CONCEPTUAL MANAGEMENT PLAN

Ellicott Slough National Wildlife Refuge

Proposed Buena Vista Addition

Santa Cruz County, California

United States Department of the Interior

U.S. Fish and Wildlife Service
CONCEPTUAL MANAGEMENT PLAN

Ellicott Slough National Wildlife Refuge

Proposed Buena Vista Addition

Santa Cruz County, California

Prepared By:

Ivette Loredo, Refuge Manager

San Francisco Bay National Wildlife Refuge Complex

P.O. Box 524

Newark, California 94560

January 2005
Ellicott Slough NWR Conceptual Management Plan

i Table of Contents

TABLE OF CONTENTS

INTRODUCTION .............................................................1

NATIONAL WILDLIFE REFUGE SYSTEM .......................................2

Goals of the National Wildlife Refuge System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Purpose of Ellicott Slough NWR ............................................4

Goals of Ellicott Slough NWR .............................................4

REFUGE ADMINISTRATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

KEY AREAS OF MANAGEMENT FOCUS ........................................5

Habitat and Wildlife Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Population Monitoring ....................................................6

Public Use and Wildlife-Dependent Recreational Activities ......................6

RIGHTS-OF-WAY AND EASEMENTS ...........................................9

LAW ENFORCEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

FACILITIES DEVELOPMENT AND MANAGEMENT ..............................9

FIRE MANAGEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

INTERAGENCY AND PUBLIC COORDINATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

REFERENCES CITED . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Figures

FIGURE 1. Ellicott Slough National Wildlife Refuge .................................3

Tables

TABLE 1. Pre-acquisition Compatibility Determination Matrix .........................8

Appendix

APPENDIX A. Pre-acquisition Compatibility Determinations . . . . . . . . . . . . . . . . . . . . . . . . . 12

Ellicott Slough NWR Conceptual Management Plan 1

CONCEPTUAL MANAGEMENT PLAN

ELLICOTT SLOUGH NATIONAL WILDLIFE REFUGE

PROPOSED BUENA VISTA ADDITION

Santa Cruz County, California

INTRODUCTION

The 289-acre Buena Vista Property consists of three parcels; one consisting of approximately

187 acres, one consisting of approximately 100 acres, and another consisting of approximately 2

acres, currently owned by California Department of Fish and Game (CDFG). However, CDFG

has indicated that they have limited resources to manage Buena Vista. Therefore, the U.S. Fish

and Wildlife Service (Service) proposes to accept donation of the 100-acre and 2-acre parcels

from CDFG in fee title and to cooperatively manage the entire 289-acre property as a unit of the

Ellicott Slough National Wildlife Refuge (Refuge) and State Ecological Reserve (See Figure 1). 

CDFG would retain ownership of the 187-acre parcel and would enter into a Memorandum of

Understanding with the Service for management of the Buena Vista property. This is similar to

the current management arrangement at the Refuge where the Service manages the entire area,

including a 30-acre parcel owned by CDFG. 

This Conceptual Management Plan (CMP) is for the Service’s proposed acquisition and

management of the Buena Vista Unit of the Refuge and presents a general outline on how Buena

Vista would be managed. As a conceptual plan, this CMP does not provide extensive detail or

pinpoint exactly where long-term habitat improvements could be made or exactly where public

use facilities would be ultimately constructed. Those details would be included in the Refuge’s

Comprehensive Conservation Plan (CCP), a long-term formal planning effort scheduled to begin

in 2005 for the Refuge. During the CCP planning effort, goals, objectives, and strategies for

public use as well as resource management will be developed, with input from the public and in

accordance with the National Environmental Policy Act. This CMP, however, presents a broad

overview of the Service's proposed management approaches to wildlife, habitats, public uses,

wildlife-dependent recreational activities, wildfire suppression, rights-of-way, easements, law

enforcement, and facilities. More specific information is included for activities proposed during

the interim period, prior to implementation of an approved CCP.

As part of the acquisition process, an Environmental Assessment, Land Protection Plan,

compatibility determinations, and a Section 7 endangered species consultation, have been

prepared by the Service to analyze the environmental effects of establishing and managing the

proposed Buena Vista Addition as part of the Refuge.
Ellicott Slough NWR Conceptual Management Plan 2

The purpose of the proposed Buena Vista addition is to enhance survival prospects of

endangered species in the area. This expansion is being proposed primarily to protect the

endangered Santa Cruz long-toed salamander (Ambystoma macrodactylum croceum). 

The Buena Vista property is extremely important to the survival of the Santa Cruz long-toed

salamander (SCLTS) because of the small number of active breeding populations (11 known),

and the limited amount of suitable habitat. In addition, acquisition and management of this site

would benefit other rare species including the endangered robust spineflower (Chorizanthe

robusta var. robusta) and the threatened California tiger salamander (Ambystoma californiense). 

Buena Vista supports one of only six known populations of the robust spineflower, and 135 acres

of the property are included in the designated critical habitat (50 CFR 17 36822-36845). Other

rare plants on the site include Hooker’s manzanita (Arctostaphylos hookeri ssp. hookeri) (CNPS

1B), Kellogg’s horkelia (Horkelia cuneata ssp. sericea) (CNPS 1B), and California bottlebrush

grass (Elymus californicus) (CNPS 4).

NATIONAL WILDLIFE REFUGE SYSTEM

The proposed Buena Vista addition would become part of the National Wildlife Refuge System

(Refuge System) and would be managed to fulfill the Refuge System’s mission and the specific

purpose for which the Refuge was established. “The mission of the Refuge System is to

administer a national network of lands and waters for the conservation, management, and where

appropriate, restoration of fish, wildlife, and plant resources and their habitats within the United

States for the benefit of present and future generations of Americans” (National Wildlife Refuge

System Improvement Act of 1997). The Refuge System is a network of protected lands and

waters dedicated to fish and wildlife. Since the Refuge System’s inception in 1903, with the

establishment of the Pelican Island National Wildlife Refuge in Florida, the System has grown to

545 refuges, with at least one refuge in every state. California has 34 national wildlife refuges

and 4 wildlife management areas covering more than 450,000 acres. 

Goals of the National Wildlife Refuge System

‘ To fulfill our statutory duty to achieve refuge purpose(s) and further the System mission.

‘ Conserve, restore where appropriate, and enhance all species of fish, wildlife, and plants that 

are endangered or threatened with becoming endangered.

‘ Perpetuate migratory bird, interjusisdictional fish, and marine mammal populations. 

‘ Conserve a diversity of fish, wildlife, and plants.

‘ Conserve and restore, where appropriate, representative ecosystems of the United States,

including the ecological processes characteristic of those ecosystems.
Ellicott Slough NWR Conceptual Management Plan

3

Ellicott Slough NWR Conceptual Management Plan 4

‘ To foster understanding and instill appreciation of fish, wildlife, and plants, and their

conservation, by providing the public with safe, high-quality, and compatible wildlifedependent public use. Such use includes hunting, fishing, wildlife observation and

photography, and environmental education and interpretation.

Purpose of the Ellicott Slough National Wildlife Refuge

The purpose of the Refuge is to protect, manage, and restore wildlife habitats for Federally listed

endangered and threatened species. A refuge’s purpose serves as a vision or mission statement

for refuge managers and the public. It provides a broad, long-term statement of management

direction and priorities. 

Goals of the Ellicott Slough National Wildlife Refuge

The interim goals of the Refuge reflect the core mission of the U.S. Fish and Wildlife Service to

protect wildlife resources of national importance. The interim goals of the Refuge are:

‘ Endangered Species/Essential Habitats: To protect and enhance populations of the Santa

Cruz long-toed salamander and other endangered, threatened, and rare species, and to

promote their recovery by restoring and enhancing their habitats.

‘ Biodiversity: To protect, restore, and enhance upland and wetland habitats to promote a

natural diversity of native species.

Goals of the Refuge will be reviewed during the Comprehensive Conservation Plan process

scheduled to begin in 2005. 

REFUGE ADMINISTRATION

The Refuge would continue to be administered and supervised by the San Francisco Bay

National Wildlife Refuge Complex in Fremont, California. However, acquisition of the Buena

Vista Unit would allow for the establishment of a satellite office on-site using an existing

building on the property. Initially, only the Refuge Manager and Refuge Biologist would work

from this office. These two staff positions would also be responsible for the Salinas River

National Wildlife Refuge, 15 miles south of Buena Vista. The satellite office would increase the

efficiency of staff time by eliminating the long commute from Fremont headquarters to both of

these Refuges, a three to four-hour round trip. Additional funding would be necessary to operate

and maintain the office and storage facilities. It is estimated that initial expenditures would be

needed as follows: $50,000 to purchase two vehicles; $40,000 for office and computer

equipment; $15,000 for building repairs; and $23,000 for tools and maintenance supplies; for a

total of $128,000. Eventually, approximately $100,000 would be needed to acquire and furnish a

modular home or trailer for intern housing. In the interim, given Buena Vista’s proximity to two 
Ellicott Slough NWR Conceptual Management Plan 5

universities, it may be possible to recruit local interns who do not require housing. Aside from

staff costs, an interim annual operating budget of approximately $28,000 would be needed for

operations and supplies, $9,000 for an intern, and $15,000 for contracting maintenance work, for

a total of $52,000. In the long term, the Refuge would acquire heavy equipment and other

maintenance supplies, but, during interim management, maintenance work would be contracted

out or conducted by Refuge Complex staff stationed in Fremont.

KEY AREAS OF MANAGEMENT FOCUS

The key areas of initial focus for the Buena Vista Unit would be habitat and wildlife

management, research, and wildlife-dependent recreational activities. The proposed new unit

would operate under interim management until a formal habitat management plan or

Comprehensive Conservation Plan is in place. Interim management would include non-native

vegetation control using chemical and mechanical means, habitat restoration with native plant

species, endangered species surveys, law enforcement patrols, and limited environmental

education and interpretation. Buena Vista is relatively pristine, with few invasive non-native

species. Much of Buena Vista has been left undisturbed and would not need active management.

Habitat and Wildlife Management

Native habitats and plant communities would generally be managed for the recovery of

endangered, threatened, and rare species. Active modification and manipulation of intact native

plant communities would be avoided as appropriate. In disturbed areas, such as along the road,

around the building and trailer, and around the breeding pond, there are some non-native plant

infestations including Acacia sp., Eucalyptus sp., and pampas grass (Cortaderia selloana and C.

jubata). Non-natives would be controlled with RoundupTM (glyphosate), RodeoTM, or Garlon4TM

(triclopyr). Mechanical means would also be used to remove pampas grass by the root systems

and to remove non-native trees using chain saws. Areas that have undergone vegetation control

would be revegetated with native species. Seeds from native plants would be collected on-site

and grown in a greenhouse at the San Francisco Bay National Wildlife Refuge Complex

Headquarters in Fremont for later outplanting. 

Research that may benefit the Refuge’s endangered and threatened species or other natural

resources, may be permitted (see Compatibility Determination for Research, Appendix A). The

Service may allow limited access for scientific research and for study groups on a case-by-case

basis through a special-use permit process. Research that is nondisruptive to wildlife or

archaeological resources and compatible with refuge purposes and goals are types that may be

allowed. 
Ellicott Slough NWR Conceptual Management Plan 6

Population Monitoring

Endangered species surveys of SCLTS and robust spineflower would occur annually. During the

winter breeding season for the SCLTS, several night-time surveys would be conducted to

document breeding migrations. Using headlamps, Refuge staff would walk around the breeding

pond looking for adults. Adults found would be measured, checked for sex, and immediately

released. In addition, in the late spring, ponds would be sampled for larval salamanders to

document breeding success. Individual larvae would be measured, checked for overall condition

and presence of deformities, and released back into the pond. Robust spineflower surveys would

be conducted during the spring bloom period by walking the drainages where the species is

known to occur and counting individual plants. Other wildlife surveys, such as for the California

tiger salamander or rare plants, would be conducted as staff time permits.

Public Use and Wildlife-Dependent Recreational Activities 

Refuges as Primary Use Areas

National wildlife refuges are managed first and foremost for the benefit of fish, wildlife, plants,

and their habitats. In addition, refuges are closed to public uses unless specifically and formally

opened. Other Federal land management systems are managed under a multiple-use mandate

(e.g., national forests administered by the U.S. Forest Service and public lands administered by

the U.S. Bureau of Land Management). Hunting, fishing, wildlife observation and photography,

and environmental education and interpretation are priority public uses of the Refuge System. 

These uses must receive enhanced consideration over other general public uses in refuge

planning and management.

As part of the National Wildlife Refuge System, the proposed Buena Vista Unit of Ellicott

Slough National Wildlife Refuge would provide opportunities for wildlife-dependent

recreational uses that are compatible with the Refuge purpose. Ellicott Slough National Wildlife

Refuge can provide the people of the Monterey Bay area and the nation with opportunities to

gain better appreciation and understanding of the region's unique wildlife heritage.

The Compatibility Standard

Before any uses are allowed on a national wildlife refuge, Federal law requires a written

compatibility determination be completed which states that the use is compatible. A compatible

use is defined as a proposed or existing wildlife-dependent recreational use or any other use of a

national wildlife refuge that, based on sound professional judgment, will not materially interfere

with or detract from the fulfillment of the National Wildlife Refuge System mission or the

purposes of the national wildlife refuge. Sound professional judgement is defined as a decision

that is consistent with the principles of fish and wildlife management and administration,

available science and resources (funding, personnel, facilities, and other infrastructure), and 
Ellicott Slough NWR Conceptual Management Plan 7

adherence to the requirements of the National Wildlife Refuge System Administration Act of

1966 as amended by the National Wildlife Refuge System Improvement Act of 1997 (16 U.S.C.

668dd-668ee), and other applicable laws. If resources are not available to design, operate, and

maintain priority public uses that are otherwise compatible, the refuge manager will take

reasonable steps to obtain outside assistance from the state and other conservation interests. If

adequate funding or staffing assistance cannot be identified, then the use is not compatible and

cannot be allowed. High quality wildlife-dependent recreational opportunities are predicated on

healthy habitats and healthy populations of endangered species, migratory birds, and other native

species. Therefore, some constraints on public use and recreation are necessary. Unlimited

public access and use of refuge lands could easily degrade the resources that make a visit to a

national wildlife refuge so special.

Refuge Purpose(s)

The purpose(s) for which a refuge is established has special significance relating to compatible

public uses. A refuge purpose may be specified in or derived from a Federal law or

proclamation, an executive order, an agreement, a public land order, a donation document, or an

administrative memorandum (Fish and Wildlife Service Manual, 602 FW 1.4M.). In addition to

providing a basis for making compatibility determinations, a refuge’s purpose also serves as a

vision or mission statement for refuge managers and the public. It provides a broad, long-term

statement of management direction and priorities.

Pre-acquisition Compatibility Determinations

The Service is required to identify, prior to acquisition of new refuges or refuge additions,

existing owner-authorized, wildlife-dependent public uses that would be allowed to continue on

an interim basis during the time period following Service acquisition to the completion of a

Comprehensive Conservation Plan (CCP). This is required by the National Wildlife Refuge

System Administration Act of 1966 (16 U.S.C. 668dd-668ee). The referenced wildlifedependent public uses are hunting, fishing, wildlife observation and photography, and

environmental education and interpretation. These are the priority public uses of the National

Wildlife Refuge System. 

The Service is not required to complete pre-acquisition compatibility determinations for uses that

did not previously exist and were not owner-authorized. Determination of what qualifies as an

existing priority public use is a judgement call by the refuge manager. In general, occasional,

personal use of property, such as allowing family or friends to hunt or photograph wildlife,

would not be considered an existing public use. In contrast, properties that are generally open,

such as a private hunt club or a military reservation that allows fishing by military personnel and

their families, would be considered to have an existing public use. The Buena Vista property is

currently owned by CDFG and no public use opportunities are available. The previous private

owners (pre-TPL) also did not allow public use. Based on the pre-acquisition compatibility 
Ellicott Slough NWR Conceptual Management Plan 8

determinations (Appendix A), however, some compatible public use opportunities would be

available within the capabilities of allocated staff and budget.

Wildlife-dependent public uses that could be allowed on an interim basis within the proposed

Buena Vista Unit of Ellicott Slough National Wildlife Refuge, are identified in Table 1. The

pre-acquisition compatibility determinations are found in Appendix A.

Table 1. Pre-acquisition Compatibility Determination Matrix

Pre-acquisition Compatibility Determination Matrix for Priority Public Uses

Public Use Existing

Activity?

Compatible for

Interim Period?

FWS Funds and Staff

Available to Manage?

Interim Use

Allowed?

Hunting NO N/A N/A NO

Fishing NO N/A N/A NO

Wildlife

Observation

NO YES YES YES

Photography NO YES YES YES

Environmental

Education

NO YES YES YES

Interpretation NO YES YES YES

Pre-acquisition Compatibility Determination Matrix for Other Public Uses

Public Use Existing

Activity?

Compatible for

Interim Period?

FWS Funds and Staff

Available to Manage?

Interim Use

Allowed?

Research NO YES YES YES

N/A=not applicable

Hunting and fishing do not currently occur on the Buena Vista property. There is no fishing

opportunity because there are no permanent water bodies. The site does not provide good

hunting opportunities due to the dense vegetation and severe terrain. There is no known demand

for hunting on this site.

Buena Vista would initially be open to limited staff-led public use, providing interpretative and

educational opportunities. There would also be the opportunity for the public to enjoy wildlife

observation and photography during these on-site visits. In order to protect endangered species

and sensitive resources, the area would initially be open to the public only through Refuge staffled tours and volunteer programs. Group size would be limited to 20 people and groups would

be supervised by Refuge staff to ensure that resources are protected.
Ellicott Slough NWR Conceptual Management Plan 9

The Service may also allow limited access for scientific research and for study groups on a caseby-case basis through a special-use permit process. Research that is nondisruptive to wildlife or

archaeological resources and compatible with refuge purposes and goals may be allowed. 

In 2005 the Service is scheduled to begin a long-term planning effort for Ellicott Slough

National Wildlife Refuge. The CCP will develop goals, objectives, and strategies for public use

as well as resource management and will involve public input. At that time, the Service will

examine the potential for other compatible wildlife-oriented public uses of the Refuge. Of any

site at Ellicott Slough National Wildlife Refuge, Buena Vista provides the greatest opportunity

for environmental interpretation and education activities. Any public use allowed would be in

strict conformance with applicable Federal and State statutes. 

RIGHTS-OF-WAY AND EASEMENTS

Lands for the Refuge would be acquired subject to existing rights-of-way and easements. The

Service has an application process for granting new rights-of-way and easements across refuge

lands. This process would also be used if holders of existing rights-of-way and easements on

refuge lands want to expand or modify the terms and conditions of their rights. New rights-ofway and easements or modifications to existing rights-of-way and easements must be compatible

with the purpose for which the Refuge was established.

LAW ENFORCEMENT

Enforcement of Federal, State, and County laws on the Refuge would be important to safeguard

visitors, protect public and private property, and to conserve natural resources. The Refuge

Complex staff includes law enforcement personnel. Refuge officers would work with the

County Sheriff and California Department of Fish and Game to control trespass, violation of

wildlife laws, and other violations. 

FACILITIES DEVELOPMENT AND MANAGEMENT

Facilities for a satellite office and storage would be needed for the expanded Ellicott Slough

National Wildlife Refuge. The existing house and shed on the property would be utilized for an

office and storage facility, although modifications and repairs may be needed. It is estimated

that initial expenditures would be: $50,000 to purchase two vehicles; $40,000 for office and

computer equipment; $15,000 for building repairs; and $23,000 for tools and maintenance

supplies; for a total of $128,000. Eventually, approximately $100,000 would be needed to

acquire and furnish a modular home or trailer for intern housing. In the interim, given Buena

Vista’s proximity to two universities, it may be possible to recruit local interns who do not

require housing. In the long-term, heavy equipment and a new shop and storage facility would

be needed for maintenance. However, during interim management, maintenance work would be 
Ellicott Slough NWR Conceptual Management Plan 10

contracted out or provided by the Refuge Complex staff stationed in Fremont. Long-term needs

will be analyzed during the CCP planning process scheduled to begin in 2005.

A refuge entrance sign would be needed at the entrance gate. In addition, boundaries of any

lands acquired by the Service may be posted with refuge signs at regular intervals. Fencing or

other types of barriers are often constructed to control trespassing that could damage habitat or

endangered species.

FIRE MANAGEMENT

Wildfires are a concern in Santa Cruz County and within the proposed Buena Vista Unit. 

Chaparral, oak woodland, and pine forest habitats are subject to periodic natural and maninduced wildfires. 

If and when Buena Vista is acquired, the Service would update the Ellicott Slough National

Wildlife Refuge Wildland Fire Management Plan (FMP) (USFWS 2002) to include the new unit. 

The FMP addresses initial response, fire crew dispatch, wildfire suppression, cooperative

agreements for firefighting support, and prescribed burning. Fire management planning would

also include agreements with the California Department of Forestry, and local fire departments

and districts for fire suppression support. The Refuge would maintain certain existing roads and

trails as fire breaks and fire roads, and would evaluate needs for additional fire management

facilities. 

INTERAGENCY AND PUBLIC COORDINATION

The Service acknowledges the strong support of the California Department of Fish and Game

and Santa Cruz County. The Service will continue to work with these agencies to maximize

resource protection, enhancement, and public education for the expanded Ellicott Slough

National Wildlife Refuge. 

CDFG currently owns 30 acres within the approved boundary of the existing Refuge. These

lands are managed cooperatively by the Service and CDFG as the Ellicott Slough National

Wildlife Refuge and State Ecological Reserve. The Service and CDFG often work cooperatively

on land protection and management issues in Santa Cruz County; both agencies, for example,

recognized the need for protection of the Buena Vista property and have been actively involved

in the acquisition process. CDFG will retain a portion of the Buena Vista property which would

be managed by the Service. In addition, the County of Santa Cruz included the Buena Vista

property in its Watsonville Sloughs Watershed Resource Conservation and Enhancement Plan

(County of Santa Cruz, 2001). Located within the Gallighan Slough watershed, Buena Vista is

part of the larger Watsonville Slough Watershed. Within the planning area boundaries, the

County recognizes the need for non-native vegetation control, native plant restoration, and

protection of wildlife corridors through fee title or easement acquisition. The Buena Vista 
Ellicott Slough NWR Conceptual Management Plan 11

property itself lies adjacent to several privately owned residential parcels and agricultural areas. 

Therefore, the opportunity for a continued coordinated approach to resource management exists. 

The Service would seek partnerships with other agencies and neighboring landowners to meet

mutual goals and objectives whenever possible. The Service would also pursue other

partnerships to benefit resource management and public use, including interpretation and

environmental education.

REFERENCES CITED

County of Santa Cruz Planning Department, October 2001. Watsonville Sloughs Watershed

Resource Conservation and Enhancement Plan. Unpublished Report. Santa Cruz, CA. 

U. S. Fish and Wildlife Service. 2002. Ellicott Slough National Wildlife Refuge Wildland Fire

Management Plan. U. S. Fish and Wildlife Service, Fremont, CA. 
Ellicott Slough NWR Conceptual Management Plan

12 Appendix A

APPENDIX A

PRE-ACQUISITION COMPATIBILITY DETERMINATIONS

Pre-acquisition Compatibility Determination

Use: Environmental Education and Interpretation, Wildlife Observation 

and Photography

Refuge Name: Proposed Buena Vista Unit of Ellicott Slough National Wildlife 

Refuge, Santa Cruz County, California

San Francisco Bay National Wildlife Refuge Complex

Establishing and Acquisition Authority:

Endangered Species Act of 1973 (16 U.S.C. 1531-1543)

Refuge Purpose(s): “... to conserve (A) fish or wildlife which are listed as endangered 

species or threatened species... or (B) plants...” (16 U.S.C. 1534)

National Wildlife Refuge System Mission: The mission of the National Wildlife Refuge

System is “to administer a national network of lands and waters for the conservation,

management, and where appropriate, restoration of the fish, wildlife and plant resources and

their habitats within the United States for the benefit of present and future generations of

Americans” (16 U.S.C. 668dd-668ee).

Description of Use(s): During the interim period between acquisition of Buena Vista and

development and finalization of a Comprehensive Conservation Plan (CCP), limited compatible

public use programs could be implemented. The proposed Buena Vista Unit of Ellicott Slough

National Wildlife Refuge would provide an opportunity to interpret coastal resources and

increase public awareness of the importance of protecting wildlife habitat and endangered

species. Buena Vista supports regionally important populations of special-status species,

including the Santa Cruz long-toed salamander (Ambystoma macrodactylum croceum) and the

robust spineflower (Chorizanthe robusta var. robusta), both federally listed as endangered. 

Buena Vista supports one of only six known populations of the robust spineflower, and 135 acres

of the 289-acre property are included in the designated critical habitat (50 CFR 17 36822-

36845). The site also supports the threatened California tiger salamander (Ambystoma

californiense), as well as several rare plants including Hooker’s manzanita (Arctostaphylos

hookeri ssp. hookeri) (CNPS 1B), Kellogg’s horkelia (Horkelia cuneata ssp. sericea) (CNPS

1B), and California bottlebrush grass (Elymus californicus) (CNPS 4). 

The Refuge would provide access to the proposed Buena Vista Unit through guided tours led by

Refuge staff. Environmental education and interpretation at Buena Vista would focus on
Ellicott Slough NWR Conceptual Management Plan

13 Appendix A

endangered species and habitat management. In addition, Refuge staff would educate the public

about the National Wildlife Refuge System and the Service mission. There would be a

concurrent opportunity for wildlife observation and photography during any led tours. Tours

would be on foot on existing roads and trails. The number of tours offered each year would be

based on Refuge staff availability. Environmental education, interpretation, wildlife observation

and photography are priority wildlife-dependent public uses of the National Wildlife Refuge

System. For additional information about these proposed uses, please see the Environmental

Assessment for the Proposed Addition to Ellicott Slough National Wildlife Refuge (USFWS

2004).

Availability of Resources: In the interim period before development and finalization of a

Comprehensive Conservation Plan (CCP), Refuge resources would be limited to leading

approximately 2 to 4 on-site group events per year. It is anticipated that funding would be

available to maintain existing roads and trails on the property. If funding was not available to

maintain roads and trails to ensure public safety, tours would not be offered. Refuge staff would,

however, actively seek funding to provide for this limited public use.

Anticipated Impacts of the Use(s): Public access through staff-led tours at appropriate times,

as determined by the Refuge Manager, would have minimal impacts on Refuge resources. The

Service’s effort to protect sensitive habitats and endangered species could be aided by increased

public awareness. However, human activity can adversely impact the two endangered species on

Buena Vista, the Santa Cruz long-toed salamander and robust spineflower, as well as other

sensitive wildlife. Unsupervised public access, or failure of visitors to remain in designated

areas, could result in disturbance to or trampling of sensitive wildlife. 

Public Review and Comment: Public review and comment will be conducted concurrent with

the public review and comment period for the Environmental Assessment. Comments and

Service responses will be summarized here.

Determination (check one below):

_____ Use is Not Compatible

 X Use is Compatible With Following Stipulations

Stipulations Necessary to Ensure Compatibility: In order to allow use of the Refuge, the

following measures would be taken to ensure that environmental education and interpretation,

and wildlife observation and photography are compatible uses.

The proposed Buena Vista Unit would remain closed to public use, other than guided tours led

by Refuge staff, until those uses can be analyzed and planned for during the Ellicott Slough

NWR CCP process, scheduled to begin in 2005. In the interim, tours and interpretive events on 
Ellicott Slough NWR Conceptual Management Plan

14 Appendix A

Buena Vista would be led by Refuge staff trained in identification, ecology, and precautions

necessary for activities in the vicinity of endangered species. Protection of native plants and

animals would be incorporated into guided tours of Buena Vista. Groups would be instructed to

remain on existing roads and trails, which would be maintained. Group size would be limited to

20 persons or fewer. The Refuge Manager would determine the appropriate location and time

for the tours based on the current environmental conditions, in order to minimize impacts to

plants and wildlife. Tours would be led at the approval of the Refuge Manager on a case-by-case

basis. The number of tours offered each year and the maximum size of groups may be modified

by the Refuge Manager in the future, especially if impacts to wildlife and habitat are noted. 

Justification: The goals of the National Wildlife Refuge System include providing an

understanding and appreciation of fish and wildlife ecology and the human role in the

environment, and providing refuge visitors with high-quality, safe, wholesome, and enjoyable

recreational experiences oriented toward wildlife, to the extent these activities are compatible

with the purposes for which a refuge was established. In addition, the National Wildlife Refuge

System Improvement Act of 1997 identifies environmental education and interpretation, wildlife

observation, and photography, as priority public uses for national wildlife refuges. As priority

uses of the Refuge System, these uses take precedence over other potential public uses in refuge

planning and management. The Service strives to provide priority public uses when compatible

with the purpose of the Refuge and the mission of the System. The uses proposed for Buena

Vista would clearly assist the Service in meeting the purpose of the Refuge and the mission of

the System.

Environmental education and interpretive programs provide opportunities for the visiting public

to learn about and experience native plants, fish, and wildlife in their natural habitat. The

Refuge can also educate the public about its role within the agency and the National Wildlife

Refuge System, developing better community awareness, volunteer involvement, and advocacy. 

The Refuge also has the opportunity to provide meaningful educational information on habitat

restoration and on endangered species and their management. Wildlife observation and

photography during tours would allow the visiting public to enjoy, experience, and learn about

native wildlife and plants in their natural habitats. Concerns about protecting endangered

species require that public use opportunities be limited to staff-led events during the interim

phase.

Mandatory Reevaluation Date (provide month and year):

January 2020 Mandatory 15-Year Reevaluation Date (for priority public uses)

__________ Mandatory 10-Year Reevaluation Date (for all uses other than priority

public uses)

NEPA Compliance for Refuge Use Decision (check one below):

______Categorical Exclusion without Environmental Action Statement
Ellicott Slough NWR Conceptual Management Plan

15 Appendix A

______Categorical Exclusion and Environmental Action Statement

 X Environmental Assessment

______Environmental Impact Statement and Record of Decision

References Cited:

U.S. Fish and Wildlife Service. 2004 Environmental Assessment for Proposed Addition

to Ellicott Slough National Wildlife Refuge. U. S. Fish and Wildlife Service, Portland, Oregon.
Ellicott Slough NWR Conceptual Management Plan

16 Appendix A

Refuge Determination

Prepared by: _________________________________ __________________

(Signature) (Date)

Refuge Manager/

Project Leader

Approval: _________________________________ __________________

(Signature) (Date)

Concurrence

Refuge Supervisor: _________________________________ __________________

(Signature) (Date)

California/Nevada

Operations Manager: _________________________________ __________________

(Signature) (Date)

 

Ellicott Slough NWR Conceptual Management Plan

17 Appendix A

Pre-acquisition Compatibility Determination

Use: Research

Refuge Name: Proposed Buena Vista Unit of Ellicott Slough National Wildlife 

Refuge, Santa Cruz County, California

San Francisco Bay National Wildlife Refuge Complex

Establishing and Acquisition Authority:

Endangered Species Act of 1973 (16 U.S.C .1531-1543)

Refuge Purpose(s): “... to conserve (A) fish or wildlife which are listed as endangered 

species or threatened species... or (B) plants...” (16 U.S.C. 1534)

National Wildlife Refuge System Mission: The mission of the National Wildlife Refuge

System is “to administer a national network of lands and waters for the conservation,

management, and where appropriate, restoration of the fish, wildlife and plant resources and

their habitats within the United States for the benefit of present and future generations of

Americans” (16 U.S.C. 668dd-668ee).

Description of Use(s): During the interim period between acquisition of Buena Vista and

development and finalization of a Comprehensive Conservation Plan (CCP), Refuge staff would

consider allowing scientific research on Buena Vista. The Refuge receives periodic requests to

conduct scientific research. The Refuge proposes to give priority to studies that contribute to the

enhancement, protection, use, preservation, and management of native Refuge wildlife

populations and their habitats. Research applicants would be required to submit a proposal

summarizing: 

(1) objectives of the study; 

(2) justification for the study; 

(3) detailed study methodology and schedule;

(4) potential impacts on Refuge wildlife and/or habitats, including short- and long-term

disturbance, injury, and mortality; 

(5) research personnel required and their qualifications and experience; 

(6) status of necessary permits (i.e., scientific collecting permits, endangered species permit);

(7) costs to Refuge and Refuge staff time requested, if any; and 

(8) end products (i.e., reports, publications). 
Ellicott Slough NWR Conceptual Management Plan

18 Appendix A

Research proposals would be reviewed by Refuge staff or others, as appropriate. The following

criteria, and others as necessary, would be used to assess research proposals:

(1) Research that would contribute to Refuge management would have higher priority than other

requests.

(2) Research that would conflict with other ongoing research, monitoring, or management

programs would not be approved.

(3) Research projects that can be carried out elsewhere (off-Refuge) would less likely be

approved.

(4) Research that causes undue disturbance or is intrusive would likely not be approved. The

degree and type of disturbance would be carefully weighed when evaluating a research request. 

(5) The qualifications and experience of research participants would be evaluated and taken into

consideration.

(6) Evaluation of research requests would determine whether any effort has been made to

minimize disturbance through study design (for example, by considering adjustments in the

location, timing, or scope of the study, the number of participants, study methods, the number of

study sites, etc.).

(7) If it would be impossible for the Refuge to monitor research activities because of staffing or

logistical constraints, requests for research may be denied, depending on the circumstances. 

(8) The duration of the project would be considered and agreed upon before approval. Openended projects would not be approved. All projects would be reviewed annually.

If approved, research would be conducted under a Special Use Permit (SUP) issued by the

Refuge Manager. Conditions would be included in each SUP to ensure that impacts are

minimized, as defined by the Refuge Manager. For additional information about this proposed

use, please see the Environmental Assessment for the Proposed Addition to Ellicott Slough

National Wildlife Refuge (USFWS 2004).

Availability of Resources: Based on the number of research proposals received for the entire

San Francisco Bay National Wildlife Refuge Complex in the past, adequate funding and staff

exist to manage for research at the proposed Buena Vista Unit of the Ellicott Slough National 

Wildlife Refuge. However, depending on the potential for impacts to wildlife and the

availability of Refuge staff, the Refuge may request funds from the researcher to pay for Refuge

staff to monitor the project.
Ellicott Slough NWR Conceptual Management Plan

19 Appendix A

Anticipated Impacts of the Use(s): Human activity can have adverse impacts on rare species

and other wildlife, especially during breeding activities. Researchers accessing the area in motor

vehicles would have the potential to run over migrating amphibians, especially on rainy winter

nights. Researchers walking through Buena Vista also have the potential to trample and/or

damage endangered and rare plants, amphibians, or other wildlife.

Minimal impact on Refuge wildlife and habitats is expected with research studies. Some level of

disturbance is expected with all research activities, because researchers may enter areas that are

closed to the public, collect samples, and/or handle plants or wildlife. Special Use Permits

would contain conditions to ensure that impact on wildlife and habitats is reduced as much as

possible.

Public Review and Comment: Public review and comment will be conducted concurrent with

the public review and comment period for the EA. Comments on research and Service responses 

will be summarized here.

Determination (check one below):

_____ Use is Not Compatible

 X Use is Compatible With Following Stipulations

Stipulations Necessary to Ensure Compatibility: Concerns about protecting rare native plants

and animals and the biological integrity, diversity, and environmental health of the property

require that Refuge staff closely review proposed research projects and monitor research

activities. In order to allow research on the Refuge, the following measures would be taken to

ensure compatibility.

If proposed research methods would adversely affect, or would have the potential to adversely

affect, Refuge resources (habitat or wildlife), the researcher would be required to demonstrate

the need for the research and to identify potential impacts in advance of their occurrence. The

researcher would also be required to develop mitigation measures to minimize potential impacts;

mitigation measures would be listed as conditions on the Special Use Permit (SUP). No motor

vehicle access would be permitted during the salamander breeding season on rainy/wet nights. 

Additional motor vehicle restrictions may be stipulated on the SUP. All projects would be

reviewed annually. Refuge staff may accompany researchers at any time to assess potential

impacts, and may determine that previously approved research and SUPs should be terminated. 

Refuge rules and regulations must be followed unless otherwise excepted by Refuge

management in writing. Additional terms and conditions, tailored for specific research projects,

would be listed on the SUP.
Ellicott Slough NWR Conceptual Management Plan

20 Appendix A

Justification: Research projects would contribute to the enhancement, protection, use,

preservation, and management of native Refuge wildlife populations and their habitats, thereby

supporting the purpose of the Refuge and the mission of the National Wildlife Refuge System. 

In view of the impacts research activities may have on the Service’s ability to achieve Refuge

purposes, sufficient restrictions would be placed on the researcher to ensure that disturbance is

kept to a minimum. 

Mandatory Reevaluation Date (provide month and year):

 Mandatory 15-Year Reevaluation Date (for priority public uses)

January 2015 Mandatory 10-Year Reevaluation Date (for all uses other than priority 

 public uses)

NEPA Compliance for Refuge Use Decision (check one below):

______Categorical Exclusion without Environmental Action Statement

______Categorical Exclusion and Environmental Action Statement

 X Environmental Assessment

______Environmental Impact Statement and Record of Decision

References Cited:

U.S. Fish and Wildlife Service. 2004. Environmental Assessment for Proposed Addition

to Ellicott Slough National Wildlife Refuge. U. S. Fish and Wildlife Service, Portland, Oregon.
Ellicott Slough NWR Conceptual Management Plan

21 Appendix A

Refuge Determination

Prepared by: _________________________________ __________________

(Signature) (Date)

Refuge Manager/

Project Leader

Approval: _________________________________ __________________

(Signature) (Date)

Concurrence

Refuge Supervisor _________________________________ __________________

(Signature) (Date)

California/Nevada

Operations Manager _________________________________ __________________

 (Signature) (Date)