Appendix C

Implementation

USFWS

Appendix A

Appropriate Use Findings 

Appendix B

Compatibility Determinations

Appendix C

Implementation

Appendix D

Wilderness Review

Appendix E

Biological Resources of Concern

Appendix F

Statement of Compliance

Appendix G

Integrated Pest Management

Appendix H

Glossary

Appendix I

Contributors

Appendix J

Acquisition History

Appendix K

Public Involvement

Appendix L

Hydrological Modeling

Appendix M

References

Appendix N

List of Refuge Species

Appendix O

Wildland Fire Management Plan

Appendix P

Maps
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-1 

Appendix C. Implementation 

C.1 Overview and Historical Funding Picture 

A comprehensive conservation plan (CCP) provides long-term guidance for management decisions, 

sets forth goals, objectives, and strategies needed to accomplish refuge purposes, and identifies the 

U.S. Fish and Wildlife Service’s (Service’s; USFWS’s) best estimate of future needs. Often, a CCP 

provides detailed program planning levels that are substantially above current budget allocations and, 

as such, are primarily for Service strategic planning and program prioritization purposes. A CCP 

does not constitute a commitment for staffing increases, operational and maintenance increases, or 

funding for future land acquisition. 

Implementation of the management direction of the CCP requires increased funding, which will be 

sought through an increase in base funding (Congressional allocations), partnerships (both private 

and public), and grants. Activities and projects identified will be implemented as funds become 

available. 

C.1.1 Operating Funds History 

Operational management of refuge lands is accomplished by permanent and temporary staffing, 

volunteers, and partnerships. Operational management includes managing public use, law 

enforcement, cultural resources, biology, fire, maintenance, administration, and habitat/wildlife 

restoration/maintenance management programs. 

In fiscal year 2011, the majority of the station’s operating funds came from Congressional allocated 

base funding. This funds salaries and benefits for six permanent full-time employees, annual 

maintenance, and overhead expenses associated with maintaining public use and administrative 

facilities. 

Other funding sources include the Bonneville Power Administration’s (BPA’s) Fish and Wildlife 

Program, Migratory Birds Program, and Refuge Roads Program, and American Recovery and 

Reinvestment Act (ARRA) youth programs. Without these additional funds, the majority of work in 

the habitat restoration and environmental education program that is accomplished each year will not 

happen. 

C.1.2 Revenue Sharing 

In lieu of property taxes, the Tualatin River National Wildlife Refuge (the refuge) annually provides 

revenue-sharing payments to Yamhill and Washington Counties. The U.S. Congress each year 

determines what percent of funds will be appropriated for all appraised Federal lands. Counties are 

not restricted in the use of these funds. If the refuge expands through the purchase of inholdings 

(privately owned lands within the current approved boundary) or through an expanded refuge 

boundary, additional payments in lieu of tax will be made to the counties. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-2 Appendix C. Implementation Plan 

C.2 Step-Down Plans 

The Comprehensive Conservation Plan is one of several plans necessary for refuge management. The 

CCP provides guidance in the form of goals, objectives, and strategies for several refuge program 

areas but may lack some of the specifics needed for implementation. Step-down management plans 

will be developed for individual program areas within approximately 5 years after CCP completion. 

All step-down plans require appropriate NEPA compliance; implementation may require additional 

permits. Step-down plans for the refuge are listed in Table C-1. Project-specific plans, with 

appropriate NEPA compliance, may be prepared outside of these step-down plans. 

Table C-1. Refuge Step-Down Plans 

Step-Down Management Plans Status (Date Completed and/or Date to be 

Prepared/Updated)

Wapato Lake Unit Habitat Management Plan – Land 

Protection Plan 

Contingent on acquisition and results of planning 

study 

Cultural Resources Museum Management Plan 2015 

TDML Plan 2014 

Visitor Services Plan update 2017 

Hunt Plan – youth waterfowl 2015 

Hunt Plan – adult waterfowl Contingent on Wapato Lake Unit restoration 

Fishing Plan 2016 

Integrated Pest Management Plan 2012 (prepared concurrently with CCP, Appendix G)

Wildland Fire Management Plan 2012 (prepared concurrently with CCP, Appendix O)

Elk Management Plan Will be prepared concurrently with Willamette 

Valley NWR Complex 

Habitat Management Plans and Restoration Plans for 

each parcel 

Varies; restoration plans will be developed prior to 

any restoration action being implemented 

Disease Contingency Plan 2015 

Facilities Management Plan 2017 

Inventorying and Monitoring Plan 2015 

C.3 Future Needs 

C.3.1 Future Sources of Funds 

Projects listed below were drawn from the goals, objectives, and strategies and could be implemented 

during the next 15 years. Many of these projects will be included in either the Refuge Operational 

Needs System (RONS) or the Refuge Management Information System (RMIS). Both are used to 

request funding from Congress. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-3 

Currently, a large backlog of maintenance needs exists on the refuge. In 2010, the deferred 

maintenance backlog for the Tualatin River National Wildlife Refuge was $1,450,347. Reduction of 

the backlog is an ongoing goal and is included here in the analysis of funding needs. The RONS 

documents proposed new projects to implement the CCP to meet refuge goals and objectives and 

legal mandates. 

Several infrastructure and facility projects will be eligible for funding through construction, deferred 

maintenance, or Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for 

Users (SAFETEA-LU) funds (i.e., Refuge Roads program). 

Funds for other “one-time costs” (see below) will be sought through increases in refuge base funding, 

special project funds, grants, Refuge Roads, or Federal Highway Administration funding. 

C.3.2 Spending Priorities 

Priorities are designated in Table C-2 for one-time and ongoing (recurring) projects (strategies) 

identified in the CCP. Priorities are designated as High (H), Medium (M), or Low (L). The rankings 

were determined according to the following criteria: 

 A “high”-ranked project/strategy is ongoing, needed immediately, or should be considered in 

the near future to successfully manage habitat and public use on refuges. It should directly 

support the “refuge purpose” or a “big six” public use activity, and/or restore a “threatened or 

endangered” species or rare/unique habitat (oak savanna, wet prairie, etc.). 

 A “medium”-ranked project/strategy is of a lesser degree of urgency, but also directly 

supports the “refuge purpose” or a “big six” public use activity, and/or maintains and restores 

a “threatened or endangered” species or rare/unique habitat (oak savanna, wet prairie, etc.). 

 A “low”-ranked project/strategy maintains restored habitat or species and/or addresses a “big 

six” public use activity that is not as widely sought out by the public as other “big six” public 

use activities. 

C.3.3 Operational Costs to Implement CCP 

The following sections detail both one-time and recurring costs for various projects. Recurring costs 

reflect the future operational and maintenance costs associated with the project. 

One-time Costs: One-time costs are project costs that have a startup cost associated with them, such 

as purchasing a new vehicle for wildlife and habitat monitoring or designing and installing an 

interpretive sign. Some are full project costs for those projects that can be completed in 3 years or 

less. These projects do not include permanent operational costs (staff salary and support). They can, 

however, include the cost of temporary or term salary associated with a short-term project. Salary for 

new positions and operational costs are reflected in operational or “recurring” costs. Table C-2 

compares both one-time and recurring costs across current and future management. 

Operational and Maintenance (Recurring) Costs: Operational and maintenance costs reflect refuge 

spending of base funds allocated each year. These are also known as recurring costs and are usually 

associated with day-to-day operations and projects that last longer than 3 years. Operational costs use 

base funding in Service codes 1261, 1262, 1263, and 1264. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-4 Appendix C. Implementation Plan 

Maintenance includes preventive maintenance; cyclic maintenance; repairs; replacement of parts, 

components, or items of equipment; adjustments, lubrication, and cleaning (nonjanitorial) of 

equipment; painting; resurfacing; rehabilitation; special safety inspections; and other actions to 

ensure continuing service and to prevent breakdown. Maintenance also includes maintaining public 

use, administrative, historical, and shop buildings and facilities. Due to normal use and weather 

conditions, buildings and facilities need annual maintenance and repairs. Maintenance of habitat 

throughout the refuge as a result of the threat of invasive plants and animals and succession, and 

protection of threatened and endangered species is an annual occurrence. 

Operational costs includes all costs associated with the operation of all programs including supplies 

and materials needed to support these programs, such as field supplies, brochures, media, and other 

interpretative materials, volunteer supplies, herbicide, fuel, overhead costs (electricity, phone, natural 

gas, office supplies, alarm systems for security and fire monitoring), training for staff and volunteers, 

and safety materials. These costs do reflect salaries for temporary positions, but do not include 

permanent staff salary. 

Table C-2 displays estimated operating and maintenance costs for the major project items identified 

in the CCP. One column is based on an estimate of costs for implementing current management. The 

other reflects increased funding needs for increases in public uses and facilities, increased habitat 

restoration and conservation activities, and other strategies planned under the management direction 

described in Chapter 2. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-5 Table C-2. Estimated Operating and Maintenance Costs for the Major Project Items Identified in the CCP Goal/ Objective Strategy One- time Cost Recurring Cost (annual) Priority Cost/Unit Units/Total Cost Current Management Future Management 1/1.1 Maintenance of riparian forest (integrated pest management [IPM], monitoring) X M $100 Acres 349 322 Cost $34,900 $32,200 1/1.2 Restore riparian forest (pretreatment, planting, seeding, mechanical methods) X H *$6,400 Acres 39 111 Cost $249,600 $710,400 2/2.1 Maintenance of mixed forest (IPM, prescribed fire, monitoring, snag creation) X L $250 Acres 49 52 Cost $12,250 $13,000 2/2.2 Restore mixed forest (pretreatment, planting, seeding, mechanical methods) X L *$3,000 Acres 0 51 Cost $0 $153,000 3/3.1 Maintain oak savanna (prescribed fire, IPM, mowing, tree thinning, monitoring) X H $250 Acres 149 109 Cost $37,250 $27,250 3/3.2 Restore oak savanna (pretreatment, plantings, seeding, prescribed fire) X H *$910 Acres 0 38 Cost $0 $34,580 3/3.3 Maintain oak/pine woodland (IPM, prescribed fire, monitoring, snag creation) X H $250 Acres 0 23 Cost $0 $5,750 3/3.4 Restore oak/pine woodland (pretreatment, planting, seeding, mechanical methods) X M *$3,000 Acres 0 20 Cost $0 $60,000 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-6 Appendix C. Implementation Plan Table C-2. Estimated Operating and Maintenance Costs for the Major Project Items Identified in the CCP Goal/ Objective Strategy One- time Cost Recurring Cost (annual) Priority Cost/Unit Units/Total Cost Current Management Future Management 4/4.1 Maintain wet prairie (planting, IPM, prescribed fire, mowing/haying, monitoring) X M $200 Acres 27 27 Cost $5,400 $5,400 4/4.2 Restore wet prairie (pretreatment, planting, seeding, monitoring) X H $1,000 Acres 0 114 Cost $0 $114,000 5/5.1 Maintain herbaceous wetlands (irrigation, water manipulation, mowing/discing, IPM, contouring of wetlands, pest management, prescribed fire) X M $250 Acres 294 187 Cost $73,500 $46,750 5/5.2 Enhance scrub-shrub wetlands (IPM, mowing/discing, pest management, planting, seeding) X H $2,000 Acres 0 Approx. 700 acres max. Cost $0 $1.4 million 5/5.3 Maintain scrub-shrub wetlands (IPM, prescribed fire, logs/trees for basking and resting structures, monitoring) X M $150 Acres 20 20 Cost $3,000 $3,000 5/5.3 Restore scrub-shrub wetlands (pretreatment, creating swales, plantings, fish passageways) X H **$2,350 Acres 0 180 Cost $0 $80,252 average 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-7 Table C-2. Estimated Operating and Maintenance Costs for the Major Project Items Identified in the CCP Goal/ Objective Strategy One- time Cost Recurring Cost (annual) Priority Cost/Unit Units/Total Cost Current Management Future Management 6/6.1 Maintain streams and sloughs (install fish passageways, remove fish barriers, plantings, erosion control, IPM, best management practices [BMPs]) X L $1,000 Miles 7.2 7.2 Cost $7,200 $7,200 6/6.2 and 6.3 Restore streams and sloughs (topographical surveys, heavy equipment work, removal of barriers, plantings, erosion control) X H $10,000 Miles 0 4.3 Cost $0 $43,000 7/7.1 Cooperative farming (administration) X L Acres 909 0 Cost $2,000 $0 8/8.1 Inventorying and monitoring surveys (develop and continue surveys for refuge) X H Cost $100,000 $200,000 8/8.2 Conduct research (studies and investigations toward water quality, soils, IPM techniques, fishery resources, climate change) X L Cost $300,00 $200,000 9/9.1 Inventory, evaluate, monitor, and protect cultural resources X L Cost $2,500 $35,000 9/9.2 Cultural resources interpretation (tribal partnerships, X M Cost $0 $10,000 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-8 Appendix C. Implementation Plan Table C-2. Estimated Operating and Maintenance Costs for the Major Project Items Identified in the CCP Goal/ Objective Strategy One- time Cost Recurring Cost (annual) Priority Cost/Unit Units/Total Cost Current Management Future Management interpretative media and exhibits) 10/10.1 Provide interpretive information to visitors (media, brochures, signs) X H Cost $0 $120,000 10/10.2 Outreach and special events X M #Events 4 4 Cost $6,500 $6,500 10/10.3 Evaluation of visitor services X M Cost $0 $25,000 10/10.4 Public access (partnership on trails, safe highway access) X L Cost $0 $2,500 10/10.5 Volunteer program (develop/provide manuals, bunkhouse, and recreational vehicle [RV pads) X M Cost $0 $50,000 11—all Environmental education (develop curricula, materials, and install nature explore area) X H Cost $0 $75,000 Environmental education (programs/workshops and materials) X H Cost $40,000 $158,000 12/12.1 and 12.2 Wildlife observation, photography, and interpretation (kiosks, signs, photo blinds, bunkhouse for volunteers) X M Cost $0 $327,000 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-9 Table C-2. Estimated Operating and Maintenance Costs for the Major Project Items Identified in the CCP Goal/ Objective Strategy One- time Cost Recurring Cost (annual) Priority Cost/Unit Units/Total Cost Current Management Future Management Wildlife observation, photography, and interpretation (new positions, facilities maintenance) X H Cost $30,000 $258,000 12/12.3 and 12.5 Waterfowl hunting— complete hunting package X M Cost $0 $90,000 Waterfowl hunting— manage program X M Cost $0 $50,000 12/12.4 Fishing—complete fishing package X L Cost $0 $5,000 Fishing—manage fishing program X L Cost $0 $15,000 All Develop step-down plans X M $15,000 # Plans 0 5 Cost $0 $75,000 *Cost was estimated from previous restoration contracts that included labor, plants (trees and grass), protective tree coverings, and other supplies. **Since the acreage is undetermined for restoration at the Wapato Lake Unit due to a pending hydrological study, cost was estimated based on mean acreage. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-10 Appendix C. Implementation Plan 

C.3.4 Staffing Needs To Implement CCP 

Personnel are needed to manage and enhance the quality and diversity of indigenous wildlife habitats 

on the Tualatin River National Wildlife Refuge. With the proper staffing to implement this plan, 

habitat management practices can be implemented and monitoring of flora and fauna responses to 

management can be applied, which will allow us to apply adaptive management strategies crucial for 

long-term success in meeting the mission, goals, and objectives of the refuge. Staff will interact with 

the public for education purposes and to provide for public safety. Maintenance staff will maintain 

facilities and equipment. Training of staff and coordination among staff, volunteers, and refuge 

partners will ensure that the mission and guiding principles of the National Wildlife Refuge System 

endure. 

Table C-3 shows costs for permanent and seasonal staff needed each year. It does not include staff 

costs associated with special projects; these are summarized in Table C-2. Table C-3 is related to the 

Refuge Annual Performance Plan. The section of the table titled “Present Core Staff” shows 

permanent full-time staff and temporary staff funded with base budgets and other Federal funding. It 

is important to note that partnerships with other organizations are crucial to achieving baseline 

objectives as described under current management. Future management staffing positions 

demonstrate additional staff needed to succeed with the goals of the CCP. 

The proposed full development-level staffing plan will achieve optimum refuge outputs within this 

planning period (15 years). The rate at which this station achieves its full potential to fulfill the 

objectives and strategies contained in the CCP is dependent upon receiving adequate funding and 

staffing. 

Table C-3. Staffing Needs for Major Project Items in CCP 

Staff-Refuge 

Operations 

Status* Position* Justifying 

Objective 

Current 

Management

Future Management

Present core staff 

Project Leader PFT GS-0485-13 Current X X 

Deputy Project 

Leader 

PFT GS-0485-12 Current X X 

Wildlife Biologist PFT GS-0486-11 Current X X 

Visitor Services 

Manager 

PFT GS-0025-11 Current X X 

Maintenance 

Worker 

PFT WG-4749-8 Current X X 

Administrative 

Officer 

PFT GS-0399-5 

SCEP 

Current X X 

Biological 

Technician 

TEMP GS-0401-5 Current X X 

Future Management staffing positions
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Appendix C. Implementation Plan C-11 

Table C-3. Staffing Needs for Major Project Items in CCP 

Staff-Refuge 

Operations 

Status* Position* Justifying 

Objective 

Current 

Management

Future Management

Biological 

Technician 

PFT GS-0401-6/7 1.1 X 

Refuge Operations 

Specialist 

PFT GS-0485- 

7/9/11 

5.3 X 

Park Ranger (law 

enforcement) 

PFT GS-0025-9 10.1 X 

Volunteer 

Coordinator 

PFT GS-0025-6/7 10.5 X 

Environmental 

Education Specialist 

PFT GS-0025-7/9 11.1 X 

Engineering Equipment 

Operator 

PFT WG-5716-8 1.2 X 

*Status and Position definitions: 

PFT: Permanent full time 

TEMP: Temporary position 

GS: General schedule Federal employees 

WG: Wage grade scale 

Volunteer Program: The Tualatin River National Wildlife Refuge has a very active volunteer 

program that supports all programs of the refuge. During fiscal year 2011, more than 225 volunteers 

donated over 14,640 hours of their time to accomplishing the goals of refuge programs, including 

maintenance, public use, biological support, environmental education, habitat restoration and 

management, and administrative duties (Table C-4). The refuge provides transportation, training, 

supplies, equipment, and housing as needed in support of the volunteer program. The number of 

hours donated in 2010 was equivalent to $21.79 per hour as estimated by the Independent Sector 

(2011). The value of time donated equated to $328,000, or seven full-time employees. 

Table C-4. Volunteer Contributions over a 5-year Time Frame (2007-2011) 

Year 2007 2008 2009 2010 2011 

Volunteers 340 558 477 205 226 

Hours 6,629 13,178 14,309 15,065 14,641 

   
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

C-12 Appendix C. Implementation Plan 

Document continues on the following page.