# *Field Report* J.N. "Ding" Darling National Wildlife Refuge

##  1.0 Summary

Located on Sanibel Island, near Ft. Myers Florida, the J.N. "Ding"
Darling National Wildlife Refuge (NWR) is one of the most visited
refuges in the USFWS refuge system (see Figure 1). The "Ding" Darling
NWR was established in 1945 and includes several satellite refuges. The
refuge is constantly looking for additional ways to educate the public
about the wildlife populations that live in or migrate to the refuge,
while maintaining its pri­mary goal to preserve and protect the wildlife
habitats it manages.

Island residents have a high regard for the beautiful beaches and
wildlife whose beauty has attracted so many visitors to the island. The
refuge and the island face constant con­flict between encouraging
visitors to come to Sanibel and preserving the natural beauty of the
island. The high level of traffic that the island experiences during the
peak visitation season exacerbates the conflict between preserving the
area for wildlife and educating visitors on the wildlife and
conservation efforts. Although there are some residents who would like
to close the island to tourists, it is possible for the island to
support more visi­tors, if they came without their cars.

Over the past few years, the refuge has closed a number of areas to the
public due to wildlife disturbance. The three access points on the
refuge are Wildlife Drive, the Tarpon Bay Recreation area, and the
Bailey Tract located on Tarpon Bay Road. At the Wildlife Drive entrance,
visitors are able to experience the new Visitor Environmental Education
Center before traveling on the five-mile, one-way drive by car, bicycle
or on foot. There is also an optional guided tram tour operated by a
contracted concessionaire two times per day during peak season. The tram
begins at the Tarpon Bay recreation area and trans­ports visitors to
Wildlife Drive for the tour. Although there is no land access to the
refuge at the Tarpon Bay recreation area, visitors are able to rent
bicycle and canoes at the con­cession there.

Options to bring Alternative Transportation Systems (ATS) to the "Ding"
Darling NWR must take into consideration the surrounding community and
the traffic problems faced by the City of Sanibel. The refuge is
inextricably linked with the island and must be sen­sitive to the needs
and desires of the residents when solving refuge problems. Feasible ATS
for the refuge must look at two systems: one to be used in the refuge,
and one to bring people to the refuge from other parts of the island.
Any ATS must look at the possi­bility to keep cars out of the refuge by
keeping them off the island.

Concepts for ATS include the possible expansion of the tram system
within the park along with the exclusion of private vehicles on Wildlife
Drive and the introduction of a shuttle system from parking areas off
the island to island activities either by trolley, bus, or ferry.

Figure 1. "Ding" Darling NWR Entrance and Bicycle Path along
Sanibel-Captiva Road

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height="1.8305555555555555in"}

##  2.0 Background Information

### 2.1 Location

Named after the famed cartoonist-conservationist, J. Norwood "Ding"
Darling, the "Ding" Darling NWR is located on Sanibel Island, Florida
off the coast of Ft. Myers, Florida. Sanibel Island is part of the
Florida barrier islands in the Gulf of Mexico including neigh­boring
islands of Captiva Island and Pine Island. Known for beautiful beaches,
exquisite seashells, and marine wildlife, Sanibel Island is a major
vacation destination in southern Florida.

### 2.2 Administration and Classification

The refuge was established in 1945 as the Sanibel NWR and was renamed in
1967. The majority of the refuge is located in the jurisdiction of the
City of Sanibel in Lee County, FL. The refuge has management agreements
with the State of Florida for two areas in the ref­uge including the
950-acre Tarpon Bay and 184-acre State Botanical Site.

Other refuges administered through the "Ding" Darling NWR include the
Pine Island NWR, Island Bay NWR, Matlacha Pass NWR, and Caloosahatchee
NWR.

### 2.3 Physical Description

The refuge covers almost half of Sanibel Island, but is not the only
area of the island that is preserved for land and wildlife conservation.
The Sanibel-Captiva Conservation Foundation is active in the
preservation of other areas of the island including the Sanibel River
area.

Although the refuge encompasses over 6,000 acres, almost 3,000 acres are
designated as Wilderness Area (see Figure 2). The island is accessible
from the county-owned causeway which leads to Sanibel's main street,
Periwinkle Way. Entrance to the Refuge Visitor Center and Wildlife Drive
is located off Sanibel-Captiva Road, the main road across the west end
of the island. The most accessible area of the refuge is the five-mile,
one-way Wildlife Drive. The main entrance is the loading area for the
guided tram tour during non-peak season.

Figure 2. Map of J.N. "Ding" Darling NWR

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The refuge is also accessible from Tarpon Bay Road. Although there is no
Visitor Center at this entrance, canoe and bicycle rental is available
through a contracted concessionaire. The Tarpon Bay entrance is also the
loading area for the guided tram tour during peak season.

### 2.4 Mission and Goals of the National Wildlife Refuge

The mission of the refuge is twofold: to preserve wildlife habitats and
educate the public about wildlife and wildlife preservation. The goal to
provide a visitor experience through education and observation is often
in conflict with the goal to preserve habitats for wild­life. The USFWS
mission mandates putting wildlife before the visitor. The specific
objec­tives of the "Ding" Darling Refuge are:

-   To join in partnership with the residents of Sanibel and Captiva
    Islands, Lee County and the State of Florida to safeguard and
    enhance over 7,300 acres (includes federal and state or county areas
    near refuge) of pristine subtropical habitat for the benefit of
    wildlife;

-   To protect and provide suitable habitat for endangered and
    threatened species including the American crocodile, west Indian
    manatee, wood stork, eastern indigo snake and bald eagle;

-   To implement sound wildlife management techniques to provide
    feeding, nesting and roosting habitat for a wide diversity of shore
    birds, wading birds, waterfowl, raptors and neo-tropical migratory
    species; and

-   To provide high-quality interpretive and environmental education
    programs in order to develop within each refuge visitor an
    appreciation of fish and wildlife ecology and to provide quality
    wildlife-oriented recreation compatible with the purposes for which
    the refuge was established.

### 2.5 Visitation Levels and Visitor Profile

The refuge accommodates over 800,000 annual visitors. The refuge
visitors are only a fraction of the visitors to Sanibel Island. The peak
season of the refuge traditionally starts in December and ends in April.
The highest visitations to the island and the refuge occur during
Christmas and Easter weeks. During the peak season, the refuge can
experience 14,000 visitors per month and 1,200 visitors per day in the
Visitor Center. Although por­tions of the visitors are residents
(year-round and part-time), most new visitors have come to Sanibel for
the beaches and find the refuge once they arrive on the island.

According to Refuge Management, every 5th grade class in the county
visits the refuge and 80 percent of the adult refuge visitors are
college educated. Since the institution of two radio recordings (on AM
stations), the refuge is able to make contact with approxi­mately 80
percent of the visitors before they arrive at the Visitor Center. The
radio recordings offer visit and ecological information and encourage
visitors to stop at the Visitor Center. The rangers and volunteers
understand that the education of the visitors makes them better
visitors.

The most popular way to see the refuge is on the five-mile, one-way
Wildlife Drive. Wildlife Drive is accessible by tram, automobile,
bicycle and pedestrians. Mopeds and buses are not permitted. The guided
tram tour, operated by a concessionaire, is a refuge recommended
activity. The refuge provides educational materials to the tram guides,
although the guides are independent contractors to the concessionaire.
The tram has been well received by both visitors and the refuge. The
refuge plans to expand the tram system in the future.

Other activities allowed on the refuge include fresh and salt water
fishing, hiking, canoeing, birdwatching, and photography. Canoes and
bicycles are available for rent at the Tarpon Bay entrance or through
independent operators outside the refuge. The Tarpon Bay concessionaire
(see Figure 3) also offers guided canoe and fishing trips, as does
specially permitted operators such as Westall Canoe Adventures.

Figure 3. Tarpon Bay Concession

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The refuge also grants special use permits for researchers. Camping is
not permitted on the refuge. For the benefit of the wildlife and special
maintenance, Wildlife Drive is closed on Fridays.

To provide a quality educational experience with justice to the
wildlife, the "Ding" Darling Wildlife Society, a non-profit volunteer
group, has raised \$2 million for a new Visitor Center. The new Visitor
Center opened in October 1999. With the opening of the new Visitor
Center and the improvement of educational displays, the typical length
of stay is expected to increase from the approximate 20 minutes visitors
spend in the current Visitor Center.

##  3.0 Existing Conditions, Issues and Concerns

The "Ding" Darling NWR and the City of Sanibel are inextricably linked
due to their shared location on Sanibel Island. Frequently, although not
always, issues and concerns which face the City effect the refuge.

### 3.1 Transportation Conditions, Issues and Concern

Parking is the major traffic concern of the refuge. The parking lot at
the Visitor Center accommodates approximately 40 to 50 vehicles. The
parking available at the Tarpon Bay lot doubles the capacity of refuge
parking. During peak season, the guided tram tour must operate out of
the Tarpon Bay lot due to extreme crowding at the Visitor Center lot.
Capacity for parked cars on the refuge has resulted in the refuge's
effort to expand parking lots. Although it is an unpopular decision, the
refuge has recently acquired and cleared a small area adjacent to the
Visitor Center parking lot for additional parking (see Figure 4). This
new lot is masked from view by a ring of trees and other plants which
were maintained during the clearing process. The new lot should
accommodate approxi­mately 40 cars.

Figure 4. Parking at Visitor Center -- Current (Left) and Additional
Future (Right)

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  height="1.820138888888889in"}                         height="1.81875in"}

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Wildlife Drive is the main road access through the refuge. The drive is
gravel, sand and shell and is designed to offer visitors an opportunity
to view the refuge wildlife by tram, automobile, bicycle or on foot.
Heavy rains erode Wildlife Drive creating potholes and run-off which
pollutes and fills adjacent water bodies. The road is graded every three
to six months to maintain a drivable surface. This road will be
augmented with an environ­mentally friendly surface material designed to
allow water percolation through the mate­rial. Funded through TEA‑21, the
road improvement project is controversial to local residents, who want
to maintain the natural surface.

Wildlife Drive is the starting point for several trailheads including
Indigo Trail and Shell Mound Trail in addition to providing observation
lookouts. The drive is one-way and traffic is limited to 15 miles per
hour. During peak season, the sides of the road are fre­quently crowded
with visitors who chose to get out of their cars at designated and
non-designated stops. Although traffic at these times may be slow,
Wildlife Drive is generally wide enough to accommodate the parked cars
without blocking the flow of traffic. A common stop along the drive, The
Cross Dike trail (see Figure 5) connects Wildlife Drive to the Indigo
(hiking/biking) Trail and is the most congested area on the drive for
both cars and pedestrians. Another concern regarding traffic on Wildlife
Drive is the frequency of cars on the drive causing wildlife
disturbance.

Figure 5. Cross Dike and Shell Mound Trail

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The guided tram tours offer the visitor and the refuge an ideal
opportunity (see Figure 6). The tram, which is fueled by propane and
holds 38 to 40 passengers, operates from the Tarpon Bay Recreation area
during peak season and from the Visitor Center during off-peak. The
guided tour offers an educational experience in addition to reducing the
num­ber of vehicles that enter wildlife habitats. The concessionaire that
operates the tram service is limited to three, two-hour tram tours per
day during peak season with one tram vehicle. Both the refuge and
visitors are pleased with the tram experience. The refuge plans to
expand the opportunity for visitors to take the guided tour by
increasing the number of trams available. The refuge is preparing to
issue a contract for an additional concession specifically for trams or
an expansion of the existing tram operation.

Figure 6. Tram Boarding at "Ding" Darling NWR

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The lack of roadway capacity on Sanibel Island streets is well known to
the residents, employees and long-term visitors to the island. During
peak season, traffic queues, extending for several miles, begin to occur
near 10 a.m. for vehicles entering the island, and during evening rush
hours for vehicles exiting the island. The number of cars leaving the
island between 3:00 and 6:00 p.m. in peak season inhibits the flow of
traffic to such an extent that residents and employees sometimes commute
by bicycle or boat to avoid the gridlock. Another local situation that
discourages visitors is the lack of parking at public beaches. The city
does not condone the construction of new parking areas, nor does it
anticipate expanding the roadways. The latent demand displayed in the
traffic congestion patterns and research suggests that regardless of
roadway size, congestion on the island roads will remain. In addition to
the general lack of capacity and inability to expand local roadways on
the island, the island faces a capacity problem on the causeway from the
mainland to Sanibel Island. Revenues from the Lee County-owned causeway
exceed \$3 million dollars each year.

The bicycle paths on Sanibel Island are well maintained and easily
accessible. Residents and long-term visitors sometimes use the bicycle
paths as transportation routes, although most bicycle path use is
recreational. There is no evidence of disproportionate conflict between
auto and bicycle traffic on Sanibel Island. Another active ATS in
existence on the Island is the Adventures in Paradise trolley that
operates between large resorts and local activities, including the
refuge. The trolley will drop off visitors in the parking lot of the
refuge, but is not authorized to operate through the refuge. The
trolley's effectiveness is limited by the roadway congestion on Sanibel
Island. LeeTran, the Lee County transit provider, has chosen not to
serve Sanibel Island due to the inability of buses to keep scheduled
routes through the excessive traffic congestion.

A recent study completed on the Lee County barrier island traffic showed
that the major­ity of traffic on Periwinkle Way between the hours of
4:00 p.m. and 6:00 p.m. originated at the beach, a popular destination
for all visitors to Sanibel Island, rather than the refuge. While the
serious traffic situation of the City of Sanibel exceeds the difficulty
faced by the refuge, the problematic island traffic influences the
traffic flow to and from the refuge.

### 3.2 Community Development Conditions, Issues and Concerns

The eco-tourism attractions of the Island bring both residents and
visitors. The opening of the Sanibel causeway in 1963 allowed the
development of Sanibel Island to expand in ways residents had never seen
before. More building permits were issued by Lee County, Florida in one
week of 1963, than in the whole year of 1962. The current population of
the City of Sanibel is approximately 5,700 permanent residents with a
swell of peak season population at nearly 30,000 people. The average age
of Sanibel residents is 58 years.

The Island's economic base is rooted in the main tourist attraction: the
natural environ­ment. Sanibel Island residents are, in general,
conservationists who want to preserve the natural beauty of the Island.
Many would like to close the causeway access to the island in order to
reduce visitation. In addition, the City development codes could be the
strictest in the state. No new hotels or motels have been built on the
Island in the last 25 years.

Both the Island Coast Development and the Sanibel and Captiva Islands
Chamber of Commerce organizations would like to see the expansion of the
tourist season to include the shoulder months of October, November, and
May. In fact, the Island Coast Development group is attempting to
attract foreign and in-state tourists during the off-season.

### 3.3 Natural or Cultural Resource Conditions, Issues and Concerns

In the late 1980s and early 1990s, the refuge closed large areas of the
refuge to increase the safety of wildlife habitats. Except for special
permits to uses such as research, the only land access to the refuge is
via Wildlife Drive. In addition, concern for the wildlife and the need
for maintenance prompted the refuge to close Wildlife Drive one day per
week.

The greatest traffic impact to natural resources of the refuge is the
wildlife disturbance caused by vehicular traffic along Wildlife Drive.
The number of cars on Wildlife Drive affect the number of times per hour
waterfowl may be flushed out of feeding areas, causing distress and
damage to the birds. In recent years, the refuge has eliminated the use
of mopeds and tour buses on Wildlife Drive. The disturbance of both
wildlife and visitors were the reasons given to prohibit those uses.

In an effort to give wildlife a chance to have some quiet time during
feeding hours, the refuge has attempted to delay the opening of the
drive until one hour after sunrise. While this effort was accepted in
the long-day summer months, it presented a problem during the short-day
winter months, which coincide with the peak tourist season. This effort
to diminish the effect of visitation on the wildlife resulted in traffic
back-ups on Sanibel-Captiva Road, blocking commuter traffic and angering
visitors.

The Shell Mound trail is an archeological site of the Calusa Indians,
who discarded shell­fish remains in mounds on the islands. The trail is
accessible by a platform trail made of recycled materials. Signs at the
trailhead alert visitors about the prohibition of removing artifacts
from the trail area.

### 3.4 Recreation Conditions, Issues and Concerns

The recreation opportunities on the refuge are limited to the activities
along Wildlife Drive, adjacent pedestrian and bicycle trails and
canoeing and boating opportunities at Tarpon Bay. Recreation
opportunities are a third priority for the refuge, behind wildlife
habitat preservation and visitor education. Any recreation activity that
is disruptive or detrimental to the conservation of wildlife and
habitats is either not permitted or will be discontinued.

##  4.0 Planning and Coordination

### 4.1 Unit Plans

The "Ding" Darling NWR is in the beginning stages of the USFWS mandated
comprehen­sive conservation plan. The plan is scheduled to be complete in
approximately two years. In addition to the conservation plan, the
refuge has plans for expansion outlined in the 1994 Final Environmental
Assessment and Land Protection Plan for the Proposed Expansion of J.N.
"Ding" Darling NWR.

### 4.2 Public and Agency Coordination

The refuge is a very active part of public and political life on Sanibel
Island. The refuge has over 170 full-time and part-time volunteers that
work as information guides on the trails and Wildlife Drive, in the
Visitor Center and in the refuge administrative office. The refuge,
along with the Sanibel-Captiva Conservation Foundation, is the center of
the con­servation effort on the Island.

The refuge has cooperative agreements with the City of Sanibel and the
Sanibel-Captiva Conservation Foundation to share equipment and personnel
for the maintenance and restoration of fish and wildlife habitats on and
off the refuge.

The "Ding" Darling Wildlife Society is the not-for-profit friends group
for the refuge. Although the activities of the Society are independent
of the refuge, they work very closely with the refuge staff to achieve
the goals of the refuge. The Society is responsible for raising the
money needed to build the Environmental Education Center, the new
Visitor Center of the refuge.

##  5.0 Assessment of Need and System Options

The refuge is generally in favor of closing Wildlife Drive to auto
traffic, but realizes the difficulty it may have with public opinion
regarding a needed parking structure, in addi­tion to changing the use of
the refuge for residents. Regardless of the decision to institute the
use of ATS or not, the decision must be coordinated with the City of
Sanibel and the residents of Sanibel Island.

### 5.1 Magnitude of Need

In a place where natural resources and environmental ambiance are the
key attractions and major force in the tourist economy, preserving the
environment is the most important mission. There is great opportunity
for an ATS to support this mission by providing a way to allow more
people to be educated and enjoy the natural surroundings of Sanibel
Island, without overcrowding the streets and refuge with cars.

The Island is at a crossroads with the amount of traffic it is able to
support, while main­taining or expanding the tourist economy in the
context of environmental conservation. The struggle between preserving
Sanibel and accommodating the tourist economy has been at the root of
Sanibel's traffic problems for years. It is clear that the problems of
the City commingle with the problems of the refuge and that a joint
effort will be necessary to assist the refuge and the City in the
future.

### 5.2 Feasible Transit Alternatives

There are two levels at which transportation alternatives on Sanibel
Island exist: within the J.N. "Ding" Darling NWR itself, and the
connection of the refuge to the rest of the Island. The feasible
alternatives below are described for peak season service.

-   Within the refuge itself, an expanded alternative fuel tram system
    on Wildlife Drive could provide the educational experience and a
    reduction in frequency of wildlife disturbance desired by the
    refuge. The tram system would allow passengers to board and exit at
    several points along Wildlife Drive and would run on 20-minute
    headways. In this scenario, private cars would not be allowed on
    Wildlife Drive. Bicycles and pedestrians would continue to be
    allowed on the drive. Ample parking would be provided at the tram
    boarding area.

-   In an effort to allow visitors to Sanibel Island enjoy other
    attractions on the Island, including the beaches, two feasible
    alternatives would give visitors the freedom to leave their cars on
    the mainland. In any system designed to serve the refuge in addi­tion
    to other attractions on the island, the system needs to accommodate
    beach and other recreational equipment that visitors may bring with
    them. The city-based serv­ices need not be free of charge, although a
    mechanism for encouraging alternative transportation use will be
    necessary.

-   One alternative would be a shuttle system of small buses or trolleys
    that would run at a minimum of once every half-hour headways from a
    parking area on the mainland to Sanibel Island, with stops at the
    refuge and beaches. Special considerations would need to be made for
    the level of traffic that Sanibel currently experiences to keep the
    shuttle system from getting caught in that traffic.

-   A second alternative would be to bypass the causeway via a ferry
    system that would originate on the mainland and bring visitors to a
    public beach on the island. Shuttle service between the landing and
    attractions, including the refuge, would be needed to complete the
    service.

##  6.0 Bibliography

City of Sanibel, City of Sanibel Vision Statement (The Sanibel Plan),
1996.

Dahlgren, Robert B. and Korschgen, Carl E., *Fish and Wildlife Leaflet
13.2.15 Human Disturbances of Waterfowl: Causes, Effects, and
Management*, U.S. Fish and Wildlife Service, 1992.

Klein, Mary L., *Effects of High levels of Human Visitation on Foraging
Waterbirds at J.N. "Ding" Darling National Wildlife Refuge*, Final
Research Report, FCFWRU Work Order No. 42, University of Florida, 1989.

Nicholas, James C., *Economic Possibilities, Realities and Assumptions*,
City of Sanibel, May 1997.

##  7.0 Persons Interviewed

Kristie Seaman Anders, Education Director, The Sanibel-Captiva
Conservation Foundation

Gates Castle, Director of Public Works, City of Sanibel, Florida

Jorge Coppen, Wildlife Biologist, J.N. "Ding" Darling NWR

Lou Hinds, Refuge Manager, J.N. "Ding" Darling NWR

Kerry Kraus, Refuge Ranger, J.N. "Ding" Darling NWR

Bob Mitchell, Naturalist and Guide, J.N. "Ding" Darling NWR/Tarpon Bay
Recreation Tram Tour

Bruce Rogers, Planning Director, City of Sanibel, Florida

Edward Sealover, City Manager, City of Sanibel, Florida

Susan Trokey, Land Acquisition Manager, J.N. "Ding" Darling NWR

Keith Trowbridge, Executive Director, Sanibel and Captiva Islands
Chamber of Commerce

##  Appendix -- City of Sanibel Vision Statement (1996)

After months of public meetings, discussions, and thought, the citizens
adopted the fol­lowing vision statement to be submitted with their
comprehensive land use plan (The Sanibel Plan) to the State of Florida:

"Sanibel is and shall remain a barrier island sanctuary, one in which a
diverse population lives in harmony with the island's wildlife and
natural habitats. The Sanibel community must be vigilant in the
protection and enhancement of its sanctuary characteristics.

The City of Sanibel will resist pressures to accommodate increased
development and redevelopment that is inconsistent with the Sanibel
Plan, including this Vision Statement.

The City of Sanibel will guard against and, where advisable, oppose
human activities in other jurisdictions that might harm the island's
sensitive habitats, including the island's surrounding aquatic
ecosystems.

Sanibel is and shall remain a small town community whose members choose
to live in harmony with one another and with nature; creating a human
settlement distinguished by its diversity, beauty, uniqueness,
character, and stewardship.

-   **Diversity --** Sanibel cherishes its cultural, social, ecological,
    and economic diversity and will endeavor to maintain it.

-   **Beauty --** Sanibel will foster quality, harmony and beauty in all
    forms of human altera­tion of the environment.

-   **Uniqueness --** Sanibel chooses to remain unique through a
    development pattern which reflects the predominance of natural
    conditions and characteristics over human intru­sions.

-   **Character --** Sanibel chooses to preserve its rural character in
    its setting within an urbanizing county. The commercialization of
    natural resources will be limited and strictly controlled.

-   **Stewardship --** Sanibel affirms a land ethic that recognizes land
    holding -- both public and private -- as a form of stewardship,
    involving responsibilities to the human and natural communities of
    the island and its surroundings, and to future generations.

The Sanibel community recognizes that its attractiveness to visitors is
due to the island's quality as sanctuary and as community. The City of
Sanibel will welcome visitors who are drawn by, and are respectful of,
these qualities; it will resist pressures to accommodate visitor
attractions and activities that compromise these qualities."

This three part statement of the community's vision of its future is a
hierarchy; one in which the dominant principle is Sanibel's sanctuary
quality. Sanibel shall be developed as a community only to the extent to
which it retains and embraces this quality of sanctuary. Sanibel will
serve as attraction only to the extent to which it retains its desired
qualities as sanctuary and community.