this comprehensive conservation plan. When discretionary
funding and staff time are available, these work plans will be used to
implement various components of the plan.
Step-Down Management Plans
The comprehensive conservation plan provides conceptual guidance
for potential future expansion, management and development of the
refuge. Step-down management plans are individual, subject-specific
plans. Examples are fire management, forestry management and hunting
management. The refuge’s approved step-down plans are listed below.
Before implementing the goals and projects of this comprehensive
conservation plan, some specific step-down plans may need revisions, while
others will need to be developed.
Approved Plans
n Aircraft Pre-Accident Aircraft are used for fire control and management,
habitat monitoring, and biological surveys. The purpose of the Aircraft
Pre-Accident Plan is to outline general procedures to be followed during
routine flights and flight emergencies. (Approved 5/6/94)
n Continuity of Operations It is important to maintain the capability to
perform essential activities and functions under all circumstances and
situations, including human-caused, natural, technological, and national
security emergencies that may occur with or without notice. This plan
identifies functions necessary for the safety and continuity of operations.
(Written 8/10/98)
nFire Management The purpose of the Fire Management Plan is to provide
objectives and guidelines for managing refuge habitat. The plan provides
a detailed program of action to implement fire management policies
and objectives in accordance with the Fire Management Preparedness
Handbook (621 FW). (Approved 1/8/97)
nHurricane Action The purpose of the Hurricane Action Plan
is to outline general procedures to be followed during and
after hurricanes and the associated tornadoes which may occur.
(Approved 12/17/90)
nStation Safety The purpose of the Station Safety and
Environmental Health Management Plan is to outline
responsibilities and procedures necessary to minimize accidents/
incidents which may result in personal injury or property damage to
Service employees and the visiting public. Included are guidelines
for employees to follow in case of emergencies, correct procedures
for reporting accidents, and an emergency action directory.
(Approved 10/21/84)
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Visitors at Shell Mount
USFWS ©Ken Sourbeer
Water Snake
USFWS ©Bruce Colin
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nTrapping The purpose of this plan is to identify methods to reduce beaver
impacts on refuge roads and timber in the Dixie County portion of the
refuge. The plan does not seek to eliminate beaver from the refuge, merely
minimize damage caused to refuge roads and timber by flooding, and thus
ensure visitor and staff safety when using these roads. (Submitted 1/12/00)
Approved Plans, Scheduled for Revisions
nForest Management The purpose of this plan is to provide guidelines which
will strive to make the best use of available management techniques to
provide suitable habitat for native wildlife in refuge forest lands. This
plan is scheduled to be updated by 2002. (Approved 4/19/89)
nLaw Enforcement This plan’s purpose is to provide refuge staff with a
ready reference to Service, regional and state policies, procedures, and
programs concerning refuge law enforcement activities. The present plan
was approved on March 29, 1988, and is outdated. It will be revised by
2005.
n Visitor Services Management Plan (Public Use Management Plan) The purpose
of the Public Use Management Plan, now referred to as the Visitor
Services Management Plan, is to outline strategies to accomplish the
refuge’s public use goals without compromising the original purpose for
which the refuge was established. The plan will be revised in 2003.
(Approved 6/28/88)
n Hunting The purpose of the Hunting Plan is to establish
guidelines for hunting on the refuge which will provide the
general public with a quality wildlife-oriented recreational
experience, an opportunity to utilize a renewable resource, and
the ability to maintain wildlife populations at levels compatible
with refuge habitat. This plan will be updated and incorporated
into the Visitor Services Management Plan by the 2003-2004
hunt season. (Approved 4/18/88)
n Fishing The purpose of the Fishing Plan is to provide guidelines
and objectives for the sportfishing program, which will serve
to increase wildlife-dependent recreational opportunities and
further the public’s opportunity to enjoy a renewable resource.
The plan will be updated and included in the Visitor Services
Management Plan, which is scheduled to be updated and revised
by 2003. (Approved 8/16/88)
n Sign (part of Public Use Management Plan) The sign plan, which is
now obsolete, outlined the design and placement of refuge signs
to provide information to the public. Sign management will now
be included in the Visitor Services Management Plan. (Approved
6/28/88)
n Wildlife Management Plan (Wildlife Inventory Plan) The purpose of the
Wildlife Inventory Plan was to establish which species to inventory,
standard techniques for conducting the inventories, and projected costs.
This plan is now obsolete. A new Wildlife Management Plan will be
written to replace this plan. This project is to be conducted by 2004.
(Approved 4/21/86)
Needed Plans or Reviews
n Cultural Resource Management Plan The purpose of this plan is to clearly
delineate the historic preservation process for the refuge, develop
strategies to identify and assess the refuge’s historic properties, identify
appropriate site protection measures, and identify current and potential
partners. The plan shall be in place by 2010.
n Wilderness Review The purpose of this review is to determine whether
any refuge lands or waters meet the qualifications of a “Wilderness
Area.” Any areas determined to meet these criteria will then be
nominated for inclusion as wilderness. The Wilderness Review will be
conducted by 2006.
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n Fisheries Management Plan The purpose of this plan is to determine if and
what management actions could be conducted to improve fish habitat on
refuge waters. Fisheries biologists from the Service’s Ecological Field
Offices would provide the expertise needed for this evaluation. The
fisheries plan will be conducted by 2006.
n Biological Review Ideally, this review would have occurred prior to the
initiation of this comprehensive conservation plan. It will be necessary to
conduct a biological review prior to its revision to determine if biological
strategies outlined in this plan and the Wildlife Management Plan are
resulting in good science and sound management practices. This review
should occur by 2010.
Funding and Staffing
To bring the vision of the Lower Suwannee National Wildlife Refuge
to a reality—expanded biological monitoring, enhanced public use
opportunities, and construction of related facilities—appropriate funding
and staffing are essential! Although a portion of this new funding could be
from partnership opportunities and grants, the bulk of the funding must
be allocated by the U.S. Congress. Current base funding is inadequate
to meet staff costs and to complete routine maintenance and upkeep of
facilities and equipment.
A staff of eight permanent full-time, one permanent half-time, two career
seasonals, and one temporary firefighter (Fig. 4) are currently allocated to
Lower Suwannee National Wildlife Refuge (gray boxes). To accomplish the
goals, objectives, and strategies outlined in this plan, additional staffing is
needed. Five additional full-time permanent positions are required to fully
implement this plan (white boxes). Additionally, two full-time positions
willbe shared with Cedar Keys National Wildlife Refuge (white boxes
with bold bordering). Finally, the current Assistant
Refuge Manager position, GS-0485-5/7/9, will become a
Refuge Operations Specialist position with the primary
responsiblity of overseeing the daily operations of
Cedar Keys Refuge. One of the identified new positions
will be a Deputy Project Leader position, GS-0485-
11/12, which would oversee staff and daily operations
of Lower Suwannee Refuge.
If the Service is to succeed in the full implementation
of this plan, base funding and minimum staffing must
be increased. Along with base funding, maintenance
funding must also increase so that the refuge may
upgrade and improve facilities and equipment, as
needed. Without the financial support from the U.S.
Congress, Lower Suwannee National Wildlife Refuge
will not be able to successfully manage habitat
for threatened and endangered species and trust
resources. The refuge will be unable to provide
adequate environmental education and outreach.
Wildlife-dependent recreational opportunities will be
inadequate to meet the needs of society. Finally, the
refuge will not endure as a unique resource for future
generations.
Resource Projects
The following projects directly support the refuge’s
goals and objectives. They do not necessarily fit under
one goal, but rather support several goals.
River Trail Kiosk
USFWS ©Ken Sourbeer
Cypress Swamp
USFWS ©Ken Sourbeer
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26 Lower Suwannee
Project Leader
(Refuge Manager)
GS-0485-13
Office Assistant
GS-0303-7
Office Clerk
GS-0303-3/4/5
Deputy Project Leader
GS-0485-11/12
Law Enforcement
Police Officer
GS-0083-07
Forestry Management Operations
Forester
GS-0460-9/11
Refuge Operations Specialist
(Assistant Refuge Manager)
Cedar Keys NWR
GS-0485-5/7/9
Wildlife Managment
Wildlife Biologist
GS-048607/9/11
Shared with Cedar Keys NWR
Maintenance Operations
Engineering Equipment Operator
WG-5716-08
Public Use Management
Outdoor Recreation Planner
GS-0023-9/11
Shared w/Cedar Keys NWR
Forestry Management Operations
Forestry Technician
Fire Control Officer
GS-0462-8
Forestry Management Operations
Forestry Aid
GS-0462-4 (CS)
Forestry Management Operations
Forestry Technician
GS-0462-7
Maintenance Operations
Automotive Worker
WG-5823-08
Maintenance Operations
Engineering Equipment Operator
Stationed in Dixie County
WG-5716-08
Maintenance Operations
Engineering Equipment Operator
WG-5716-08
Wildlife Management
Biological Sciences Technician
GS-0404-5/6/7
Stationed at Cedar Keys
Forestry Management Operations
Forestry Technician
GS-0462-5 (CS)
Forestry Management Operations
Forestry Aid
GS-0462-3 (TS)
Public Use Management
Volunteer Coordinator/
Visitor Center Manager
GS-0023-7/9
Figure 4. Organizational Chart for Lower Suwannee and Cedar Keys National Wildlife Refuges
Comprehensive Conservation Plan 27
Project 1
Initial Base Funding Additional base funding is needed to hire staff
and cover normal, routine expenses. Five new full-time positions for
Lower Suwannee National Wildlife Refuge and two new full-time positions
to be shared with Cedar Keys National Wildlife Refuge are needed to
meet minimum staffing needs. These positions will require equipment and
transportation and will also affect utility expenses. The estimated costs for
these new positions including salaries, benefits, and operations will total
approximately $700,000 for the first year and $600,000 for recurring years.
Project 2
Administrative Facilities, Visitor’s Services, and Education Center
Construction of a headquarter’s facility is needed and will include a
visitor center with interpretive displays and exhibits; a book store; an
environmental education classroom; a large conference room; and six
administrative offices. This facility, which will also serve Cedar Keys
National Wildlife Refuge, will be in a location that supports both refuges
and will serve large numbers of visitors. The construction cost will be
approximately $2,000,000.
In lieu of a visitor center, a smaller administrative office and visitor contact
station could be constructed. This facility could still support both refuges
and have space for minor exhibits and a meeting room. The cost for this
project will be approximately $400,000.
Project 3
Land Acquisition This land acquisition project has two sections--
inholdings and refuge expansion. Currently, 17 inholdings are within the
approved refuge boundary (Fig. 5). Table 1 prioritizes the purchase of
these lands if funding becomes available. If all the tracts were to be
purchased, the cost will exceed $10,000,000.
The second part of the land acquisition project concerns the proposed
expansion of the Lower Suwannee National Wildlife Refuge. In 1994,
several tracts along the Suwannee River, outside the refuge’s original
acquisition boundary, were identified as nursery and spawning habitat
for the endangered Gulf sturgeon. At that time, a Preliminary Project
Proposal was conducted and followed with a Land Protection Plan and
Environmental Assessment concerning this proposed expansion of the
refuge. The project entered the Land Acquisition Priority System and
was ranked number two in the country in 1996. It was not funded and
in 2000 was ranked 84th in the country. The total acreage of the proposed
acquisition is 9,970 acres with an estimated purchase cost of $15,000,000.
Project 4
Gopher Tortoise Population Study The Gopher tortoise is a species of
special concern in the State of Florida. As a keystone species for the sandy
soil pine woods ecosystem, gopher tortoise absence can indicate a loss of
suitable habitat or unfavorable management conditions. Gopher tortoise
burrows serve a variety of other species. The absence of gopher tortoises
in the ecosystem can have negative implications for rare, threatened and
endangered species. Gopher tortoises are falling victim to a contagious
respiratory disease that has the potential to adversely affect the species
throughout its range. A study of the refuge’s population will provide
preliminary data, a population index, and determine the prevalence of the
disease among this population. This study may also identify secondary
burrow users, such as the endangered eastern indigo snake. The cost of the
study is estimated at $80,000.
Project 5
Fire Effects Research The refuge currently has an active fire management
program. However, baseline information and post-burn vegetation analysis
are needed to tailor the burn program to meet specific management
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Comprehensive
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Pine Plantation Burn
USFWS Ken Litzenberger
28 Lower Suwannee
objectives. This project will initiate fire research on the effects of
burning frequency, seasonality, and spatial distribution on the refuge’s pine
flatwoods, mixed cypress, and marsh ecosystems. Additionally, the refuge
has large reptile and amphibian populations (e.g., the endangered eastern
indigo snake and the gopher tortoise, a species of special concern). Basic
research is needed to evaluate how prescribed fire parameters such as
season, ignition methods and burn rotation affect refuge herpetofauna. This
study will further investigate the impacts of prescribed fire on isolated
wetlands. These wetlands may be maintained and possibly restored
through the use of periodic prescribed fire to halt hardwood encroachment
and succession. In many areas of Florida, fire was excluded from the
isolated wetlands and, subsequently, suitable habitat for herpetofauna
disappeared. The third treatment of this study will compare herpetofauna
response in isolated wetlands where fire is used to those where
fire has been excluded. The results from these three studies will
provide information for managing habitats and wildlife populations on
Lower Suwannee National Wildlife
Refuge, tailor the forestry and
fire management programs to meet
specific habitat and population
objectives, and provide valuable
insight about herpetofauna which
could be applied by other land
managers. The cost of these
research projects is estimated at
$200,000.
Project 6
Dixie Compound Garage Facility
and Crew Building The Dixie
County portion of the refuge is
a 1-hour drive from the current
headquarters. This portion of the
refuge contains approximately
29,000 acres and 40 miles of roads.
Equipment such as road graders,
trucks, and bulldozers is stored
in a pole shed located in the
Dixie Compound. Presently, the
refuge lacks a shop and a place
to store tools. Additionally, a 1979
dilapidated mobile home is located
in the compound. This structure was used as a sub-headquarters, crew
room for staff, and temporary quarters for visiting researchers and
volunteers. However, it is unsafe and an eyesore. A small garage with a
tool room, crew room, and rest room facilities is needed. The cost of this
project is estimated at $240,000.
Project 7
Enhance Resource Assessment through Geographic Information System A
Geographic Information System will permit refuge staff to digitize refuge
habitats and incorporate biological, archaeological, and public use resources
into databases. The refuge currently has a single-user GIS system and one
GPS PLGR unit. A digitizer to capture fine scale data and a plotter for
printing scales maps are necessary to have a fully functioning GIS system.
The project will require new computer hardware, software, training, and
a computer specialist to get the system up and running. The position will
be a term position, not to exceed 4 years. This person will be required to
train staff on how to use and maintain the system. The cost is estimated
at $250,000.
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Comprehensive
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Bird Watchers
USFWS Ken Litzenberger
Comprehensive Conservation Plan 29
Figure 5. Land Acquisition Map, Lower Suwannee National Wildlife Refuge
30 Lower Suwannee
TRACT ACRES ESTIMATED VALUE1 WILLING SELLER2
Asbell 156 150,000 yes
Drummond 75 (2 parcels) 40,000 yes
Roe 13 200,000 no
Caber 5295 8,000,000 unknown
Sowell 80 200,000 unknown
Calton 11 25,000 no
Williams, et al. 74 (camp cabin) 500,000 no
Hicks 5 (home) 200,000 no
Osteen 1 (home) 75,000 no
Abager 91 300,000 yes
Allen 3 10,000 unknown
Coon Island <3 10,000 yes
Yon 30 (5 upland) 50,000 yes
Phillips 79 150,000 yes
Brown 10 25,000 yes
Batts 72 150,000 yes
Hudson 65 25,000 unknown
TOTALS 6075 10,110,000
1The estimated value figures are “best guess” estimates. Appraisals will be conducted to
obtain fair market value prices. The Service is not allowed, by law, to pay above appraised
value.
2The Service only acquires land from willing sellers.
LOWER Table 1. Inholdings Within the Approved Boundary of Lower Suwannee National Wildlife Refuge
SUWANNEE
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Comprehensive
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Comprehensive Conservation Plan 31
Project 8
River Trail and Entrance Drive Enhancements The entrance drive to
the refuge, which leads to the administrative complex and an adjacent
trail head area, is currently surfaced in limerock. This project proposes
to resurface the 0.8-mile drive, the 500-square-foot trail head parking
area, and the visitor contact station/administrative office parking lot.
Additionally, the kiosk at the trail head is rotten and infested with
termites. The information panels are outdated and in poor condition.
The trail is approximately 0.5-mile in length with a 400-foot boardwalk
and observation platform on the historic and beautiful Suwannee River.
Approximately 10,000 people annually use this trail area. A new kiosk and
interpretive panels are needed to replace the current structure and to
highlight the trail improvements including the boardwalk and observation
platform. The estimated costs of the entrance drive resurfacing, paving of
two small parking lots, and replacing the information kiosk total $340,000.
Project 9
Shell Mound Enhancements The Shell Mound Unit of the refuge receives
more than 50,000 visitors a year. Current public use amenities include a
1-mile, uninterpreted loop trail, a 0.3-mile loop trail with two information
panels, a brochure box and small parking area at the trail heads, a small
boat launching area, and a 400-foot disability accessible boardwalk and
fishing pier. This project calls for the construction of two marsh boardwalks
for the 1-mile trail. Currently, this trail is only fully accessible during
low tide, as the marsh areas are wet during high tide. Additionally, an
observation tower at Dennis Creek would greatly enhance the user’s
ability to observe wildlife and scenic vistas. The trail passes through
unique coastal habitat and interpretive signs along the trail will educate
visitors about the natural features found along the trail. On the Shell
Mound Trail, two information panels are outdated and in poor condition.
These panels would be replaced with new panels. In the parking area,
the refuge sign and brochure box would be replaced with a 3-sided kiosk
housing panels about the two trails, natural features and wildlife, for both
Lower Suwannee and Cedar Keys Refuges. The estimated cost of this
project is $50,000.
Firefighter with Drip Torch
USFWS Ken Litaenberger
Sunset at Shell Mound
USFWS Ken Sourbeer
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Comprehensive
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32 Lower Suwannee
Project 10
Develop Education Facilities The Dixie County School District leases 16
acres of land near Fishborne Creek from the State of Florida which is
surrounded by the refuge. The school district has plans to construct an
environmental education facility on the property, but is short of funding.
The Service needs to work cooperatively with the school district to apply
for a grant to fund this project. The Service could help with the purchase of
materials and provide construction supervision. The county could provide
labor, probably from the correctional facility, to build a pole shed type
structure. Grant money could be used to purchase a recycling, composting
toilet for the site, while installation could also be by inmate labor with
refuge supervision. The total estimated cost of the project is $20,000, with
the Service’s share being approximately $10,000, depending on funding or
grant specifications.
Project 11
Fire Equipment Storage and Cache The original site plan for the
administration area calls for an enclosed equipment building for vehicle
storage. Presently, fire cache equipment is stored in several scattered
locations due to space constraints. Additionally, equipment such as the
engine, pumper unit, fire transport, and dozer are unprotected. This
project will include the construction of an enclosed, 5-bay garage, with 4
bays for fire equipment storage and 1 bay for the fire cache. The estimated
cost of this project is $300,000.
Project 12
Shired Island Enhancements Shired Island receives more than 40,000
visitors annually. The boat launch and parking area are in poor condition.
This project will involve clearing and leveling the parking area and gravel
resurfacing. The boat launch is eroding and needs bank stabilization.
Currently, no signs or information panels for the refuge are located
at this highly visited area. In addition to the parking area and launch
improvements, a kiosk with refuge information and panels highlighting the
unique natural features of the area will be constructed. The estimated cost
of this project is $200,000.
Project 13
Boundary Survey Boundary surveys between refuge property and
adjacent private property have not been conducted at several locations in
Levy and Dixie Counties. These surveys were never conducted because
the property was within the original acquisition boundary and it was
assumed that these sites would eventually become part of the refuge.
Several locations exist in both counties where the property remains in
private ownership and the lack of a boundary line has caused management
problems related to forest and fire management activities, public use, and
law enforcement. Under this plan, the surveys will be conducted. The
estimated cost for this project is $250,000.
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Comprehensive
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Cypress Kness
USFWS Jerry Gamble
Comprehensive Conservation Plan 33
Project 14
Archaeological and Historical Survey A comprehensive archaeological
survey of the refuge is needed. The refuge contains archaeological sites
that are more than 2000 years old. This project is necessary to identify,
protect, and interpret the refuge’s cultural resources. The estimated cost
is $200,000.
Project 15
Replacement of Heavy Equipment The refuge currently has two pieces of
heavy equipment in need of replacement. The Fiat Allis crawler tractor
was obtained by the Service in 1984, as used, excess property from the
Army Corps of Engineers. This tractor is used to maintain 50 miles of road
right-of-way. It is also used for land clearing, habitat management projects,
and fire protection. A Champion brand motor grader, which is more than
20 years old, needs replacing. This grader was received by the refuge in
1979. The grader is used to maintain more than 50 miles of refuge roads
for forestry and wildlife management, fire management and protection, and
public access. The estimated replacement cost for both pieces of equipment
is $325,000.
Volunteers
Volunteer assistance to the refuge has been valuable, particularly in the
area of public use. Lower Suwannee Refuge has a small, but dedicated
corps of volunteers. One volunteer works more than 200 hours annually
at Shell Mound maintaining the trails and collecting litter. He has also
assisted with the construction of a boardwalk and a kiosk. Several
volunteers assist with data entry and other office work. Other volunteers
lead nature walks, canoe tours, wildflower walks, and birding trips for
special refuge events such as National Wildlife Refuge Week, and assist
in staffing festival exhibits. Still others assist with colonial bird, shorebird,
and migratory bird surveys. Volunteers contribute approximately 1,000
hours annually to refuge projects.
1First year need for these projects is included in the one time cost figure.
PROJECTS ONE TIME COST FIRST YEAR NEED1 RECURRING BASE
1. Initial Base Funding $700,000 $600,000
2. Visitor Center et al. $2,000,000 50,000
3. Land Acquisition 10,110,000 75,000
4. Gopher Tortoise Study 80,000 5,000
5. Fire Effects 200,000 100,000
6. Garage and Crew Shop 240,000 5,000
7. GIS System 250,000 100,000
8. River Trail Projects 340,000 5,000
9. Shell Mound Projects 50,000
10. Education Facilities 10,000
11. Fire Equipment Storage 300,000 5,000
12. Shired Island Projects 200,000 5,000
13. Boundary Survey 250,000 5,000
14. Archaeological Survey 200,000 5,000
15. Heavy Equipment 325,000
TOTAL 14,475,000 980,000 760,000
Table 2. Funding Needs for Special Resource Projects of Lower Suwannee National Wildlife Refuge
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34 Lower Suwannee
Volunteers will continue to play an integral role in assisting staff with
fulfilling the mission and vision of this refuge. The current limiting factor
in volunteer recruitment is not a lack of community interest, but the
lack of staff to nurture and oversee this program. The development of a
“Friends” group will provide interested citizens with an outlet to become
more involved. However, this program will not fully develop without a staff
person to make this dream a reality.
Monitoring and Evaluation
Extensive research and monitoring of natural resources will occur once
this plan is implemented and minimum staffing needs are met. This
knowledge will give refuge managers and staff specialists the data to
judge how habitat management has impacted refuge resources. A major
objective of the investigations is not only to provide information to
local managers, but to provide a database which will benefit other land
managers with similar resources.
This plan will be augmented with detailed step-down management plans
to address management actions in support of refuge goals and objectives,
and to implement the identified strategies. Annual work guidance and the
Maintenance Management System and Refuge Operational Needs System
are the annual mechanisms for requesting funding and accounting for
completion of the objectives, strategies, and projects identified in the plan.
It will be reviewed every 5 years to determine if these goals and objectives
are being met and if different strategies are needed to assist the refuge in
moving towards fulfilling its vision. Public involvement in the evaluation
process and in plan implementation will be encouraged.
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Comprehensive
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