Chapter 1

Introduction

and Background

Chapter 5HumanEnvironment

Chapter 4BiologicalEnvironment

Chapter 3PhysicalEnvironment

Chapter 2ManagementDirection

Chapter 1Introduction andBackground

Appendices

© Dennis Davenport
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-1 

Chapter 1 Introduction and Background 

1.1 Introduction 

 Just a few short miles from the center of Oregon’s largest city, the honking of geese replaces 

the honking of cars. This special place is a refuge, a haven for wildlife and people. Born of a 

community’s dream, and made possible by their support, a wildlife refuge now thrives in the 

backyard of a growing metropolis. 

Located on the outskirts of Portland, Tualatin River National Wildlife Refuge (refuge) is one of a 

handful of urban national wildlife refuges in the country. Situated within the floodplain of the 

Tualatin River, the refuge comprises less than 1 percent of the 712-square-mile watershed (see 

Appendix P, Maps 1 and 3). Yet, due to its richness and diversity of habitats, it supports some of the 

most abundant and varied wildlife in the watershed. The refuge is home to nearly 200 species of 

birds, over 28 species of mammals, 14 species of reptiles and amphibians, and a wide variety of 

insects, fish, and plants. The refuge has also become a place where people can experience and learn 

about wildlife and the places they call home. Established in 1992 under the guidelines of the U.S. 

Fish and Wildlife Service’s (USFWS’s; Service’s) Urban Refuge Policy (341 FW 1) (Smith 1991), 

Tualatin River National Wildlife Refuge has served nearly 110,000 visitors annually since it opened 

to the public in 2006. In 2007, the Wapato Lake Unit was established, more than doubling the size of 

the original acquisition boundary. 

The Tualatin River National Wildlife Refuge, which includes the Wapato Lake and Sherwood Units 

(the Sherwood Units contain five subunits: Atfálat’i, Onion Flats, Riverboat, Rock Creek, and 

Tualatin River), is located in the northern portion of the Willamette Valley, in Washington and 

Yamhill Counties, Oregon (see Appendix P, Maps 4 and 5). The overall management focus cited in 

the Land Protection Plan (USFWS 1992a) is to “protect, enhance, and manage upland, wetland, and 

riparian habitats for a variety of migratory birds and resident fish and wildlife, as well as for the 

enjoyment of people.” The Wapato Lake Unit serves a similar purpose and supports many of the 

same types of habitats found within the Sherwood Units. Currently, the established acquisition 

boundary of the refuge totals 7,370 acres, with 2,217 acres under management. The refuge may 

purchase lands within the boundary from willing sellers. Land currently owned or managed by the 

refuge is distributed among six management units: Riverboat (348 acres); Tualatin River (221 acres); 

Atfálat’i (555 acres); Onion Flats (139 acres); Rock Creek (75 acres); and Wapato Lake (879 acres). 

The refuge’s landscape is predominately flat bottomland bordered by uplands. Habitats consist of 

rivers and streams; herbaceous and scrub-shrub wetlands; riparian forests; wet meadows; oak 

savanna; and mixed coniferous/deciduous forested uplands. 

The refuge has a rich history in community involvement, beginning with the establishment of the 

refuge itself. In the late 1980s and early 1990s, many local residents and leaders recognized that the 

Tualatin River and its floodplain had been highly modified by both agriculture and urbanization. This 

recognition fueled a desire by local communities to preserve open green space and create an area 

where future generations could enjoy outdoor recreation and interpretation, while also leaving an 

educational legacy for children. This led a small group of citizens and local leaders to approach the 

Service to request having part of the 100-year floodplain, just north of Sherwood, be set aside as a 

national wildlife refuge. At the same time, the Service identified a need to protect and enhance 

floodplains, wetlands, riparian habitats, and upland buffers for a variety of wildlife and for the 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-2 Chapter 1. Introduction and Background 

enjoyment of people—in particular in urban areas. In 1992, grassroots and governmental support 

coalesced, and the Tualatin River National Wildlife Refuge became part of the National Wildlife 

Refuge System (Refuge System). 

Photo 1-1. Entry to Tualatin River National Wildlife Refuge. USFWS. 

1.2 Importance of the Refuge 

Since the time of Euro-American settlement, habitats in the Willamette Valley have been converted 

to support a growing human population. Significant losses of habitat have occurred within the 

Portland/Vancouver metropolitan area and continue to occur (see Appendix P, Map 2). Commercial, 

agricultural, and residential encroachments into floodplains, which include wetlands, riparian forests, 

and uplands, have occurred during the past 150 years, resulting in lost habitat, increased pollution, 

increased human disturbance, and lower water quality. These habitats are important to resident, 

migrating, and wintering bird, mammal, fish, reptile, amphibian, and invertebrate species. Although 

these habitats are provided some degree of protection by Oregon’s land-use planning process, the 

wildlife values of these habitats continue to be degraded. 

Traditionally, fish and wildlife agencies have focused their efforts on management of lands and 

waters outside of urban areas where the majority of fish and wildlife resources occur. However, 

habitats of regional significance often occur in urban areas and are of great value to fish and wildlife. 

These habitats also provide important public benefits, such as open space, recreation, environmental 

education, aesthetics, flood control, and water quality enhancement. The proximity and availability 

of these public benefits are attributes for which the Portland/Vancouver metropolitan area is 

renowned. Many consider natural areas to be an essential component of the quality of life in this 

metropolitan area. 

As an urban refuge, Tualatin River National Wildlife Refuge was established under the guidance of 

the Urban Refuge Policy and “may protect habitat of great significance to the conservation of fish 

and wildlife resources, including endangered and threatened species. However, the ‘Primary 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-3 

Purpose’ for establishment of new urban refuges will be to foster environmental awareness and 

outreach programs to develop an informed, involved citizenry that will support fish and wildlife 

conservation ... these refuges will provide public use benefits associated with fish and wildlife 

resources that include, but are not limited to, bird watching, fishing, scientific research, 

environmental education, open space in a urban setting, and protection of cultural resources” (Smith 

1991). 

Situated within the floodplain of the Tualatin River Valley, the refuge provides habitat for some of 

the most diverse and abundant wildlife in the valley. The refuge also provides a variety of 

recreational and educational activities focused on fish and wildlife and their habitats. Visitor facilities 

include a Wildlife Center, an environmental education shelter, trails, overlooks, an observation deck, 

a photography blind, environmental education study sites, and exhibit panels. Current visitation is 

approximately 110,000 people per year (USFWS 2011f). 

Photo 1-2. Tualatin River National Wildlife Refuge lies on the outskirts of Portland, 

Oregon. © Bjorn Fredrickson. 

1.3 Proposed Action 

The Service manages wildlife refuges as part of the Refuge System. We propose to adopt and 

implement this Comprehensive Conservation Plan (CCP) for the refuge. A CCP sets forth 

management guidance for a refuge for a period of 15 years, as required by the National Wildlife 

Refuge System Administration Act (Administration Act), as amended by the National Wildlife 

Refuge System Improvement Act of 1997 (Improvement Act). The Improvement Act requires CCPs 

to identify and describe: 

 The purposes of the refuge; 

 The fish, wildlife, and plant populations, their habitats, and the archaeological and cultural 

values found on the refuge; 

 Significant problems that may adversely affect wildlife populations and habitats and ways to 

correct or mitigate those problems; and 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-4 Chapter 1. Introduction and Background 

 Areas suitable for administrative sites or visitor facilities, and opportunities for fish- and 

wildlife-dependent recreation. 

Refuge System planning policy (602 FW 3) states that the purpose of CCPs is to “describe the 

desired future conditions of a refuge and provide long-range guidance and management direction to 

achieve refuge purposes; help fulfill the Refuge System mission; maintain and, where appropriate, 

restore the ecological integrity of each refuge and the Refuge System; ... and meet other mandates.” 

The Service developed and examined three alternatives for management of the refuge and disclosed 

anticipated effects for each alternative, pursuant to the National Environmental Policy Act of 1969 

(NEPA), as amended. The goals, objectives, and strategies under Alternative 2 best achieve the 

purpose of the refuge and the need for the CCP, while maintaining balance among the varied 

management needs and programs. Alternative 2 represents the most balanced approach for achieving 

the refuge’s purposes, vision, and goals; contributing to the Refuge System’s mission; addressing 

relevant issues and mandates; and managing the refuge with sound principles of fish and wildlife 

management. 

The preferred alternative was modified between the draft and final documents based on comments 

received from the public or other agencies and organizations. The Service’s Regional Director for 

Region 1 made the final decision regarding which alternative will be implemented. For details on the 

specific components and actions constituting the chosen management direction, see Chapter 2. 

1.4 Purpose of and Need for Action 

The purpose of this CCP is to identify the role the refuge would play in supporting the mission of the 

Refuge System, and to provide the Service, the Refuge System, partners, and the public with longterm guidance for managing programs and activities. This will be a 15-year management plan for 

improving the refuge’s habitat conditions and infrastructure for fish, wildlife, and public use. The 

CCP is needed to: 

 Communicate with the public and other partners in efforts to carry out the mission of the 

Refuge System; 

 Provide a clear statement of direction for managing the refuge; 

 Provide neighbors, visitors, and government officials with an understanding of the Service’s 

management actions on and around the refuge; 

 Ensure that the Service’s management actions support the goals and intent of the 

Administration Act; 

 To the extent practicable, ensure refuge plans will be consistent with the fish and wildlife 

conservation plans of the state and the conservation programs within the ecosystem; 

 Provide a basis for development of budget requests for the refuge’s operation, maintenance, 

and capital improvement needs; 

 Address habitat management concerns; and 

 Address increasing visitor use needs. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-5 

1.5 Legal and Policy Guidance 

1.5.1 U.S. Fish and Wildlife Service 

The Service is the principal Federal agency responsible for fish, wildlife, and plant conservation. The 

Refuge System is one of the Service’s major programs. 

The mission of the Service is working with others, to conserve, protect and enhance fish and 

wildlife and their habitats for the continuing benefit of the American people. 

In the late nineteenth and early twentieth centuries, America’s fish and wildlife resources were 

declining at an alarming rate, largely due to unrestricted market hunting. Concerned citizens, 

scientists, and hunting and angling groups joined together and generated the political will for the first 

significant conservation measures taken by the Federal government. These actions included the 

establishment of the Bureau of Fisheries in the 1870s, the passage of the first Federal wildlife law in 

1900, the Lacey Act, which prohibited interstate transport of wildlife taken in violation of state laws, 

and the creation of wildlife refuges across the nation. 

Over the next three decades, the United States ratified the Migratory Bird Treaty with Great Britain, 

and Congress passed laws to protect migratory birds, establish more new refuges, and create a 

funding source for refuge land acquisition. In 1940, the U.S. Fish and Wildlife Service was created 

within the Department of the Interior, and existing Federal wildlife functions including law 

enforcement, fish management, animal damage control, and wildlife refuge management were 

combined into a single organization for the first time. 

Today, the Service enforces Federal wildlife laws; manages migratory bird populations; restores 

nationally significant fisheries; conserves and restores vital wildlife habitat; protects and recovers 

endangered species; helps other governments with conservation efforts; and connects people with 

nature through high quality education and recreation programs to foster a conservation constituency 

within the public. 

1.5.2 National Wildlife Refuge System 

In 1903, President Theodore Roosevelt designated the 5.5-acre Pelican Island in Florida as the 

nation’s first wildlife refuge for the protection of native nesting birds. This was the first time the 

Federal government set aside land for wildlife. This small but significant designation marked the 

beginning of the Refuge System. 

Over one hundred years later, the Refuge System has become the largest collection of lands in the 

world specifically managed for wildlife, encompassing more than 150 million acres within 560 

refuges, 38 wetland management districts, and more than 3,000 waterfowl production areas providing 

breeding and nesting habitat for migratory birds. Today there is at least one refuge in every state as 

well as in Puerto Rico and the U.S. Virgin Islands. 

The Tualatin River National Wildlife Refuge is managed as part of the Refuge System within a 

framework of legal and policy guidelines. The needs of wildlife and their habitats come first on 

refuges, in contrast to other public lands, which are managed for multiple uses. Refuges are guided 

by various Federal laws and executive orders, Service policies, and international treaties. The 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-6 Chapter 1. Introduction and Background 

mission and goals of the Refuge System and the designated purposes of the refuge as described in 

establishing legislation, executive orders, or other documents establishing, authorizing, or expanding 

a refuge are fundamental. 

1.5.2.1 National Wildlife Refuge System Mission and Goals 

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 the 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 Administration Act of 1966, as amended). 

The goals of the Refuge System, as articulated in the Mission, Goals, and Purposes Policy (601 FW 

1), are: 

 Conserve a diversity of fish, wildlife, and plants and their habitats, including species that are 

endangered or threatened with becoming endangered. 

 Develop and maintain a network of habitats for migratory birds, anadromous and interjurisdictional fish, and marine mammal populations that is strategically distributed and 

carefully managed to meet important life history needs of these species across their ranges. 

 Conserve those ecosystems, plant communities, and wetlands of national or international 

significance, and landscapes and seascapes that are unique, rare, declining, or 

underrepresented in existing protection efforts. 

 Provide and enhance opportunities to participate in compatible wildlife-dependent recreation 

(hunting, fishing, wildlife observation and photography, and environmental education and 

interpretation). 

 Foster understanding and instill appreciation of the diversity and interconnectedness of fish, 

wildlife, and plants and their habitats. 

1.5.2.2 National Wildlife Refuge System Administration Act 

Of all the laws governing activities on national wildlife refuges, the Administration Act undoubtedly 

exerts the greatest influence. The National Wildlife Refuge Improvement Act of 1997 amended the 

Administration Act by including a unifying mission for all national wildlife refuges as a system, a 

new process for determining compatible uses on refuges, and a requirement that each refuge be 

managed under a comprehensive conservation plan, developed in an open public process. In addition 

to the Improvement Act providing the mission for the Refuge System, it also stated that the wildlife 

and habitat vision for each unit of the Refuge System shall maintain the following principles. 

 Wildlife comes first. 

 Ecosystems, biodiversity, and wilderness are vital concepts in refuge and district 

management. 

 Habitats must be healthy. 

 Growth of refuges and districts must be strategic. 

 The Refuge System serves as a model for habitat management with broad participation from 

others. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-7 

The Administration Act states that the Secretary of the Interior shall provide for the conservation of 

fish, wildlife, and plants, and their habitats within the Refuge System as well as ensure that the 

biological integrity, diversity, and environmental health of the System are maintained. House Report 

105–106 accompanying the Improvement Act states “... the fundamental mission of our System is 

wildlife conservation: wildlife and wildlife conservation must come first.” Biological integrity, 

diversity, and environmental health are critical components of wildlife conservation. As later made 

clear in the Biological Integrity, Diversity, and Environmental Health Policy (601 FW 3), “the 

highest measure of biological integrity, diversity, and environmental health is viewed as those intact 

and self-sustaining habitats and wildlife populations that existed during historic conditions.” 

Under the Administration Act, each refuge must be managed to fulfill the Refuge System mission as 

well as the specific purposes for which it was established. The Administration Act requires the 

Service to monitor the status and trends of fish, wildlife, and plants in each refuge. 

Additionally, the Improvement Act identifies six priority wildlife-dependent recreational uses for the 

Refuge System. These uses are hunting, fishing, wildlife observation and photography, and 

environmental education and interpretation. Under the Improvement Act, the Service is to grant these 

six wildlife-dependent public uses special consideration in the planning, management, establishment, 

and expansion of units of the Refuge System. The overarching goal of the wildlife-dependent public 

uses program is to enhance opportunities and access to quality wildlife-dependent visitor experiences 

on refuges while managing refuges to conserve fish, wildlife, plants, and their habitats. When 

determined compatible on a refuge-specific basis, these six uses assume priority status among all 

uses of the refuge in question. The Service is to make extra efforts to facilitate priority wildlifedependent public use opportunities. 

When preparing a CCP, refuge managers must re-evaluate all general public, recreational, and 

economic uses (even those occurring to further refuge habitat management goals) proposed or 

occurring on a refuge for appropriateness and compatibility. No refuge use may be allowed or 

continued unless it is determined to be appropriate and compatible. Generally, an appropriate use is 

one that contributes to fulfilling the refuge purposes, the Refuge System mission, or goals or 

objectives described in a refuge management plan. A compatible use is one that, in the sound 

professional judgment of the refuge manager, would not materially interfere with or detract from the 

fulfillment of the mission of the Refuge System or the purposes of the refuge. Updated appropriate 

use and compatibility determinations for existing and proposed uses for Tualatin River National 

Wildlife Refuge can be found in Appendices A and B of this CCP. 

The Improvement Act also requires that, in addition to formally established guidance, the CCP must 

be developed with the participation of the public. Issues and concerns articulated by the public play a 

role in guiding alternatives considered during the development of the CCP, and together with formal 

guidance, can play a role in selection of the management direction. It is Service policy that CCPs be 

developed in an open public process, and the agency is committed to securing public input 

throughout the process. Public involvement details can be found in Appendix K of the CCP. 

1.5.3 Other Laws and Mandates 

Many other Federal laws, executive orders, Service policies, and international treaties govern Service 

and Refuge System lands. Examples include the Migratory Bird Treaty Act of 1918 (as amended), 

the Refuge Recreation Act of 1962 (as amended), the National Historic Preservation Act of 1966 (as 

amended), the Endangered Species Act of 1973 (as amended), and the Service Urban Refuge Policy 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-8 Chapter 1. Introduction and Background 

(341 FW 1) (Smith 1991). For additional information on laws and other mandates, a list and brief 

description of Federal laws of interest to the Service can be found in the Laws Digest at 

http://www.fws.gov/laws/Lawsdigest.html. 

In addition, over the last few years, the Service has developed or revised numerous policies and 

Director’s Orders to reflect the mandates and intent of the Improvement Act. Some of these key 

policies include the Biological Integrity, Diversity, and Environmental Health Policy (601 FW 3); the 

Compatibility Policy (603 FW 2); the Comprehensive Conservation Planning Policy (602 FW 3); 

Mission, Goals, and Purposes (601 FW 1); Appropriate Refuge Uses (603 FW 1); Wildlife-dependent 

Public Uses (605 FW 1); Wilderness-related Policies (610 FW 1-5); and the director’s order for 

Coordination and Cooperative Work with State Fish and Wildlife Agencies 

(http://www.fws.gov/policy/). These policies and others in draft or under development can be found 

at: http://refuges.fws.gov/policymakers/nwrpolicies.html. 

In 2011, the Service published the new vision for the National Wildlife Refuge System “Conserving 

the Future” (USFWS 2011c) which sets forth updated recommendations for conservation of wildlife 

and wildlands, for developing a conservation constituency within the public, and for emrbacing 

leadership competencies that will guide the Service into the future. 

In developing a CCP, refuges must consider these broader laws and policies as well as Refuge 

System and ecosystem goals and visions. The CCP must be consistent with these and also with the 

refuge purpose. 

1.6 Refuge Establishment and Purposes 

1.6.1 Legal Significance of the Refuge Purpose 

The purpose for which a refuge was established or acquired is of key importance in refuge planning. 

Purposes must form the foundation for management decisions. Refuge purposes are the driving force 

in the development of vision statements, goals, objectives, and strategies in a CCP and are critical to 

determining the compatibility of existing and proposed refuge uses. 

The purposes of a refuge are specified in or derived from the law, proclamation, executive order, 

agreement, public land order, donation document, or administrative memorandum establishing, 

authorizing, or expanding a refuge, refuge unit, or refuge subunit. 

Unless the establishing law, order, or other document indicates otherwise, purposes dealing with the 

conservation, management, and restoration of fish, wildlife, and plants, and the habitats on which 

they depend take precedence over other purposes in the management and administration of any 

refuge. Where a refuge has multiple purposes related to fish, wildlife, and plant conservation, the 

more specific purpose would take precedence in instances of conflict. When an additional unit is 

acquired under an authority different from the authority used to establish the original unit, the 

addition takes on the purpose(s) of the original unit, but the original unit does not take on the 

purpose(s) of the newer addition. When a conflict exists between the Refuge System mission and the 

purpose of an individual refuge, the refuge purpose may supersede the mission. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-9 

1.6.2 Purpose and History of Refuge Establishment 

The Improvement Act of 1997 defines “purposes of the refuge” and “purposes of each refuge” as the 

purpose specified in or derived from the law or any of a number of specified documents that 

establish, authorize, or expand a refuge. This includes acquisition purposes in cases where land at a 

refuge has been acquired under authority other than the establishing authority. 

The purposes of Tualatin River National Wildlife Refuge are defined as: 

 “ ... the development, advancement, management, conservation, and protection of fish and 

wildlife resources ... ” 16 U.S. Code (U.S.C.) § 742f(a)(4) (Fish and Wildlife Act of 1956). 

 “ ... the benefit of the United States Fish and Wildlife Service, in performing its activities 

and services. Such acceptance may be subject to the terms of any restrictive or affirmative 

covenant, or condition of servitude ... ” 16 U.S.C. § 742f(b)(1) (Fish and Wildlife Act of 

1956). 

 “ ... the conservation of the wetlands of the Nation in order to maintain the public benefits 

they provide and to help fulfill international obligations contained in various migratory bird 

treaties and conventions ... ” 16 U.S.C. § 3901(b) (Emergency Wetlands Resources Act of 

1986). 

Additionally, the refuge was established under the guidance of the Service’s Urban Refuge Policy 

(341 FW 1) (Smith 1991) to foster environmental awareness and outreach programs to develop an 

informed, involved citizenry that will support fish and wildlife conservation. 

1.6.3 Land Status and Ownership 

Established in 1992 under the guidelines of the Service’s Urban Refuge Policy, the Tualatin River 

National Wildlife Refuge became one of a handful of urban refuges in the country. The establishment 

of the refuge was in response to a growing concern in the community about urbanization replacing 

the rural way of life. Concerned about this urban growth, the community requested a study of the 

feasibility of creating a refuge. The need and endorsement for creating this refuge was officially 

approved on December 20, 1991, which then led to an Environmental Assessment (EA) that 

culminated in a decision to approve the refuge boundary on February 13, 1992 (USFWS 1992a). This 

EA approved acquiring and managing lands within an acquisition boundary of 3,058 acres by fee title 

purchase, conservation easements, and/or agreements. In 2004, an additional 2 acres were added, and 

more recently in 2007, the Wapato Lake Unit was established, adding an additional 4,310 acres to the 

acquisition boundary. Currently, the approved acquisition boundary incorporates 7,370 acres. 

Approximately 2,165 acres are under fee title or easement and are managed as a national wildlife 

refuge; and additional 50 acres are managed under agreement with Metro. 

Numerous land parcels have been acquired since 1992 ranging from several acres to over 300 acres. 

These properties were purchased using different funding sources and under different authorities. 

Appendix J explains in further detail the acquisition history and authorities of individual tracts. 

1.7 Relationship to Other Planning Efforts 

When developing a CCP, the Service considers the goals and objectives of existing national, 

regional, state, and ecosystem plans and/or assessments. The CCP is expected to be consistent, as 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-10 Chapter 1. Introduction and Background 

much as possible, with existing plans and assist in meeting their conservation goals and objectives. 

This section summarizes some of the key plans reviewed by members of the core team while 

developing the CCP. 

1.7.1 Regional Plans 

The Nature Conservancy’s Willamette Valley-Puget Trough-Georgia Basin Ecoregional 

Assessment: This report addresses the most important places for conserving native species and 

ecosystems in the Pacific Northwest. Using this assessment, The Nature Conservancy selected target 

species and communities that represented various habitat types. This assessment is a guide for 

providing the most conservation benefit for the lowest cost. 

1.7.1.1 Migratory Birds Plans 

Birds of Conservation Concern: Based on the efforts and assessment scores of three major bird 

conservation efforts (Partners In Flight [PIF], the U.S. Shorebird Conservation Plan, and the North 

American Waterbird Conservation Plan [NAWCP]), this report (USFWS 2002a) identifies, by 

Service region and by Bird Conservation Region (BCR), the bird species most in need of 

conservation attention. The Tualatin River National Wildlife Refuge is located within BCR Region 5, 

for which 27 species are listed; however, several of these are seabirds that do not use the refuge. 

PIF: The primary goal of the Conservation Strategy for Landbirds in the Lowlands and Valleys of 

Western Oregon and Washington (Altman 2000) is to ensure long-term maintenance of healthy 

populations of native landbirds. Specific management activities and strategies are recommended. 

North American Waterfowl Management Plan (NAWMP): This plan, first formulated in 1986, 

provides a strategy to protect North America’s remaining wetlands and to conserve waterfowl 

populations through habitat protection, restoration, and enhancement. The plan was updated in 2004 

with an emphasis on strengthening the biological foundation, using a landscape approach, and 

expanding partnerships. The 2004 update contains species-specific population objectives and 

evaluations of whether the continental population is currently above or below the target. There are 

also flyway goals for production by species, but the plan did not target population objectives for 

wintering or migratory waterfowl by area (NAWMP Committee 2004). Implementation of this plan 

is accomplished at the regional level by partnership, within 11 Joint Venture areas. Tualatin River 

National Wildlife Refuge is located within the area of the Pacific Coast Joint Venture. Many of the 

projects identified to achieve the NAWMP objectives are eligible for funding under the North 

American Wetlands Conservation Act (NAWCA). NAWCA authorizes congressional funding for 

projects fostering public/private partnerships that support the conservation and restoration of wetland 

habitats and associated wildlife resources. Given the extent of historical wetlands and ongoing 

public/private partnerships in the Willamette Valley, this Act has been (and continues to be) a 

tremendous resource for the conservation community in the region. 

Pacific Flyway Plans: Flyway management plans are the products of Flyway Councils, developed to 

help state and Federal agencies cooperatively manage migratory game birds. Several flyway 

management plans pertain to Tualatin River National Wildlife Refuge, especially those for the 

western and cackling Canada goose (Pacific Flyway Council 1999, 2000) and tundra swans (Pacific 

Flyway Council 2001). In addition, the Plan for Northwest Oregon/Southwest Washington Canada 

Goose Agricultural Depredation Control (Pacific Flyway Council 1998) details specific strategies 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-11 

and guidance by management area for reducing depredation by Canada geese within the Lower 

Columbia Region/Willamette Valley. 

United States Shorebird Conservation Plan/Northern Pacific Coast Regional Shorebird 

Management Plan: These plans (Brown et al. 2001; Drut and Buchanan 2000) identify numerous 

landscapes within the northern Pacific coast that provide important habitat for shorebirds. The 

diversity of wetland habitat types in the Willamette Valley is specifically highlighted as being of 

regional importance for several species including dunlin, Wilson’s snipe, and killdeer. 

Pacific Coast Joint Venture Willamette Valley Implementation Plan: This plan (Roth et al. 2004) 

is intended to provide a strategic framework for site-specific habitat protection and restoration 

projects within the Willamette Valley. The plan’s primary focus is on migratory birds and their 

habitats including waterfowl, shorebirds, waterbirds, and landbirds. 

1.7.2 State Plans 

There are numerous state plans available for management strategies and recommendations on habitat 

restoration and management, and on guidelines on species as well. The list below is by no means 

comprehensive and only reflects the plans the refuge most heavily relied on during the development 

of this CCP. 

Oregon Conservation Strategy (OCS): This document, authored by the Oregon Department of Fish 

and Wildlife (ODFW) (2006), is an overarching strategy for conserving fish and wildlife within the 

State of Oregon. The strategy identifies specific Conservation Opportunity Areas where high-priority 

species and habitat conservation may be most efficiently addressed. Strategy (high-priority) habitats 

identified by the OCS within the Willamette Valley include grasslands, oak woodlands, riparian 

areas, and wetlands/wet prairies. Three mammals, 10 plants, five herptiles, four invertebrates, 23 fish 

species, populations, or segments, and 14 birds are listed as strategy (high-priority) species within the 

OCS; many of these are found within the Willamette Valley. The refuge lies within The Nature 

Conservancy’s Conservation Opportunity Area #80, Tualatin River. 

Oregon Elk Management Plan: This plan (ODFW 2003) outlines elk management guidelines 

within the State of Oregon. ODFW manages elk based on population management objectives for 

winter population size and post-season bull ratios in each Wildlife Management Unit in the state. The 

current population objective size for Roosevelt elk in the Willamette Valley is zero. Tualatin River 

National Wildlife Refuge will be working cooperatively with ODFW and the Willamette Valley 

National Wildlife Refuge Complex on a step-down elk management plan for the refuge. 

State Comprehensive Outdoor Recreation Plan (SCORP): The 2008-2012 Oregon SCORP 

(Oregon Parks and Recreation Department 2008) includes a comprehensive overview of state 

recreational trends. The SCORP provides guidance, information, and recommendations for Federal, 

state, and local government as well as the private sector in making policy and planning decisions 

regarding outdoor recreation in Oregon. 

1.7.3 Additional Plans 

USFWS Recovery Plan for the Prairie Species of Western Oregon and Southwestern 

Washington: This plan (USFWS 2010b) outlines the main recovery areas, actions, and population 

objectives for five listed Willamette Valley plants and Fender’s blue butterfly. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-12 Chapter 1. Introduction and Background 

Oregon Chub Recovery Plan: This plan (USFWS 1998) outlines the main recovery areas, actions, 

and population objectives for Oregon chub. 

Oregon Partners for Fish and Wildlife Program, Statewide Strategic Plan 2007-2011: This plan 

(USFWS 2007a) identifies the ecological importance of habitats that occur within the Willamette 

Valley Focus Area. Continued emphasis will be placed on conservation of rare and unique habitats 

that support declining species on private lands within the Willamette Valley through collaborative 

partnerships with private landowners, non-governmental organizations, and other agencies. 

1.8 Special Designation Lands 

1.8.1 Important Bird Areas 

The Important Bird Areas (IBA) program is a global effort to identify the most important areas for 

maintaining bird populations and focusing conservation efforts on protecting these sites. Within the 

United States, the program has been promoted and maintained by the American Bird Conservancy 

(ABC) and the National Audubon Society (NAS). The ABC is coordinating the identification of 

nationally significant IBAs while NAS is working to identify sites in individual states. The NAS is 

working within each state to identify a network of sites across the United States that provide critical 

habitat for birds. This effort recognizes that habitat loss and fragmentation are the most serious 

threats to birds across North America and around the world. By working through partnerships, 

principally the North American Bird Conservation Initiative, to identify places that are critical to 

birds during some part of their life cycle (breeding, wintering, feeding, migrating), the hope is to 

minimize the effects that habitat loss and degradation have on bird populations. The IBA program 

has become a key component of many bird conservation efforts. Tualatin River National Wildlife 

Refuge is in the bird conservation area known as the Northern Pacific Rainforest region. The refuge 

was designated as an Important Bird Area due to high population numbers of wintering geese and 

northern pintails, in addition to shorebirds. More information is available at 

http://web4.audubon.org/bird/iba/index.html. 

1.9 Planning Process and Issue Identification 

1.9.1 Planning Process 

The Service prepared this CCP in compliance with the Administration Act. The actions described 

within meet the requirements of the Council on Environmental Quality regulations for implementing 

NEPA. Figure 1-1 demonstrates the complete CCP planning process from conception to final 

document. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-13 

Figure 1-1. Overview of CCP planning process. 

The Service began the pre-planning process in 2009 (Table 1-1) with the formation of the core 

planning team, which consists of refuge staff and a regional planner. The extended planning team 

included other Service employees, fisheries biologists, refuge law enforcement officers, and other 

Federal, regional, and state employees. Early in the planning process, both teams cooperatively 

identified priority species, groups, and communities for the refuge, and most of the biological 

emphasis of the CCP is focused on maintaining and restoring these targets. Public use planning 

centered on developing goals, objectives, and strategies around the “big six” wildlife dependent 

public uses and the role of an urban wildlife refuge. Big six uses include hunting, fishing, wildlife 

photography and observation, and environmental education and interpretation. Other non-wildlifedependent uses that currently occur were also addressed. 

Table 1-1. Summary of CCP Planning Process for Tualatin River National Wildlife Refuge 

Date Event Outcome 

December 15, 2009 Kick-off meeting and formation 

of core team 

Planning team learned about the 

CCP process and discussed initial 

team list, mailing list, roles of team 

members, and planning schedule. 

January 12-14, 2010 Wildlife and habitat review Panel of wildlife and habitat 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-14 Chapter 1. Introduction and Background 

Table 1-1. Summary of CCP Planning Process for Tualatin River National Wildlife Refuge 

Date Event Outcome 

experts from Federal, state, and 

regional agencies and other 

partners gathered to discuss and 

propose options for managing the 

refuge’s wildlife and habitat 

resources. 

October 14, 2010 Visitor services review Panel of visitor services experts 

from Federal, state, and regional 

agencies met to discuss public use 

opportunities, issues, and concerns. 

November 3, 2010 Notice of Intent publication Notice of Intent to prepare CCP 

was published in the Federal 

Register. 

November 2010 Planning Update #1 mailing First update was sent to mailing list 

recipients; it described planning 

process and preliminary issues to 

be considered. 

November 16, 2010 Interagency scoping meeting Multiple agencies gathered to 

discuss issues, opportunities, and 

concerns. 

November 30 and December 2, 

2010 

Public scoping meeting, 

Sherwood and Forest Grove, 

Oregon 

Public attendees learned about 

CCP process and discussed issues 

and ideas for future management. 

April 2011 Planning Update #2 mailing Update discussed comments 

received from the public and 

summarized draft refuge goals. 

May 2011-October 2012 Alternatives development and 

evaluation; objective and strategy 

development 

Environmental consequences 

review 

Map and figure review 

Internal draft plan preparation 

Planning team developed 

alternatives, objectives, and 

strategies for refuge goals. 

Team reviewed consequences of 

proposed alternatives. 

Team discussed relevant maps and 

figures needed. 

Planning team prepared draft CCP 

and EA, including maps. 

Document was prepared for editor 

to ready for internal review. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-15 

Table 1-1. Summary of CCP Planning Process for Tualatin River National Wildlife Refuge 

Date Event Outcome 

November 2011 Planning Update #3 mailing Update #3 summarized the 

preliminary alternatives. 

October 2012 Draft CCP distributed with 

Planning Update #4 

Comment period opened for 30 

days. 

April 2013 Finding of No Significant Impact 

approved 

CCP final. 

During the pre-planning phase, refuge staff identified and evaluated the issues and concerns raised 

during public scoping. These issues are defined as matters of controversy, dispute, or general 

concern, or interest in resource management activities, the environment, land uses, or public use 

activities. Issues are important to the planning process because they identify topics to be addressed in 

the CCP, pinpoint the types of information to gather, and help define alternatives for the CCP. It is 

the Service’s responsibility to focus planning and analysis on major issues. Major issues typically 

suggest different actions or alternative solutions, are within the refuge’s jurisdiction, and have a 

positive or negative effect on the resource. Major issues influenced the decisions outlined in the CCP. 

Issues and goals that assisted in developing the management direction for the CCP are listed below. 

1.9.2 Key Issues Addressed in the Comprehensive Conservation Plan 

1.9.2.1 Restoration of Native Habitats and Natural Water Regimes 

One of the primary goals of the Tualatin River National Wildlife Refuge is to protect, manage, and 

restore native habitats of the Tualatin River Basin and ensure that the refuge’s efforts contribute to 

the much larger landscape outside of the refuge’s boundary. Native habitat restoration requires 

understanding basic resources that ecosystems are dependent on to make sound scientific decisions. 

Local-scale knowledge of soils, hydrology, and topography are important attributes to consider when 

planning to restore a given habitat type. Additionally, it is just as important to determine what the 

land supported historically and identify changes from the historical condition that would help guide 

restoration options for a given area. Refuge management must be able to answer the most basic 

questions of “why” and “where” to support decisions. One of the key components in making 

restoration decisions is looking at the larger landscape both within and outside refuge boundaries. 

Habitats within the Tualatin River Basin are often fragmented into small, disconnected areas. Of 

primary concern is to provide larger contiguous blocks of a given habitat type, and maintain wildlife 

corridors to increase connectivity among habitat patches. 

The Tualatin River is the “lifeblood” of the refuge, as a majority of refuge lands lie within its 

floodplain. Agricultural practices, development of dams, and urbanization have drastically altered 

hydrological patterns of the Tualatin River floodplain. Knowledge of current river functions is 

critical to support floodplain habitat restoration and support decisions to convert areas of the refuge 

to a more natural hydrologic-driven process. 

One outcome of the CCP planning process was the development of computer modeling to help 

identify and map important floodplain habitat restoration opportunities using current land attributes 

and historical vegetation. The model will also help determine the historical, current, and future extent 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-16 Chapter 1. Introduction and Background 

of frequency and duration of Tualatin River flooding in order to identify floodplain restoration 

opportunities and show how current river hydrology could be integrated into habitat management. 

1.9.2.2 Species Posing Management Challenges 

The refuge is known for its natural features and diverse and abundant wildlife. However, as a refuge 

in an urban/rural interface, the space for wildlife is limited and the potential for conflicting use, use 

that disturbs wildlife both within and outside refuge boundaries, poses wildlife management 

challenges. 

To date there have been no mosquito-borne human health disease issues documented near the refuge, 

but public concern for potential disease transmission from wildlife to humans have increased as 

human populations have grown around the refuge. The CCP will explore the refuge’s role and 

appropriate responses to these concerns in cooperation with local agencies. 

Invasive species are a major issue on public lands throughout the United States, and national wildlife 

refuges are no exception. Some invasive species are so well established that eradicating them 

completely using existing technology is impossible. The CCP, Chapter 4, will examine what the most 

appropriate strategies are for controlling invasive species in a variety of habitat types. Non-native 

invasive plant species include reed canarygrass, Himalayan blackberry, Bermuda grass, and common 

cocklebur. Efforts to control these and other species are ongoing. 

Non-native animal populations that occur on refuge lands include nutria, bullfrogs, carp and other 

non-native fish species, and feral cats. These species degrade habitat and affect native wildlife 

populations directly or by displacement. 

Some native species also pose management challenges. For example, beavers cause damage to water 

control structures and native vegetation; Canada geese numbers have increased significantly in the 

Willamette Valley and impact surrounding agricultural lands; ODFW has designated the Willamette 

Valley Management Unit as an elk de-emphasis area to minimize damage to agricultural crops—

populations of elk reside less than a mile from the Wapato Lake Unit. The CCP will evaluate all 

wildlife management options and control strategies for these species to protect refuge resources. 

1.9.2.3 Management of Special-status Species 

The refuge has great potential to play a role in the protection and recovery of listed species, species 

of concern, and rare species occupying a variety of habitat types within the Willamette Valley. The 

CCP will explore management and landscape-level restoration actions that could include restoring 

riparian habitats to a more natural barrier-free system, providing wintering habitat for listed 

salmonids and other native fish. The conservation and restoration of rare and declining habitats such 

as wet prairie, oak savanna, and other habitat types would assist in the recovery of special-status 

species and possibly prevent future listings. 

1.9.2.4 Refuge Public Access 

Getting to and from the refuge as well as accessing areas within the refuge are important 

considerations for the CCP. Many transportation systems that bring visitors to the refuge either 

already exist, are planned, or have the potential to be implemented in the future. The CCP will 

explore whether the existing facilities within the refuge are sufficient to provide access to the range 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-17 

of high-quality wildlife-dependent recreation opportunities, including those existing and those that 

may be implemented as an outcome of the CCP. Access must be considered through the lens of 

appropriateness and compatibility, evaluating disturbance/impacts to wildlife and their habitats, other 

compatible public uses, and refuge management programs. 

1.9.2.5 Hunting and Fishing 

Hunting and fishing are traditional recreational uses of renewable natural resources. The 

Administration Act, other laws, and the Service’s policies permit hunting and fishing on a national 

wildlife refuge when it is compatible with the purposes for which the refuge was established and 

acquired. 

National wildlife refuges exist primarily to safeguard wildlife populations through habitat 

preservation. The word “refuge” encompasses the idea of providing a haven of safety for wildlife, 

and as such, hunting might seem to be an inconsistent use of the Refuge System. However, habitats 

that normally support healthy wildlife populations produce populations that can sustain minor 

individual loss without impacting the population as a whole; therefore, the resource is renewable. 

As practiced on refuges, hunting and fishing do not pose a threat to wildlife populations, and in some 

instances, are actually necessary for sound wildlife management. For example, on some wildlife 

refuges, deer populations will often grow too large for the refuge habitat to support. If some deer are 

not harvested, they destroy habitat for themselves and other animals and die from starvation or 

disease. The harvesting of wildlife on refuges is carefully regulated to ensure an equilibrium between 

population levels and wildlife habitat. The decision to permit hunting and fishing on national wildlife 

refuges is made on a case-by-case basis that considers biological soundness, economic feasibility, 

effects on other refuge programs, and public demand (USFWS 2011d). 

Hunting and fishing are currently not offered at the Tualatin River National Wildlife Refuge. Hunting 

opportunities in the Portland metropolitan area are very limited, but there is potential to provide highquality hunting and fishing opportunities on the refuge, in particular hunting at the Wapato Lake Unit 

and fishing at the Sherwood Units. Public scoping in 2010 revealed interest in offering hunting, 

including programs that offer youth hunts, and some interest in fishing. The CCP will examine what 

types of hunting and fishing could be offered, based on appropriateness, compatibility, sustainability, 

and feasibility. 

1.9.2.6 Entrance and User Fees 

Charging entrance fees (to visit the refuge) and user fees (to participate in a specific program or use 

specific facilities) are options to financially support visitor service operations, including facility 

maintenance and salaries for park rangers, fee collectors, or hunter check station operators. Several 

aspects of a potential fee program will be evaluated during the CCP. The cost of managing a fee 

program will be weighed against the revenue that is likely to be generated. The refuge will consider 

whether the income generated by a fee program would be worth the potential loss of visitors who 

would not come to the refuge if a fee were required. 

1.9.2.7 Wapato Lake Management 

In 1952, the Wapato Improvement District (WID) was established to coordinate the various water 

needs for agricultural operations and maintenance of Wapato Lake. The WID operated and 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-18 Chapter 1. Introduction and Background 

maintained two pumps, 5+ miles of levees, weirs, canals, bridges, and culverts associated with water 

management of the lake. The district consisted of all the landowners of the lake who paid 

assessments to WID to perform the necessary maintenance and operations to dewater the lake and 

deliver summer water to the lakebed landowners. 

When the refuge first acquired lands within the Wapato Improvement District, it became a member 

of the WID and paid an assessment along with the other landowners to maintain the infrastructure. 

When the refuge became the majority landowner of the lakebed, the WID voted to no longer function 

as a district and in spring of 2012, the WID donated its assets to the Service. In the interim, until 

more detailed habitat management can be completed, the refuge will continue to dewater the lakebed 

to utilize cooperative farming to help manage invasive species and provide additional forage for 

waterfowl. Since it is inconsistent with refuge purposes and Service policies the refuge cannot take 

on the responsibilities of WID that relate to the irrigation responsibilities of the Tualatin Valley 

Irrigation District. 

1.9.3 Issues Outside the Scope of the Comprehensive Conservation Plan 

While CCPs are very comprehensive plans, no single plan can cover all issues. The planning team 

has compiled a list of issues that are currently considered to be outside the scope of this CCP. 

Operations associated with raising of Scoggins Dam and raw water pipeline: At the Wapato 

Lake Unit, additional potential impacts to riverine and floodplain habitats and wildlife resources exist 

that are associated with a proposed raising of Scoggins Dam and the raw water pipeline project. 

Refuge and other Service staff will continue to be a part of this planning process. 

Alignment of proposed I-5 and 99-W connection corridor: A new road development and 

associated right-of-way construction project has the potential to impact future acquisition needs and 

threaten refuge resources at several refuge unit locations. Alternative routes have been proposed that 

cross fee title refuge lands or are in close proximity to refuge parcels. Refuge staff will continue to 

monitor and comment on this planning process. 

Washington County urban reserve planning process: As an urban refuge, the Tualatin River 

National Wildlife Refuge faces external threats that reflect the urbanization of the surrounding 

landscape. The City of Sherwood has been identified as one of the fastest growing cities in Oregon, 

with residential and commercial development continuing to expand at a high rate. Metro, the elected 

regional government for the Portland metropolitan area, has expanded the urban growth boundary 

since refuge establishment to accommodate growth of municipalities. Much of the habitat adjacent to 

the floodplain is now targeted for construction and development. 

Hazardous material and contaminant issues: Land use surrounding the refuge includes a variety of 

operations that may adversely impact refuge resources, primarily through contamination of soils and 

waterways and urban-related runoff upstream and adjacent to the refuge. Examples of past and 

current operations include auto recycling facilities; landfills; abandoned and current industrial sites; 

quarries; and others. The Service will continue to engage and provide input on these types of 

concerns on a case-by-case basis, as appropriate and as authorized. 

Willamette Valley Conservation Study Area: The Service has initiated a collaborative study of 

conservation opportunities within the Willamette Valley. The Willamette Valley Conservation Study 

Area is part of the America’s Great Outdoors Initiative to develop twenty-first century conservation 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-19 

and recreation solutions. The initiative takes as its premise that lasting conservation solutions should 

rise from the American people. This landscape-level study will be accomplished with our partners 

and other stakeholders to focus on several key points (USFWS 2011a): 

 Conserving rare and declining habitats; 

 Assisting in recovering endangered, threatened, and candidate species; 

 Connecting people to nature through outdoor recreation and education opportunities; 

 Enhancing habitat connectivity and wildlife corridors; 

 Conserving rural working farms, ranches, and forest with wildlife habitat values through 

partnerships and incentives; and 

 Assisting in achieving Pacific Flyway Canada goose and other migratory bird objectives. 

1.10 Refuge Vision and Goals 

1.10.1 Expanded Vision Statement: An Image of the Future 

Tualatin River National Wildlife Refuge is a natural treasure where an abundance of native 

wildlife thrive in a mosaic of wetland, prairie, forest, and stream habitats characteristic of the 

Willamette Valley that the Atfálat’i people knew. It’s a special place, an icon where the 

stories of the refuge reflect the importance of the National Wildlife Refuge System. The 

refuge has a rich history of community vision where friends and neighbors helped create, and 

continue to care for, this urban refuge and the watershed that supports it. It is a model that 

combines excellence in landscape conservation, learning, and partnerships to strive for a 

healthy natural world. 

The refuge is a sanctuary for both wildlife and people, a place where the ebb and flow of the 

river marks the natural rhythms of the refuge through the seasons. 

Spring is a time when the melody of songbirds echoes through the canopy of the riparian 

forest and prairies are washed in the vibrant colors of wildflowers in bloom. Nature is alive 

with the sights and sounds of animals as they fulfill their ancient ritual of courting and raising 

their young. Wetlands give way to mudflats as migrating shorebirds probe the mud for the 

insects and worms that will nourish them on their northward journey. The curiosity of school 

children is nurtured as they discover nature’s surprises like a bird’s nest, a vole tunnel, a 

duckling, a soaring hawk, or the slither of a snake. 

The heat of summer dominates as wetlands dry and native plants continue to grow, setting the 

dinner table for the waterfowl that will arrive in fall. Turtles bask on logs, songbirds are 

fledging their young, the chorus of frogs resonates at sundown, and bats dart through the 

night sky eating insects on the fly. Volunteers and refuge staff are busy with the chores of 

caring for the refuge, while families explore the sunny expanse of tall meadow grasses and 

seek shelter in the cool shade of the green forest. 

As fall approaches, the colors of the forest change to golden hues and the air fills with the 

sound of migrating geese and swans. Seasonal rains begin as the arriving waterfowl seek 

shelter and food in the wetlands that are beginning to flood. Deer and squirrels prepare for 

winter as they search for acorns under majestic oaks. Teachers gather at the refuge to learn 

how to share the sense of wonder that nature has to offer to their students. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

1-20 Chapter 1. Introduction and Background 

Winter brings the awe of thousands of waterfowl, swirling overhead as they seek sanctuary. 

Rains pour down as ducks, geese, and swans forage in the wetlands, abundant with the seeds 

and roots that will nourish them through the cold season. People gather and marvel as bald 

eagles perch high atop leafless trees and patrol wetlands searching for a waterfowl meal. Fish 

migrate through rising rivers and streams, and seek shelter in the quieter waters of backwater 

sloughs. Late in the winter, the open water of the wetlands reflects the misty sunsets as 

waterfowl depart to their arctic breeding grounds. 

Winter rains wane as the cycle begins anew in a place where rich traditions, outdoor learning 

experiences, and discovery foster a love of and caring for nature that endures for generations 

to come. 

1.10.2 Condensed Vision: Summarizing the Core Values of the Refuge 

Tualatin River National Wildlife Refuge is a natural treasure where an abundance of native 

wildlife thrive in a mosaic of wetland, prairie, forest, and stream habitats characteristic of the 

Willamette Valley that the Atfálat’i people knew. The refuge is a sanctuary for both wildlife 

and people, a place where the ebb and flow of the river marks the natural rhythms of the 

refuge through the seasons. It’s a special place, an icon where the stories of the refuge reflect 

the importance of the National Wildlife Refuge System. The refuge has a rich history of 

community vision where friends and neighbors helped create, and continue to care for, this 

urban refuge and the watershed that supports it. It’s a model that combines excellence in 

landscape conservation, learning, and partnerships to strive for a healthy natural world. 

Tualatin River National Wildlife Refuge is a place where wildlife, rich traditions, outdoor 

learning experiences, and discovery foster a love of and caring for nature that endures for 

generations to come. 

1.10.3 Refuge Goals 

Refuge management goals are descriptive, open-ended, and often broad statements of desired future 

conditions that convey a purpose, but do not define measurable units. Goals must support the refuge 

vision and describe the desired end result. 

The CCP planning team has drafted a series of goals, objectives, and strategies to meet these goals 

and to address the concerns identified during scoping. Included below are the goals. 

 Maintain, enhance, and restore bottomland riparian habitats consistent with the historical 

range of variability representative of the Willamette Valley ecosystem to support breeding 

and migratory landbirds and other native species. 

 Maintain, enhance, and restore mixed coniferous/deciduous forest habitat to a historical range 

of variability representative of the Willamette Valley ecosystem to support breeding and 

migratory landbirds and other native species. 

 Maintain, enhance, and restore oak savanna habitat to a historical range of variability 

representative of the Willamette Valley ecosystem to support breeding and migratory 

landbirds and other native species. 

 Maintain, enhance, and restore native Willamette Valley wet prairie habitat, with an 

emphasis on management for rare and listed species. 
Tualatin River National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 1. Introduction and Background 1-21 

 Maintain, enhance, and restore a diversity of wetlands to support migratory landbirds, 

waterbirds, and shorebirds with special emphasis on wintering waterfowl. 

 Maintain, enhance, and, where feasible, restore streams and off-channel backwater slough 

habitats to benefit salmonids and other native aquatic species. 

 Cultivate and maintain croplands as an interim measure to control non-native invasive 

species. 

 Collect scientific information (surveys, scientific assessments, and research) as necessary to 

support adaptive management decisions that are associated with the goals of the refuge. 

 Protect and manage the refuge’s unique cultural resources for their cultural, scientific, and 

educational values, while consulting with appropriate Native American groups and 

preservation organizations and complying with historic preservation legislation. 

 Provide visitors, local residents, volunteers, and partners with opportunities to understand and 

appreciate fish and wildlife conservation as well as the purpose, ecology, and management of 

the refuge and the Refuge System. 

 Provide students and educators from the greater Portland area with compatible and highquality opportunities to participate in environmental education. 

 Provide refuge visitors with diverse, compatible, and high-quality opportunities to participate 

in wildlife-dependent recreation and interpretation. 

 Build a broad-based natural resource conservation constituency with a focus on urban 

audiences to create a conservation ethic within urban communities; increase relevance of 

habitat conservation, wildlife heritage, and the Refuge System in the eyes of urban citizens; 

and instill a sense of empowerment for urban communities to work together to actively 

support conservation, in both local and global settings.