Draft Comprehensive Conservation Plan 

and Environmental Assessment 

Red Rock Lakes National Wildlife Refuge 

September 2008 

Prepared by 

U.S. Fish and Wildlife Service 

Red Rock Lakes National Wildlife Refuge 

27820 Southside Centennial Road 

Lima, MT 59739 

406/276 3536 

and 

U.S. Fish and Wildlife Service, Region 6 

Division of Refuge Planning 

PO Box 25486 DFC 

Lakewood, CO 80225 

303/236 8145 

Contents
 

Abbreviations .................................................................................................................................................................. iii
 

Summary ......................................................................................................................................................................... v 


1 Introduction .................................................................................................................................................................... 1
 

1.1 Purpose and Need for the Plan ......................................................................................................................... 1
 

1.2 The U.S. Fish and Wildlife Service and the Refuge System ........................................................................ 3
 

1.3 National and Regional Mandates...................................................................................................................... 4
 

1.4 Refuge Contributions to National and Regional Plans ................................................................................. 4
 

1.5 Ecosystem Description and Threats ................................................................................................................ 8
 

1.6 Planning Process ................................................................................................................................................. 10
 

2 The Refuge ...................................................................................................................................................................... 13
 

2.1 Establishment, Acquisition, and Management History ................................................................................ 13
 

2.2 Vision and Goals .................................................................................................................................................. 20


 3 Alternatives ................................................................................................................................................................... 29
 

3.1 Alternatives Development................................................................................................................................. 29
 

3.2 Alternatives Considered but Eliminated ........................................................................................................ 29
 

3.3 Elements Common to All Alternatives............................................................................................................. 30
 

3.4 Description of Alternatives ................................................................................................................................ 30
 

4 Affected Environment ..................................................................................................................................................... 63
 

4.1 Physical Environment ........................................................................................................................................ 63
 

4.2 Biological Resources........................................................................................................................................... 72
 

4.3 Cultural Resources ............................................................................................................................................. 82
 

4.4 Special Management Areas ............................................................................................................................... 84
 

4.5 Visitor Services ................................................................................................................................................... 86
 

4.6 Socioeconomic Environment ............................................................................................................................. 87
 

4.7 Operations ............................................................................................................................................................ 88
 

5 Environmental Consequences ........................................................................................................................................ 91 


5.1 Analysis Methods ................................................................................................................................................ 91
 

5.2 Effects Common to all Alternatives................................................................................................................. 91
 

5.3 Description of Consequences by Resource...................................................................................................... 92
 

6 Implementation of the Proposed Action (Draft CCP) ..................................................................................................... 103
 

6.1 Proposed Goals, Objectives, and Strategies................................................................................................... 104
 

6.2 Personnel............................................................................................................................................................. 124
 

6.3 Step-Down Management Plans........................................................................................................................ 124
 

6.4 Partnership Opportunities................................................................................................................................ 124
 

6.5 Monitoring and Evaluation............................................................................................................................... 124
 

6.6 Plan Amendment and Revision........................................................................................................................ 125
 

Glossary................................................................................................................................................................................................ 127
 

Appendices
 

A Key Legislation and Policies ............................................................................................................................ 133
 

B List of Preparers, Consultation, and Coordinators....................................................................................... 137
 
C Public Involvement ............................................................................................................................................. 139
 

D Species List .......................................................................................................................................................... 141
 

E Draft Compatibility Determinations ................................................................................................................ 165
 

F Fire Management Program .............................................................................................................................. 183
 

Bibliography ................................................................................................................................................................... 187
 

Figures

 1 Location of Red Rock Lakes National Wildlife Refuge, Montana ......................................................... 2


 2 Physiographic areas of the United States ................................................................................................. 6


 3 Upper Missouri, Yellowstone, and Upper Columbia rivers ecosystem map ........................................ 9


 4 CCP and environmental analysis process steps ..................................................................................... 10


 5 Red Rock Lakes National Wildlife Refuge approved acquisition boundary


 and acquired lands—refuge base map................................................................................................ 15


 6 Conservation easements within the Centennial Valley ........................................................................... 19


 7 Alternative A, current visitor service areas and facilities map ............................................................. 31


 8 Hunting program boundaries proposed in alternative B ........................................................................ 34


 9 Hunting program boundaries proposed in alternative C ........................................................................ 35


 10 Hunting program boundaries proposed in alternative D ........................................................................ 37


 11 Significant declines in annual, December, and January precipitation


 totals between 1948 and 2005 (Service data) .................................................................................... 64


 12 Mean annual, March, and April air temperatures at Lakeview, Montana,


 between 1949 and 2005. Significant increases are shown for the months 


 of March and April (Service data)....................................................................................................... 65


 13 Representative flow rates for Red Rock, Odell, and Tom Creeks at


 Red Rock Lakes National Wildlife Refuge (Service data) .............................................................. 69


 14 Vegetation classifications found in Red Rock Lakes National Wildlife Refuge .................................. 73


 15 Habitat types found in Red Rock Lakes National Wildlife Refuge ...................................................... 75


 16 Wetland types found in Red Rock Lakes National Wildlife Refuge ..................................................... 76


 17 Designated wilderness within the acquisition boundary of Red Rock Lakes


 National Wildlife Refuge ...................................................................................................................... 85


 18 Adaptive management process .................................................................................................................. 125 


Tables

 1 Planning process summary and timeline for Red Rock Lakes National Wildlife Refuge.................. 11


 2 Land acquisition history of Red Rock Lakes National Wildlife Refuge, 1935–2007 ........................... 16


 3 Conservation easement acquisition history within the Centennial Valley, 2001–2006 ....................... 20


 4 Summary of alternatives for the comprehensive conservation plan, Red Rock


 Lakes National Wildlife Refuge .......................................................................................................... 38


 5 Current base funded staff at Red Rock Lakes National Wildlife Refuge, Montana........................... 88


 6 Nesting and foraging requirements for the five most commonly detected bird


 species in willow riparian habitat at Red Rock Lakes National Wildlife Refuge, Montana .....109


 7 Habitat requirements for target wet meadow bird species ...................................................................113


 8 Bird species dependent on sagebrush habitat for breeding and nesting ..............................................116


 9 Current and proposed staff, Red Rock Lakes National Wildlife Refuge, Montana ............................124


 10 Step-down management plans for Red Rock Lakes National Wildlife Refuge, Montana ................124 


ii Draft CCP and EA,Red Rock Lakes National Wildlife Refuge, MT 
Abbreviations
 

ARM adaptive resource management 

Administration Act National Wildlife Refuge System Administration Act 

ATV all-terrain vehicle 

AUM animal unit months 

BP before present 

BLM Bureau of Land Management 

CCP comprehensive conservation plan 

CFR Code of Federal Regulations 

CWCS comprehensive wildlife conservation strategy 

districts wetland management districts 

DNRC Montana Department of Natural Resources and Conservation 

EA environmental assessment 

FMP fire management plan 

FONSI Finding of No Signifi cant Impact 

GIS Geographic Information System 

GS general pay schedule 

IBA Important Bird Area 

Improvement Act National Wildlife Refuge System Improvement Act of 1997 

MFWP Montana Fish, Wildlife, and Parks 

MTNHP Montana Natural Heritage Program 

NEPA National Environmental Policy Act 

NOI notice of intent 

PL public law 

PM10 Particulate matter 

refuge Red Rock Lakes National Wildlife Refuge 

Refuge System National Wildlife Refuge System 

RONS Refuge Operating Needs System 

RMP Rocky Mountain population 

SAV submerged aquatic vegetation 

sandhills Centennial Sandhills 

Service U.S. Fish and Wildlife Service 

U.S. United States 

USDA U.S. Department of Agriculture 

USFWS U.S. Fish and Wildlife Service 

USGS U.S. Geological Survey 

WCS water control structure 

WG wage grade pay schedule 

WMD wetland management district 

WPA waterfowl production area 

WPA Works Progress or Project Administration 

WUI wildland-urban interface 

Definitions of these and other terms are in the glossary, located after Chapter 6.
 
iv Draft CCP and EA, Red Rock Lakes National Wildlife Refuge, MT 
Summary
 

The following summary provides a brief overview 

of this draft comprehensive conservation plan and 

environmental assessment for Red Rock Lakes 

National Wildlife Refuge, including (1) a general 

description; (2) purposes of the refuge; (3) vision 

and goals; (4) alternatives considered, including the 

proposed action; and (5) the decision to be made 

regarding the proposed comprehensive conservation 

plan. 

GENERAL DESCRIPTION 

The U.S. Fish and Wildlife Service has developed 

this draft comprehensive conservation plan to 

provide a foundation for the management and use 

of Red Rock Lakes National Wildlife Refuge. This 

refuge is one of the most remote in the lower 48. It 

is located in the Centennial Valley in southwestern 

Montana in Beaverhead County, 47 miles west of 

West Yellowstone and 38 miles east of the town of 

Lima. This 47,756-acre refuge sits at 6,670 feet above 

sea level and lies east of the Continental Divide near 

the uppermost reach of the Missouri drainage. 

Historically, management focused on protecting and 

enhancing the trumpeter swan population at the 

refuge. In the 1930s, the refuge was their last known 

breeding location. Today, swans can still be seen 

breeding in the valley, but the intensive management 

of swan populations (through feeding and raising 

young) has been altered in favor of allowing the 

swans to thrive under mostly natural conditions. 

The refuge has one of the most naturally diverse 

areas in the National Wildlife Refuge System. The 

refuge boasts the largest wetland complex within the 

Greater Yellowstone ecosystem as well as expansive 

tracts of grassland and sagebrush-steppe habitats 

and a small amount of midelevation forested areas. 

These habitats support over 200 species of birds, 

including peregrine falcons, bald eagles, short-eared 

owls, sandhill cranes, sage grouse, and numerous 

species of waterfowl and waterbirds. Common 

mammals include Shiras moose, elk, mule and whitetailed deer, badger, coyote, and red fox. In addition, 

wolves and grizzly bears have been documented 

using the refuge in recent years. There is also a 

remnant population of native lacustrine/adfl uvial 

Arctic grayling that occur on the refuge. This 

population lives in the lake and breeds in the river. 

A full-time staff of five employees and various 

summer temporaries manage and study the refuge 

habitats and maintain visitor facilities. Domestic 

livestock grazing and prescribed fire are the primary 

management tools used to maintain and enhance 

upland habitats. Currently, four grazing cooperators 

are using refuge lands. Water level manipulation 

occurs in some areas of the refuge to improve 

wetland habitats. 

Approximately 12,000 people visit the refuge 

annually. Two refuge roads and three county roads 

that pass through the refuge account for the majority 

of visitor use. The refuge is open to limited fi shing, 

with the majority of fishing occurring on Red Rock 

Creek. In addition, the refuge is open to limited 

hunting of ducks, geese, coots, elk, pronghorn, moose, 

mule deer, and white-tailed deer. 

ESTABLISHMENT HISTORY 

On April 22, 1935, President Franklin D. Roosevelt 

established the Red Rock Lakes Migratory 

Waterfowl Refuge (later named “Red Rock Lakes 

National Wildlife Refuge” on July 19, 1961) under 

Executive Order 7023 “as a refuge and breeding 

ground for wild birds and animals.” On September 4, 

1935, President Roosevelt enlarged the refuge under 

Executive Order 7172 “provided, that any private 

lands within the areas described shall become a part 

of the refuge upon the acquisition of title or lease 

thereto by the United States.” 

During the 70 years since the executive boundary 

was established, the U.S. Fish and Wildlife Service 

has continued to acquire lands from willing 

landowners or receive land donations. The Service 

currently owns 47,756 acres within this approved 

boundary. 

LEGISLATIVE PURPOSES 

Every refuge has a purpose for which it was 

established. The purpose is the foundation upon 

which to build all refuge programs, from biology 

and visitor services, to maintenance and facilities. 

No action undertaken by the U.S. Fish and Wildlife 

Service or public may conflict with this refuge 

purpose. The refuge purposes are found in the 

legislative acts or administrative orders that provide 

the authorities to either transfer or acquire a piece 

of land for a refuge. Over time, an individual refuge 
vi Draft CCP and EA, Red Rock Lakes National Wildlife Refuge, MT 

may contain lands that have been acquired under 

a variety of transfer and acquisition authorities, 

giving a refuge more than one purpose. The goals, 

objectives, and strategies identified in the draft 

comprehensive conservation plan are intended to 

support individual purposes for which the refuge was 

established. 

The legislative purposes for Red Rock Lakes 

National Wildlife Refuge include the following: 

1. 	 “As a refuge and breeding ground for wild birds 

and animals.” (Executive Order 7023, dated 

April 22, 1935) 

2. 	 “For use as an inviolate sanctuary, or for any 

other management purpose, for migratory 

birds.” (Migratory Bird Conservation Act) 

3. 	 “Suitable for (a) incidental fish and wildlifeoriented recreational development, (b) 

the protection of natural resources, (c) 

the conservation of endangered species or 

threatened species ... the Secretary ... may 

accept and use ... real ... property. Such 

acceptance may be accomplished under the 

terms and conditions of restrictive covenants 

imposed by donors.” (Refuge Recreation Act) 

4. 	 “The conservation of the wetlands of the 

Nation in order to maintain the public benefi ts 

they provide and to help fulfi ll international 

obligations contained in various migratory 

bird treaties and conventions.” (Emergency 

Wetlands Resources Act) 

5. 	 “For the development, advancement, 

management, conservation, and protection of 

fish and wildlife resources ... for the benefi t 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.” (Fish and Wildlife Act) 

REFUGE VISION 

The vision for Red Rock Lakes National Wildlife 

Refuge is based on the establishing purposes of the 

refuge, resource conditions and potential, and the 

issues identified during the planning process (see 

Section 2.2). 

The majestic Centennial Valley of southwest 


Montana is an expansive mosaic of mountain 


wetlands, grasslands, shrub lands, and forests 


framed by dramatic mountain peaks. Through 


partnerships and conservation programs, the 


valley has maintained its biological integrity 


and is a working landscape that remains largely 


undeveloped.
 

To this end, the Red Rock Lakes National Wildlife 


Refuge is a conservation leader in the valley 


working to maintain and restore natural processes 


to create and sustain native habitat for migratory 


and resident fish and wildlife. Visitors have a sense 


of solitude and wildness that lifts their spirits 


and stirs their souls. This fi rst-hand experience 


with the refuge encourages people to participate 


as stewards, not only of the refuge, but also of the 


natural resources in their own communities.
 

REFUGE GOALS 

The goals described below help the staff achieve the 

vision for Red Rock Lakes National Wildlife Refuge. 

LAKE, POND, AND MARSH HABITAT GOAL 

Provide habitat for breeding and migrating birds, 

native fishes, and resident wildlife that maintains the 

biological diversity and integrity of montane wetland 

systems. 

RIPARIAN HABITAT GOAL 

Maintain the processes necessary to sustain the 

biological diversity and integrity of native riparian 

vegetation for breeding birds, native fi shes, and 

wintering ungulates. 

WET MEADOW, GRASSLAND, 

AND SHRUB-STEPPE HABITAT GOAL 

Provide structurally complex native meadow, 

grassland, and shrub-steppe habitats, within a 

watershed context, for sagebrush-dependent species, 

upland-nesting migratory birds, rare plant species, 

and other resident wildlife. 

ASPEN FOREST, MIXED CONIFEROUS 

FOREST, AND WOODLAND HABITAT GOAL 

Create and maintain aspen stands of various age 

classes within a mosaic of coniferous forest and shrub 

land for cavity-nesting birds and other migratory and 

resident wildlife. 

VISITOR SERVICES AND CULTURAL 

RESOURCES GOAL 

Provide quality wildlife-dependent recreation, 

interpretation, and outreach opportunities that 

nurture an appreciation and understanding of 

the unique natural and cultural resources of the 

Centennial Valley, for visitors and local community 

members of all abilities, while maintaining the 

primitive and remote experience unique to the refuge. 
 

Summary vii 

REFUGE OPERATIONS GOAL 

Prioritize for wildlife first and emphasize the 

protection of trust resources in the utilization of staff, 

funding, and volunteer programs. 

ALTERNATIVES 

ALTERNATIVE A: NO ACTION 

Alternative A, the no-action alternative, refl ects 

the current habitat management of the refuge. It 

provides the baseline against which to compare other 

alternatives. It is also a requirement of the National 

Environmental Protection Act that a no-action 

alternative be addressed in the planning process. 

ALTERNATIVE B: PROPOSED ACTION 

Management under alternative B acknowledges 

the importance of naturally functioning ecological 

communities on the refuge. However, changes to 

the landscape (for example, human alterations to 

the landscape, created wetlands, and species in peril 

requiring special management actions) prevent 

management of the refuge solely as a naturally 

functioning ecological community. Because some of 

these changes can be significant, some refuge habitats 

would require “hands on” management actions during 

the life of this plan. Visitor services programs (such as 

hunting, fishing, wildlife observation and photography, 

outreach, and interpretation programs) would be 

improved and expanded while maintaining the 

wilderness characteristics of the refuge. 

ALTERNATIVE C: WETLAND RESTORATION 

Management under alternative C acknowledges the 

importance of a naturally functioning ecosystem. 

Management action emphasis would be placed on 

allowing wetland and riparian habitats to function 

naturally through the restoration of most created 

and all modified wetlands and elimination of all water 

management structures. Visitor services programs 

(such as hunting, fishing, wildlife observation and 

photography, environmental education, outreach, 

and interpretation programs) would be improved 

and expanded while maintaining the wilderness 

characteristics of the refuge. 

ALTERNATIVE D: ECOLOGICAL RESTORATION 

Management under alternative D further 

Management under alternative D further 

acknowledges the importance of a naturally 

functioning ecosystem. Management action emphasis 

would be placed on the restoration of all natural 

processes, including the restoration of all wetland 

and riparian habitats. The refuge would participate 

in state programs to reintroduce bison if they become 

designated as free-ranging wildlife. Also, the refuge 

would place emphasis on creating a wilderness 

setting in all areas away from refuge headquarters. 

Visitor services programs would promote a 

wilderness experience with little to no signage or 

interpretation 

DECISION TO BE MADE 

The environmental assessment describes and analyzes 

four alternatives for achieving the above goals. Based 

on this analysis, the U.S. Fish and Wildlife Service’s 

regional director for region 6 (Mountain-Prairie 

Region) will decide which alternative will be selected 

to manage the refuge for the next 15 years.