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| **Ohio River Islands National        Wildlife Refuge** |
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| **Table of Contents**

**1. Introduction and Background**
- History of Refuge Establishment,                Acquisition and Management
- Purpose of and Need for Action
- Refuge Purpose
- Refuge Vision Statement
- Legal and Policy Guidance
- U.S. Fish and Wildlife Service and                its Mission
- The National Wildlife Refuge                System and its Mission
- Fulfilling the Promise
- North American Waterfowl                Management Plan
- Partners In Flight
- Regional Wetlands Concept Plan
- Ohio River Valley Ecosystem                Strategic Plan

**2.        Planning Process**
- Planning Issues

**3.        Refuge and Resource Description**
- Physical Environment
- Water Quality
- Topography/Soils
- Geology/Hydrology
- Air Quality
- Biological Environment
- Terrestrial Habitats
- Wetland Habitats
- Aquatic Habitats
- Fish and Wildlife
- Rare, Threatened, and Endangered                Species
- Socioeconomic Environment
- History/Archaeology
- Land Use
- Recreational Use

**4.        Management Direction**
- Refuge Management Direction:                Goals and Objectives
Goal 1 (Habitat)Goal 2 (Biological                    Monitoring)Goal 3 (Priority Public                    Uses)Goal 4 (Raise Public                    Awareness)Goal 5 (Staff and                    Facilities)- Alternatives Considered, but                eliminated from detailed study
- Summary of Management Actions and                Strategies (Figure 4)
- Summary of Potential Impacts (Figure                5)

**5.        Implementation and Monitoring**
- Background
- Step-Down Management Plans
- Proposed Staffing Chart (Figure 6)
- Compatibility Determinations
- Plan Performance
- Partnership Opportunities
- Monitoring and Evaluation

**Appendices**
- Appendix A: Maps
- Appendix B:                Archeological Report of the Ohio River Valley
- Appendix C: References and                Literature Cited
- Appendix D: Species List
- Appendix E: Intra-Service Section                7 Coordination
- Appendix F: Federal Laws and                Mandates
- Appendix G: RONS and MMS Project                Lists
- Appendix H: Glossary ofTerms
- Appendix I: Responses to Comments andFONSI 
- Appendix J: Index

Contact the planning teamor        comment on this document

Return to Planning,Region5 | **Comprehensive Conservation Plan**
**INTRODUCTION AND BACKGROUND**

This Comprehensive Conservation Plan (CCP)        has been prepared for Ohio River Islands National        Wildlife Refuge (Refuge). The CCP is a management tool to        be used by the Refuge staff. It will help guide        management decisions over the next 15 years, and set        forth strategies for achieving Refuge goals and        objectives within that timeframe. Overriding        considerations reflected in the plan are that fish and        wildlife conservation requires first priority in refuge        management, and that wildlife-dependent recreation is        allowed and encouraged as long as it is compatible with,        or does not detract from, the mission of the National        Wildlife Refuge System or purposes of the Refuge. This        chapter discusses the following topics: a brief        description of the Ohio River Islands National Wildlife        Refuge and how it came into existence; the purpose of and        need for the plan; the purpose and vision of the Refuge;        the National Wildlife Refuge System mission, goals and        guiding principles, including the legal context which        guides management; and other relevant plans and        partnerships that affect Refuge management.

This plan details program planning        levels that are above current budget allocations and, as        such, are primarily for Service strategic planning and        program prioritization purposes. This plan does not        constitute a secure commitment for staffing increases, or        funding for future refuge-specific land acquisitions,        construction projects or operational and maintenance        increases.

**Refuge        Overview: History of Refuge Establishment, Acquisition,        and Management**

The Ohio River Islands National        Wildlife Refuge was established in 1990 under authority        of the Fish and Wildlife Act of 1956, and was the first        Refuge in West Virginia. The Refuge (see Figure 1)        currently consists of all or part of 21 islands and three        mainland tracts in the Ohio River, encompassing 3,221        acres (Figure 2) of valuable fish and wildlife habitat        within one of the nation's busiest waterways. As        acquisition progresses, the Refuge may include up to 35        river islands. The acquisition focus area stretches        nearly 400 river miles from Shippingport, Pennsylvania,        to Maysville, Kentucky and includes four states (Pennsylvania,        Ohio, West Virginia, and Kentucky).

In addition to the islands, one hundred        embayments and wetlands adjacent to the mainland are        within the approved boundary for the Refuge. These areas        provide excellent fish and wildlife habitat and would be        a valuable addition to the Refuge. Thus, the Refuge could        potentially add over 8,000 acres of islands, wetlands,        back channels and underwater habitat. The plans for        additional land protection will be addressed in a future        Land Protection Plan (LPP).

There are a total of 40 islands        remaining in the Upper Ohio River. Twenty-one are part of        the Refuge at the present time. These island habitats        contain near natural assemblages of plants and animals        that are endemic to the river. The distribution of        bottomland and riparian habitats, and deep and shallow        water aquatic habitats, make these areas extremely        beneficial to fish and wildlife species. A huge diversity        of species (waterfowl, shore and wading birds,        neotropical migratory land birds, furbearers, fish and        benthic organisms, including freshwater mussels) find        these areas invaluable for resting, feeding, nesting,        spawning, and other necessary life functions. The deep        and shallow water habitats associated with the islands        are major fish and mussel production areas of the Ohio        River. The often undisturbed island shorelines,        especially the heads and backchannels, are favored sport        fishing areas.

Over 200 bird species (76 of which        breed there), 42 mollusk species, 15 species of reptiles        and amphibians, 101 species of fish, 25 mammals, and 500        species of plants have been identified so far within the        Refuge.

The shallow waters of the river provide        quality habitat for freshwater mussels, including at        least two federally endangered species, the pink mucket        and fanshell. Bald eagles, peregrine falcons and Indiana        bats also use the Refuge habitats. In addition, many        species of plants and animals considered endangered,        rare, or of special interest in the four states occur on        the Refuge.

The Ohio River is rich in history, and        many areas of historical and cultural significance are        located on or adjacent to the islands. Some notable        examples include early explorers' accounts of Native        Americans and their culture, George Washington's survey        expeditions, the use of the river as a major        transportation route by early settlers and pioneers        heading west, battles fought during the Civil War, and        finally, use for navigation and industry.

 
**Parcel Name****Land****Underwater****Total***Phillis Island**39**--**39**Georgetown Island**16.2**--**16.2**Wheeling Island**17.8**~30**47.8**Paden Island**80.8**46.9**127.7**Williamson Island,**125.6**128**261.7**and Witten Towhead                Island**8.1*  *Crab Island**0.6**7.2**7.8**Wells Island**43**81.4**124.4**Mill Creek Island**19**58.8**77.8**Grandview Island**8**85.7**93.7**Grape/Bat Island**44.5**70**114.5**Middle Island**235**91**326**Broadback Island**51**78.6**129.6**Buckley Mainland**49**--**49**Buckley Island**160**75.7**235.7**Muskingum Island**93**167.3**260.3**Neal Island**104**121.6**225.6**Buffington Island**162**85.9**247.9**Letart Island**28.6**142.9**171.5**Manchester #1 Island,**20.4**315.3**429.3**and Manchester #2                Island**93.6*  *Buffalo Creek**19**--**19**Captina Island**17**61.4**78.4**Captina Mainland**138**--**138***SUBTOTAL OF**
**REFUGE                OWNED PROPERTIES**
                1,573.2                1,647.7                3,220.9
** Non-Refuge        islands are presented in Figure 3 (page 35).*

Public uses of all types have occurred        on and around the Ohio River Islands in recent years. The        relatively undisturbed nature of many of the islands have        made them popular areas for nature study, hunting,        fishing, camping, picnicking, and pleasure boating. As        islands are acquired for the Refuge, only those uses        determined to be compatible with Refuge purposes will be        allowed to continue.

Refuge management in the past has        concentrated on preserving, restoring, and enhancing the        diversity and abundance of fish and wildlife populations        characteristic of the floodplain forests and wetlands of        the Ohio River.

**Purpose        of and Need for Action**

The purpose of the plan is to provide        overall guidance for the protection and use of the Refuge        during the next fifteen years. Under the provisions of        the National Wildlife Refuge System Improvement Act of        1997, the U.S. Fish and Wildlife Service (Service) is        required to develop comprehensive conservation plans for        all lands and waters of the Refuge System. The National        Environmental Policy Act (NEPA) also ensured that the        Service assessed the environmental impacts of any actions        taken as a result of implementing the CCP.

This plan is also needed to:
- provide a clear statement of the                desired future conditions for habitat, wildlife,                facilities and people;
- provide Refuge neighbors and                visitors with a clear understanding of the                reasons for management actions on and around the                Refuge;
- ensure that management of the                Refuge reflects the policies and goals of the                National Wildlife Refuge System;
- ensure the compatibility of                current and future uses of the Refuge;
- provide long-term continuity in                Refuge management; and
- provide a basis for Refuge                operation, maintenance, and developmental budget                requests.

**Refuge        Purpose**

The Fish and Wildlife Act of 1956        outlines the Refuge's primary purpose*"...for        the development, advancement, management, conservation,        and protection of fish and wildlife resources..."        "...for the benefit of the United States Fish and        Wildlife Service, in performing its activities and        services."*

**Refuge        Vision Statement**

*The Ohio River Islands National            Wildlife Refuge will create a linked network of over            12,000 acres of floodplain forests, wetlands, and            aquatic habitat stretching over 400 miles from            Pittsburgh to Cincinnati. These refuge lands and            waters will fulfill the needs of fish, wildlife and            plants that are native to "big river"            ecosystems. Through reforestation, exotic species            control, and wetland restoration, the Refuge will            serve as an anchor for biodiversity and a model for            habitat restoration throughout the Ohio River Valley            ecosystem. We will forge habitat and management links            with other units of the National Wildlife Refuge            System.*

*The Ohio River Islands National            Wildlife Refuge is committed to the preservation,            conservation and enhancement of a quality river            environment for the people of the Ohio River Valley.            In this pursuit, we will work with partners to            provide a wide range of environmental education            programs and promote high quality wildlife-dependent            recreational opportunities, to build a refuge support            base and attract new visitors. Just as the Ohio River            is an important corridor for transporting people and            goods, it is also an important natural corridor for            migratory birds, fish, and endangered freshwater            mussels. Encouraging an understanding and            appreciation for the "wild" Ohio will be a            focus of the Ohio River Islands National Wildlife            Refuge for generations to come.*

**Legal        and Policy Guidance**

This section presents hierarchically,        from the national level to the local level, highlights of        U.S. Fish and Wildlife Service policy, legal mandates,        and existing resource plans which directly influenced        development of the CCP. 

*The U.S. Fish and Wildlife Service        and its Mission*

National Wildlife Refuges are managed        by the U.S. Fish and Wildlife Service, part of the        Department of Interior. The mission of the U.S. Fish and        Wildlife Service is:

*"...working with others,            to conserve, protect and enhance fish and wildlife            and their habitats for the continuing benefit of the            American people."*

The Service has specific trustee        responsibilities for migratory birds, threatened and        endangered species, anadromous fish, and certain marine        mammals, as well as for lands and waters administered by        the Service for the management and protection of these        resources. 

*The National Wildlife Refuge System        and its Mission*

The Service's National Wildlife Refuge        System is the world's largest collection of lands and        waters set aside specifically for the conservation of        wildlife and ecosystem protection. Over 530 National        Wildlife Refuges covering over 92 million acres are part        of the national network today. With over 77 million acres        in Alaska and the remaining 15 million acres spread        across the other 49 states and several island        territories, over 34 million visitors annually hunt,        fish, observe and photograph wildlife, or participate in        environmental education and interpretive activities on        Refuges. 

In 1997 the National Wildlife Refuge        System Improvement Act (Refuge Improvement Act) was        passed. This legislation established a unifying mission        for the Refuge System, a new process for determining        compatible public use activities on Refuges, and the        requirement to prepare CCPs for each Refuge. The Refuge        Improvement Act states that first and foremost, the        Refuge System must focus on wildlife conservation. It        further states that the national mission, coupled with        the purpose(s) for which each Refuge was established,        will provide the principal management direction for each        Refuge. 

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."* (National Wildlife Refuge            System Improvement Act of 1997, Public Law 105-57)

With regards to public use, the Refuge        Improvement Act declared that all existing or proposed        public uses must be "compatible" with each        Refuge's purpose. Six wildlife-dependent public uses were        highlighted in the legislation as priorities to evaluate        in CCPs. The six uses are: hunting, fishing, wildlife        observation and photography, and environmental education        and interpretation.

*Fulfilling the Promise*

This 1999 report resulted from the        first-ever System Conference held in Keystone, Colorado        in October 1998, and attended by every Refuge manager in        the country, other Service employees, and leading        conservation organizations. The report contains 42        recommendations packaged with three Vision statements        dealing with *Wildlife and Habitat*, *People*,        and *Leadership*. The recommendations in the*Fulfilling the Promises* report helped guide the        development of goals and objectives in this draft plan.

Administration of National Wildlife        Refuges is governed by various international treaties,        federal laws, and regulations affecting land and water as        well as the conservation and management of fish and        wildlife resources. Policies for management options of        the Refuge are further refined by the Secretary of the        Interior and policy guidelines established by the        Director of the U.S. Fish and Wildlife Service. As noted        previously, the Fish and Wildlife Act of 1956 outlines        the Ohio River Islands National Wildlife Refuge's primary        purpose.

Key legislation affecting Refuge        management includes:
- The National Wildlife Refuge                System Improvement Act of 1997, which is the                "organic" law for the System. The Act                amends the National Wildlife Refuge System                Administration Act of 1966.
- The National Wildlife Refuge                System Administration Act of 1966, which                authorizes the Secretary of the Interior to                permit uses of a Refuge "whenever he                determines that such uses are compatible with the                major purposes for which such areas were                established."
- The Refuge Recreation Act of 1962,                which requires that any recreational use of                Refuge lands can be an appropriate incidental or                secondary use if it is practicable and not                inconsistent with the primary objectives for                which a Refuge was established, and that these                uses not interfere with other previously                authorized operations.
- The National Historic Preservation                Act of 1966 and the Archeological Resources                Protection Act of 1979, which provide for the                protection and rehabilitation of historic and                archeological resources that occur on any Refuge.

The Refuge Improvement Act establishes        a mission for the System, policy direction, and provides        significant guidance for management and public use for        all units of the Refuge System. The act ensures that, for        the first time, the public is formally involved in        decisions on recreation and other public uses on units of        America's 93 million acre National Wildlife Refuge System.        The legislation requires the Secretary of the Interior to        ensure that the mission of the Refuge System and purposes        of the individual Refuges are carried out. It also        requires the Secretary to maintain the biological        integrity, diversity, and environmental health of the        Refuge System. Continued growth of the Refuge System is        to be planned and directed in a way that will contribute        to conservation of the ecosystems of the United States.

The Act further stipulates that each        comprehensive conservation plan "shall identify and        describe:

(A) the purposes of each Refuge            comprising the planning unit *[found in Chapter 1            of this document]*;

(B) the distribution, migration            patterns, and abundance of fish, wildlife, and plant            populations and related habitats within the planning            unit *[Chapter 3]*;

(C) the archaeological and cultural            values of the planning unit *[Chapter 3]*;

(D) such areas within the planning            unit that are suitable for use as administrative            sites or visitor facilities *[Chapter 4]*;

(E) significant problems that may            adversely affect the populations and habitats of            fish, wildlife, and plants within the planning unit            and the actions necessary to correct or mitigate such            problems *[Chapters 1,2 and 3]*; and

(F) opportunities for compatible            wildlife-dependent recreational uses *[Chapter 4]*."

The legislation recognizes that        compatible wildlife-dependent recreational uses are        legitimate and appropriate public uses of the Refuge        System. Several key terms are defined as follows:

*Compatible Use* - "...a            wildlife-dependent recreational use or any other use            of a Refuge that, in the sound professional judgement            of the Refuge Manager, will not materially interfere            with or detract from the fulfillment of the mission            of the System or the purposes of the Refuge."

*Wildlife-dependent recreational            use* - "...a use of a Refuge involving            hunting, fishing, wildlife observation and            photography, or environmental education and            interpretation."

*Sound professional judgement*            - "...a finding, determination, or decision that            is consistent with principles of sound fish and            wildlife management and administration, available            science and resources, and adherence to the            requirements of this Act and other applicable laws."

Appendix F contains a select list of        summaries of other federal laws and treaties used for        administration of the Refuge System and management of the        Refuge. The Draft CCP, written inclusively as an        Environmental Assessment (EA), was written to fulfill        compliance with the National Environmental Policy Act. 

*North American Waterfowl Management        Plan*

This Plan documents the strategy        between the United States, Canada, and Mexico to restore        waterfowl populations through habitat protection,        restoration, and enhancement. Implementation of the plan        is at the regional level. Ten regional habitat "Joint        Ventures" are partnerships involving Federal, State        and provincial governments, tribal nations, local        businesses, conservation organizations, and individual        citizens. The Ohio River Islands Refuge lies on the edge        of the Atlantic Coast Joint Venture and the Mississippi        Joint Venture. Three priority focus areas are already        identified for protection (or enhancement) in West        Virginia, totaling 40,550 acres. Both wetlands and        adjacent uplands are part of the focus areas. Along the        Ohio and Kanawha River Valleys, 6,550 acres have been        identified. The Ohio Valley has been recognized as        important for waterfowl by the West Virginia DNR,        identified as one of the state's waterfowl focus areas        for the Atlantic Coast Joint Venture.

The goal for the Atlantic Coast Joint        Venture is: 

*"Protect and manage            priority wetland habitats for migration, wintering,            and production of waterfowl, with special            consideration to black ducks, and to benefit other            wildlife in the joint venture area."*

*Partners In Flight*

Of the 20 species on the West Virginia        Partners in Flight priority Species List, at least 16 are        known to nest along the Ohio River Valley. Osprey, which        have been reintroduced into the valley by a cooperative        effort of state, federal and private partners, are now        nesting successfully along the Ohio River. The largest        great blue heron rookeries in the state are also located        within the Ohio River Valley.

The Partners in Flight Program is        developing a plan for the area. The plan utilizes        existing data to rank landbird species as to their        priority for conservation. Habitat loss, landbird        population trends, and vulnerability of species and        habitats to threats are all factors used in the priority        ranking of species. Further, the plan will identify focal        species for each habitat type from which population and        habitat objectives and conservation actions will be        determined. This list of focal species, objectives and        conservation actions will help direct landbird management        on the Refuge.

*Regional Wetlands Concept Plan*

In 1986, Congress enacted the Emergency        Wetlands Resources Act to promote the conservation of our        nation's wetlands. The Act directed the Department of        Interior to develop a National Wetlands Priority        Conservation Plan identifying the location and types of        wetlands that should receive priority attention for        acquisition by federal and state agencies using Land and        Water Conservation Fund appropriations. In 1990, the        Northeast Region of the U.S. Fish and Wildlife Service        completed a Regional Wetlands Concept Plan to provide        more specific information about wetlands resources in the        Northeast. The Regional Plan identifies a total of 850        wetland sites that warrant consideration for acquisition,        and also identifies wetland values, functions, and        potential threats for each site.

*Ohio River Valley Ecosystem        Strategic Plan, 1999*

Throughout the last decade, the Service        has been putting more emphasis into understanding how the        parts of an ecosystem interrelate and affect the long-term        conservation of natural resources. To this end, the        Service has initiated new partnerships with private        landowners, state and federal agencies, corporations,        conservation groups, and volunteers. Implementing an        ecosystem team approach to management has been a top        national priority for the Service. Fifty-two ecosystem        teams were formed across the country, typically using        large river watersheds to define ecosystems. Individual        ecosystem teams are comprised of both Service        professionals and partners, who work together to develop        goals and priorities for research and management.

The Ohio River Valley Ecosystem (ORVE)        includes portions of ten states and straddles three        Service administrative regions (Northeast, Southeast, and        Northcentral). The Ohio River Valley Ecosystem Team is        charged with the development and implementation of a        strategic plan for conserving Service trust resources in        the ORVE.

The following eight priorities have        been identified, each encompassing numerous action        strategies:

"In cooperation with partners...":
- reverse the decline of native                aquatic mollusks within the Ohio River Valley                Ecosystem with emphasis on endangered, threatened                and candidate species and species of concern.
- reverse the decline and achieve                stable, viable populations of migratory landbirds                and other bird species of concern.
- reverse the decline of native                fishes with emphasis on interjurisdictional,                listed, and candidate species, and species of                concern.
- protect and restore karst/cave                habitat supporting listed and candidate species                and species of concern.
- protect and restore wetland,                riverine and riparian habitat in the Ohio River                watershed for the protection and enhancement of                migratory waterbirds and other wetland dependant                species of concern.
- reduce the decline and promote the                recovery of rare resources identified as listed/proposed                threatened and endangered species, candidate                species and species of concern [not otherwise                addressed in the other Resource Priorities].
- achieve the necessary level of                protection for those high priority areas within                the Ohio River Valley Ecosystem that would help                meet the goals of the ORVE Team.
- promote and support sustainable                fish and wildlife-dependent recreational uses                while maintaining the long-term health of the                ecosystem and the Service's trust resources.

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