American avocet and chick

USFWS

Chapter 2 Management Direction

Chapter 1Introduction andBackground

Chapter 5HumanEnvironment

Chapter 4BiologicalEnvironment

Chapter 3PhysicalEnvironment Maps

Chapter 2Management Direction Appendices

Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-1 

Chapter 2. Management Direction 

2.1 Overview 

The established refuge purposes serve as the foundation on which this plan is constructed (see 

Chapter 1). Formulating management direction that corresponds with refuge establishment purposes 

is mandated for National Wildlife Refuges by the NWRS Administration Act of 1966 (as amended 

16 U.S.C. 668dd-668ee). Malheur Refuge’s purposes and natural resource considerations are 

therefore foundational in formulating the management direction of this CCP. House Report 105-106

accompanying the National Wildlife Refuge System Improvement Act of 1997 states, “the 

fundamental mission of our System is wildlife conservation: wildlife and wildlife conservation must 

come first.” 

This CCP was also developed through a collaborative process in order to solicit and incorporate 

public input throughout all stages of plan development, as well as build support for its content and 

implementation. A variety of organizations and individuals contributed to this CCP (see Appendices 

I and J). Together with vested collaborators and stakeholders, we created, reviewed, and refined the 

content of the management direction for the Wildlife and Habitat, Visitor Services, Cultural 

Resource, and Paleontology programs through a series of interactive meetings. 

Each collaborative meeting was attended by 30 to 40 participants, including technical experts, 

scientists, government agencies, conservation organizations, local and statewide residents, recreation 

groups, Tribal representatives, refuge visitors, and elected officials. Technical working groups were 

created by the Service to serve as forums for specific complex resource issues. 

Of the resource concerns discussed by participants these significant issues were identified as 

priorities: improvement of aquatic health through carp population control; enhancement of the 

inventory and monitoring program (including climate change); habitat management (including 

implementation and adaptive management); active engagement with partners to implement and 

evaluate management and restoration activities within and beyond our refuge boundaries; and 

strategic assessment and planning for the restoration of refuge watersheds, primarily the Blitzen 

River and its tributaries. 

The poor aquatic health of the Refuge’s lakes and wetlands is the biggest and most immediate issue 

facing the Refuge over the next 15 years. Common carp are the largest contributor to degradation of 

aquatic habitats. With carp as the top priority, staff time and funding will be predominantly directed 

at reducing the carp population to a threshold goal of 100 pounds of carp per acre in refuge lakes (see 

Appendix R). Studies (Bajer et al. 2009) have shown that at this level, carp impacts to the food web 

are reduced and other organisms can flourish despite the presence of carp. Carp control strategies 

must also address minimizing carp numbers in wetland and riverine habitats throughout the Harney 

Basin. To reach this goal the Refuge will need active partners to assist with assessment and control 

projects. The Aquatic Health Coalition has been created to leverage partners and secure funding. 

Three aquatic health working groups have been formed within the coalition to develop strategies for 

carp population assessment, carp control on- and off-refuge, and partnership enhancement and 

funding opportunities. Participants consist of fish and wildlife biologists, researchers, subject matter 

experts, and ecologists from various Federal and State agencies, nongovernmental organizations, and 

institutions. The desired condition for refuge aquatic habitats would be represented by teeming 

masses of phytoplankton and zooplankton, reduced suspended silts, and a flourishing diversity of 

macroinvertebrates, vegetation, and fish—all for the benefit of migratory birds and resident wildlife. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-2 Chapter 2. Management Direction 

A comprehensive inventory and monitoring (I&M) program is critical to the mission of the Refuge, 

and the development of an effective I&M program has been identified as an integral part the CCP. 

This program will allow the Refuge to gather the necessary data to evaluate the impacts of various 

management strategies, climate change, and other major influences as they relate to CCP goals and 

objectives. To carry out the I&M program the Refuge will not only need its staff, but others, such as 

citizen scientists, partners, and other interested parties, to assist with data collection, input, and 

analysis. We aim to create an I&M program that is transparent, uses best available science, is 

collaborative, and links to adaptive management strategies. 

The Refuge has a diversity of habitats spread across a large landscape interwoven with waterways, 

both natural and artificial. This complex and interconnected systems of land and water require 

intensive management. The upland landscape is also overwhelmed with invasive plants (pepperweed 

(Lepidium latifolium) and large monotypic stands of reed canarygrass (Phalaris arundinacea L.)) 

covering thousands of acres. To address this habitat management priority the Refuge established the 

Ecology Work Group (Appendix L). Consisting of ecologists and wildlife biologists representing a 

broad assortment of organizations, this group is focusing on the development of habitat models 

describing successional conditions that will provide guidance in achieving specific plant community 

objectives. Partners and working groups will continue to work together with the Refuge in the pursuit 

of the best available science to further our understanding of the effects of implementing management 

activities, evaluating methods and techniques, and initiating adaptive management to address needed 

changes. The desired outcome is to work collaboratively with others to address habitat management 

needs using best available science, innovative methods and techniques, and transparency. The Refuge 

is committed to keeping our partners, neighbors, and others engaged in our progress and will host an 

annual educational science day to highlight the methods, techniques, and strategies being used for 

refuge management. 

The restoration of ecosystem function both on- and off-refuge is of great interest to our collaborators. 

Several watersheds terminate on the Refuge and influence its ecological health. To address these 

larger landscape issues the Refuge will actively engage with partners to develop and implement 

solutions. The Blitzen River, for example, was once a free-flowing river that was harnessed while in 

private ownership to irrigate meadows for livestock. After acquisition of the valley by the Service, 

water continued to be diverted to meadows and wetlands to provide habitat for migratory birds. 

Water is fed by gravity from the river into the water delivery system, which consists of 

approximately 2,000 miles of ditches and canals, and through about 1,000 water control structures. 

To date millions of dollars have been spent to improve passage and screening at existing facilities 

and structures for redband trout (Oncorhynchus mykiss gairdnerii). The best quality wetland habitat 

for migratory birds on the Refuge is found within the human-made wetlands and ponds of the Blitzen 

Valley because the aquatic health of the Refuge’s lakes have been so detrimentally impact by 

invasive carp. Although the Refuge’s highest priority is to reach a desired carp control threshold goal 

of 100 pounds per acre across the entire aquatic landscape, efforts will be made to continue making 

progress on improving passage and screening to enhance conditions for native fish and to facilitate 

trapping carp and restricting their movements; on improving water quality and where possible, 

lowering summer stream temperatures to make riverine conditions more attractive to redband trout 

and less favorable to carp; and on reducing negative impacts of flood events to nesting birds. The 

Refuge may pursue small-scale projects that enhance habitat for redband trout and lower water 

temperatures in the upper Blitzen Valley, which will contribute to the aquatic health objective of a 

reduced carp population. Watershed restoration is a very complex, multilayered project that will 

require extensive cultural resource clearances and surveys, water rights evaluation, infrastructure 

changes, and discussion about desired outcomes. The end result should be substantial improvements 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-3 

for the Blitzen River and neighboring watersheds, as represented by healthy populations of native 

fish and mussels, a flourishing diversity of macroinvertebrates and plants, improved passage and 

screening for redband trout and other native fish, carp passage deterrents, lower water temperature, 

and reduced turbidity for the benefit of migratory birds and resident wildlife. 

2.2 List of Goals 

GOAL 1. Enhance aquatic health and habitat conditions essential to the conservation of the flora and 

fauna that depend on Malheur Lake and associated water bodies. 

GOAL 2. Monitor, protect, maintain, and/or rehabilitate riverine and riparian habitats to conditions 

essential for the conservation of native fish and wildlife species. 

GOAL 3. Protect, maintain, and rehabilitate riparian habitats to conditions essential for the 

conservation of wildlife species. 

GOAL 4. Enhance, protect, and/or maintain primary habitats essential to the conservation of a 

diversity of aquatic and terrestrial wildlife species. 

GOAL 5. Enhance and maintain rare and unique habitats. 

GOAL 6. Welcome visitors and offer them a safe experience of the Refuge’s outstanding features: 

diversity of wildlife, signs of earlier inhabitants, scenic landscapes, and solitude. As a result, visitors 

will leave the Refuge with a memorable experience that fosters a connection between themselves and 

nature, and with an appreciation of its unique natural resources. 

GOAL 7. Connect the hearts and minds of visitors with the places and resources the Refuge protects, 

and enlighten visitors’ experiences with an understanding of, appreciation for, and knowledge about 

the historic and natural resources, and the importance of conservation and stewardship. 

GOAL 8. Provide reasonable challenges and opportunities, and provide uncrowded conditions for the 

hunting and fishing public. 

GOAL 9. Initiate and nurture relationships to build support for the Refuge, and fortify refuge 

programs and activities to achieve the Refuge’s mission and goals. 

GOAL 10. Manage prehistoric and historic cultural resources for their educational, scientific, and 

cultural values for the benefit of present and future generations of refuge users and for the 

communities that are connected to these resources. 

GOAL 11. Identify and protect prehistoric and historic resources on the Refuge that are eligible for 

or listed on the National Register of Historic Places. 

GOAL 12. Manage the Refuge’s paleontological resources for their educational and scientific values 

for the benefit of present and future generations of refuge users. 

GOAL 13. Gather scientific information (surveys, research, and assessments) to support adaptive 

management decisions. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-4 Chapter 2. Management Direction 

GOAL 14. Integrate our conservation-based mission with the best available science and become a 

leader in advancing best practices for the design and management of innovative, sustainable refuge 

and community development opportunities. 

2.3 Summary of Management Direction 

The management direction described in this CCP can be summarized as follows: 

 The primary focus and top priority will be to improve the aquatic health of lakes and 

wetlands, primarily via aggressive control of common carp. 

 Habitat management for specified habitat attributes with wetland habitats1

 will follow. A 

comprehensive riverine/wetland strategic plan for watersheds within the Refuge will be 

initiated. 

 A more developed and structured visitor experience will be available with additional birding, 

fishing, and hunting opportunities. 

 Historic, cultural, and paleontological resource plans will be developed and protected. 

The management direction recognizes that the Refuge is legally mandated to conserve and protect 

migratory birds to achieve its establishing purposes. Addressing aquatic health is key to meeting this 

obligation and full attention will be given to its improvement. The greatest obstacle to this effort is 

common carp, an introduced fish that negatively impacts water quality and in turn impacts native 

fish, wildlife, and plants that depend on the Refuge’s aquatic resources. Primary management 

emphasis will be placed on improving aquatic health, with staff time and budget largely directed to 

carp control. Partnerships and staff resources will also address the needs of the visitor services and 

habitat management programs. Development of a comprehensive riverine/wetland strategic plan will 

be initiated with the rate of progress determined by staff and resource availability, as well as interest 

and resource contributions from partners. 

Lake and Wetland Habitats: The emphasis of the management direction is to improve the aquatic 

health of the Refuge’s lake and wetland habitats, and to enhance the feeding, resting, and nesting 

components necessary for a variety of shore/wading birds, waterfowl, and other wildlife species. This 

will be achieved largely through carp population control. As turbidity decreases and submergent 

vegetation and associated invertebrate species become more abundant, the productivity of Malheur 

Lake and of other water bodies within the Refuge (e.g., Boca Lake and Warbler Pond) will increase. 

Because of the sheer size and complexity of the aquatic health problem, primarily due to carp, a 

variety of assessment and control tools will be needed to effectively address it. Existing partnerships 

such as the Aquatic Health Coalition (made up of Federal, State, nongovernmental organization, and 

Tribal participants) will assist in strategizing and implementing the most effective suite of control, 

inventory, funding, and monitoring methods. 

Although the overall carp assessment and control strategy for the Harney Basin is currently being 

considered, it would incorporate methods successfully implemented worldwide and customized, as 

needed, to suit the Refuge. Strategic assessments of lake, river, and wetland habitats and carp 

population dynamics would guide control activities and provide enhanced understanding of the 

system’s innate ability to recover from carp impacts. Control strategies would include, but not be 

 

1

 Wetland habitats include wet meadows that depend on flood irrigation during the growing season. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-5 

limited to, the application of piscicide, chemo-attractants, chemo-repellants, barriers, commercial 

harvest, angling, and water manipulation. The need for continued amendments to and the 

construction of additional strategically placed in-stream structures (i.e., traps, screens, and fish 

wheels) that allow native fish passage and impede/prohibit carp movement through the system would 

also be considered. 

Riverine Habitat: The Blitzen River and its tributaries currently provide the foundation and lifeblood 

on which fish and wildlife depend. Because a vast majority of refuge-managed habitats are reliant on 

irrigation via a complex network of dams, canals, and ditches associated with the river, it is important 

to understand the connectivity between the Malheur/Mud and Harney Lake systems and associated 

wetlands in light of carp control. The management direction allows for initiating the development of 

a comprehensive riverine/wetland strategic plan, which will depend on staff and funding availability. 

The primary focus of refuge staff is the improvement of lake and wetland aquatic health through carp 

control. However, we may make efforts to reduce summer river temperatures through changes in 

water management to increase the cold water barrier, which keeps carp out of wetlands in the upper 

Blitzen Valley. 

The mechanisms for addressing river-related issues will be placed in motion strategically under the 

management direction by completing necessary assessments and pilot projects as funding, staff time, 

and resources provided through partnerships allow. The Refuge recognizes that achieving a greater 

understanding of riverine habitat parameters and opportunities for improvement is very important. If, 

during the life of this CCP, the minimum carp threshold (e.g., 100 pounds per acre) is met and 

maintained, more staff time and resources would be directed to addressing whether river 

rehabilitation efforts are needed and, if so, how such efforts should be identified, prioritized, and 

achieved. 

I&M efforts will place a high priority on information that assists the Refuge in building a baseline 

data layer that could be used in pursuing riverine activities while furthering our understanding of 

adjacent habitats. More in-depth, site-specific assessments will be done if opportunities arise (e.g., 

funding availability and additional refuge staff). 

Wetlands and terrestrial habitats will continue to be managed to promote the life-history needs of 

focal resources (see Appendix E). The overarching theme for the management of wetland and 

terrestrial habitats will be greater flexibility in identified strategies to adequately meet establishing 

objectives. Flexibility is critical for maintaining a variety of plant communities within habitats, such 

as emergent marsh, wet meadow, and dry meadow, to meet foraging, breeding, brood rearing, and 

other life-cycle needs of migratory birds and other native wildlife. For example, bobolinks and 

sandhill cranes both depend on wet meadows during the breeding season. They do, however, differ 

greatly in their use of and the conditions needed within these meadows. To address the wide 

assortment of needs found within each habitat type, vegetation management tools will address the 

accumulation of litter and plant community succession. Tools will include, but will not be limited to, 

traditional late summer haying and autumn/winter rake-bunch grazing (to meet the foraging needs of 

wildlife species that arrive early) and highly prescriptive warm-season (growing season) grazing, 

mowing, farming, extended dewatering, etc. (to reclaim acres lost to invasive plants, such as common 

cattail and reed canarygrass) or to rehabilitate communities that have transitioned beyond desired 

conditions. 

Wildlife viewing, photography, and interpretation, the cornerstones of the public use program, will 

provide quality opportunities for observing nature. Management under this CCP will be focused on 
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2-6 Chapter 2. Management Direction 

expanding developed facilities and programs for casual visitors and birders (of all abilities). Both 

spur and loop trails (at least 1 mile) will be added to allow visitors to explore and learn about wildlife 

and the Refuge, and several trails will be upgraded or built to Americans with Disabilities Act (ADA) 

standards for accessibility compliance. A number of specific viewing facilities to enhance visitors 

experiences, such as viewing overlooks and elevated viewing platforms, will also be upgraded and 

developed. These projects will include restoring the historic Audubon photography blind at the 

Refuge Headquarters Display Pond; building two ADA-compliant, first-come, first-served permanent 

screened photography blinds; and building an elevated viewing platform at Malheur Lake. For 

advanced birders, the Refuge will maintain and replant cottonwood trees and other non-endemic trees 

and shrubs at six historic landscapes to continue to provide habitat used by rare and incidental 

passerines (perching birds or songbirds). 

Connecting the hearts and minds of visitors with the Refuge will be accomplished with docent-led 

tours conducted on a seasonal basis at different locations on the Refuge, and will include 

opportunities for guided kayak and canoe tours on Malheur Lake. Expanded vehicle access will be 

available, with year-round vehicle access to Krumbo Reservoir, along the Boat Landing Road near 

Refuge Headquarters, and the southern portion of the East Canal Road to the confluence of Bridge 

Creek. In addition, boating that is not directly supporting the fishing program will be available at 

Krumbo Reservoir to enhance wildlife viewing. 

Interpretive features and programs are another high priority, and key interpretive themes will include 

the significance of the Refuge to breeding and migratory birds, precontact and post-contact historic 

events, wilderness, geology, aquatic health, water importance, resource challenges, and the National 

Wildlife Refuge System. A stronger emphasis will be placed on developing and using modern media. 

The George Benson Memorial Museum at Refuge Headquarters will be enhanced, with interpretive 

panels added to connect visitors with places and the resources that the Refuge protects. Additional 

outdoor interpretive panels will be placed at key field sites and will focus on improving aquatic 

health and associated management activities, and weaving historical events with the ecology of the 

Refuge. Special events and public presentations by refuge staff and volunteers will be expanded and 

promoted to enlighten visitors’ experiences. 

Welcome and Orientation: Refuge staff will emphasize improvements in welcome and orientation 

features, with an emphasis on the use of modern and traditional media to reach and orient visitors. Up 

to eight outdoor welcome and orientation panels will be located near Refuge entrances and at other 

congregation areas to direct and guide visitors during their visit. To welcome visitors, developed sites 

with visitor amenities, such as picnic tables, shelters, and vault toilets, will be upgraded and at least 

five new developed sites features will be built. An enlarged visitor contact station and gift shop at 

Refuge Headquarters and a seasonal contact station at P Ranch will be built to provide personal 

contact between visitors and Refuge staff and volunteers. 

Environmental education will be provided, but with more strategic use of Refuge staff time and 

resources. Strategies will include coordinating efforts with other environmental education initiatives. 

Existing modules from national and regional programs, such as the Junior Duck Stamp Program and 

International Migratory Bird Day, will be used as refuge staff and volunteers become available. An 

outdoor environmental education shelter and learning area at Refuge Headquarters will be built to 

augment the existing environmental education program and other environmental education 

initiatives. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-7 

Hunting opportunities for upland game will be enhanced by improving the Saddle Butte access on 

the north side of Malheur Lake and extending the season opener to the fourth Saturday of October 

(approximately three weeks earlier than current program) to the end of the State pheasant season in 

the Buena Vista Hunt Unit. The northern part of Malheur Lake and the Boundary Hunt Unit will 

remain open under slightly modified regulations. 

The waterfowl hunt will also be enhanced by promoting a youth hunt and with improvements to the 

Saddle Butte access. In addition, new waterfowl hunt areas will be provided (approximately doubling 

or tripling the existing hunt area) by opening a portion of the south-central area of Malheur Lake and 

within the existing Buena Vista Hunt Unit. The season opener for the new waterfowl hunt units will 

be on the fourth Saturday of October to the end of the State waterfowl season. One new access point 

with an expanded parking area and an enhanced boat launch will be provided on the Boat Landing 

Road near Refuge Headquarters to access the new hunt unit of Malheur Lake. In partnership with 

potential users, the Refuge will also support adding accessible facilities in the Buena Vista Hunt Unit 

for waterfowl hunters with disabilities. 

Fishing opportunities along the upper Blitzen River, the southern portion of East Canal, and Mud 

and Bridge creeks will continue. Vehicle access will be allowed on the East Canal Road north to the 

confluence of Bridge Creek to make this opportunity more accessible for visitors and will enable 

access to Granddad Reservoir located on BLM land. In addition, a new pedestrian crossing at Bridge 

Creek will enhance fishing access to the 7 miles of Bridge Creek located west of the East Canal to its 

confluence with the Blitzen River. Opening a new bank fishing opportunity with a parking area at 

Sodhouse Lane to the bridge on the Boat Landing Road, part of the Headquarters Loop Trail, will 

open a new area to fishing on the Blitzen River. The season for this fishing unit will be from August 

1 to September 15. Orientation panels with maps, brochures, regulations, and additional information 

will be added to fishing areas to provide information to visitors about fishing opportunities. 

At Krumbo Reservoir, year-round access will be provided for wildlife viewing, boating, and fishing 

in coordination with State seasons and will increase public fishing opportunities. The stocking 

program of triploid rainbow trout will continue in coordination with ODFW, and steps will be 

undertaken to conduct a genetic introgression study on redband trout. 

Volunteer Program: To help enhance the public use program and other refuge programs, a full-time 

volunteer coordinator will be added to the staff. The volunteer coordinator will increase recruitment, 

retention, and the return rate of volunteers. The position will also expand the program to better use 

facilities and refuge staff, assist with building partnerships, and increase public outreach. 

Protection of cultural and paleontological resources will be strengthened by the development, in 

cooperation with partners, of step-down management plans for administrative sites where historic or 

prehistoric resources are present, and for archaeological and paleontological resources. Interpretation 

of historic sites will be expanded through the development and implementation of site-specific 

interpretive plans. Opportunities for Native Americans to collect plant materials for traditional uses 

will be expanded. I&M of archaeological resources will increase as part of step-down management 

plan implementation. 

Boundary Unit Lands: Some Refuge lands located within the Boundary Hunt Unit (Refuge lands 

west of State Highway 205 and isolated parcels in the Krumbo watershed) are managed by the BLM 

under cooperative land management agreements with the USFWS. Under these agreements, typical 

BLM land management practices and uses are allowed to occur. Upon final signature of this CCP, 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-8 Chapter 2. Management Direction 

these cooperative land management agreements will be allowed to expire, except for those pertaining 

to the use of Diamond and Nine Mile corrals. Refuge lands will be managed by the USFWS to 

further Refuge purposes, until a land interchange or new cooperative land management agreement is 

negotiated with BLM. 

Energy Independence: The refuge staff will seek to become energy independent and carbon 

negative, and will continue to emphasize partnerships to maximize adaptive management. 

Inventory and monitoring for all programs will be strengthened. Program-wide I&M plans will be 

developed to guide annual management actions. The fish, wildlife, and vegetation plans will 

emphasize focal species and national monitoring efforts. A geodatabase will be created to track data 

collected under these plans. 

Adaptive Management: The Refuge will be using an adaptive management (AM) decision-making 

process to implement management strategies authorized in the CCP. AM is a science-based public 

participation process for evaluating and adjusting a conservation effort relative to goal achievement 

as experience and knowledge are gained through implementation, study, and discussion. The Refuge 

and its collaborative partners support the fact that AM promotes flexible decision making, which can 

be adjusted in the face of uncertainties as outcomes from management actions and other events 

become better understood. As the CCP is implemented, AM will help the Refuge achieve diverse 

goals while enhancing wildlife benefits, advancing scientific knowledge, and improving working 

relationships among stakeholders. 

The principle of AM recognizes that ecosystem function is inherently complex and often results in 

knowledge gaps. AM implementation means a firm commitment to the development of measurable 

outcomes and the application of rigorous evaluation and monitoring methods to determine whether 

management goals are being met. Careful monitoring of these actions advances scientific 

understanding and helps adjust policies or operations as part of an ongoing learning process. This is 

not a trial-and-error process but rather emphasizes learning while doing, which recognizes the 

importance of incorporating new information as it becomes available. AM requires flexibility and an 

ability to acknowledge risks and failures and use new knowledge in a constructive manner to make 

adjustments while building a foundation for ongoing learning/adjustment. This may include changing 

which Resources of Concern are used for habitat management as a result of new data acquired during 

the Inventory and monitoring process. 

The Refuge is committed to a rigorous and inclusive AM approach to enhance public confidence in 

the Refuge’s ability to transfer the theory into practice. The Refuge recognizes that there is a critical 

need for transparency as CCP implementation moves forward. This transparency as it pertains to AM 

needs to include both the learning and decision-making processes. The following discussion 

describes how the Refuge will move forward through AM. 

 Information Sharing/Learning: The Refuge is committed to an AM process that will bring 

diverse interests together through various forums to share information and site-specific 

results so that all those engaged, including the Refuge, can learn together (Figure 2-1). These 

forums will evolve over time but will include collaborative mechanisms with others such as 

(and potentially evolving from) the collaborative groups that have been active during the 

CCP process, including the Aquatic Health Coalition, the Ecology Work Group, and an 

evolution of the Collaborative Planning Group. The timing and frequency of information 

sharing and learning will be determined by how rapidly new information is being acquired, 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-9 

level of partners’ interest and engagement, ecological cycles, and the forum being used. The 

Refuge will also share the results of its I&M work on an ongoing basis and strive to be 

responsive to partners’ requests for open discussion and collaboration in assessing the need 

for adaptive changes in management to achieve the goals and objectives of the CCP. 

 Decision Making: As the Refuge and our partners learn through the AM process, new 

information may show the need for adjustments (e.g., selecting new habitat focal species or 

evaluation metrics), confirm existing strategies, or identify additional information (Figure 2-

1). Based on the best information available at the time, the Refuge will make decisions for 

future management actions. As with the sharing and learning aspects of AM, the Refuge 

recognizes the importance of transparency for decisions made during the AM process. The 

Refuge is committed to bringing together interested parties to assist with the evaluation of 

available information, as well as consultation about management options and their 

implications prior to making course-changing decisions. This process does not diminish the 

Refuge’s legal authority to make decisions but rather serves to enhance the decision making 

process by enabling the Refuge to approach issues from multiple perspectives thereby finding 

creative solutions to complex challenges. 

Figure 2-1. Adaptive Management Model 

Implementation Subject to Funding Availability: Actions will be implemented over a period of 15 

years as funding becomes available. Project priorities are described in Appendix C. The Refuge will 

continue to work with partners to implement the CCP by sharing results, providing updates on 

successes and challenges, initiating discussions, encouraging participation, and hosting working 

groups.

Tribal Coordination: There will be regular communication with the Burns Paiute Tribe. This tribe is 

the major local tribal entity the Refuge will coordinate and consult with regarding issues of shared 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-10 Chapter 2. Management Direction 

interest. Currently, the Service coordinates with the Tribe on issues related to the Native American 

Graves Protection and Repatriation Act (NAGPRA; P.L. 101-601) and National Historic Preservation 

Act (NHPA; 16 U.S.C. 470 et seq.).

State Coordination: The Service will continue to maintain regular discussions with ODFW. Key 

topics for discussion will be wildlife monitoring, fisheries management (including fish passage and 

barriers), hunting and fishing seasons and regulations, and the management of species of concern 

(i.e., sage-grouse). 

Harney County Court Coordination: The Service will continue to maintain regular discussions with 

the Harney County Court as actions under this plan are implemented over the next 15 years.

Maintenance of Infrastructure to Support Management of Wetlands and Meadows: Efforts to 

enhance the water management system will be made throughout the life of the CCP, to reflect aquatic 

health (e.g., carp control) and other habitat management needs and constraints. Actions will be 

directed by existing water rights, funding opportunities, and refuge maintenance priorities. 

Refuge Fire Management: The current Refuge Fire Management Plan (FMP) based on the 1985 

Refuge master plan and step-down plans was updated in 2010. Under this FMP the Refuge is 

designated as a single Fire Management Unit (FMU). The FMP will be revised and approved at the 

Regional level and will act as a step-down plan to the CCP. An approved FMP allows a manager to 

consider a wide range of management responses to wildfires and to conduct prescribed fires. The 

FMP contains strategic and operational elements that describe how to manage applicable fire 

program components such as: response to unplanned ignitions, hazardous fuels and vegetation 

management, burned area emergency stabilization and rehabilitation, prevention, community 

interactions and collaborative partnerships roles, and monitoring and evaluation programs. 

Prescribed fire will be used in areas where it is the most appropriate tool to achieve habitat and 

hazardous fuels reduction goals. Prescribed burns will generally be conducted in the late winter to 

meet litter management objectives, but may be done at other times depending on desired outcomes. 

Climate Change: The refuge staff will participate in and contribute to climate change assessment 

efforts, including those underway at a landscape scale, such as the Great Basin Landscape 

Conservation Cooperative (LCC). LCCs are formal science-management partnerships consisting of 

the Service, other Federal agencies, states, Tribes, nongovernmental organizations, universities, and 

other entities. LCCs provide science support, biological planning, conservation design, research, and 

design of inventory and monitoring programs to address climate change and other environmental 

stressors in an integrated fashion. As needed, objectives and strategies will be adjusted to assist in 

enhancing refuge resources’ resiliency in the face of climate change. The refuge staff will also 

continue to pursue and engage in mechanisms to conserve energy in refuge operations, including the 

use of fuel-efficient vehicles. 

Partnerships: Partnerships will be maintained and developed to enhance collaboration in support of 

fish and wildlife resources, recreational opportunities, cultural resources, paleontological resources, 

educational programs, and to explore ways to share funding and seek grants on projects of mutual 

interest. Partnerships will also be used to work with others to accomplish common goals, promote 

mutual understanding, encourage environmentally friendly development, and promote ecotourism 

opportunities. Workshops and training sessions with professional colleagues and the general public 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-11 

will be developed to obtain ideas, techniques, and support for management decisions to address 

natural process management, agency mission, and refuge objectives. 

Volunteer Opportunities: Volunteers are recognized by the Refuge as key components of the 

successful management of public lands, and they are vital to implementation of refuge programs, 

plans, and projects, especially in times of declining budgets. Volunteer opportunities will be 

maintained and expanded to best use facilities and refuge staff, and to assist with building 

partnerships and public outreach. A volunteer management plan will be developed and will address 

the following for all refuge programs: job descriptions, volunteer/staff roles, recruitment and 

retention of high-quality volunteers, orientation/training, housing, performance evaluations, 

recognition, administration of the Malheur Wildlife Associates, promotion of the role of the Malheur 

Wildlife Associates, and Malheur Wildlife Associates program evaluation. 

Transportation Coordination: Roads, bridges, and trail systems play a vital role in providing access 

to the public for compatible wildlife-dependent recreation opportunities. The Service will look for 

opportunities to partner with the Oregon Department of Transportation (ODOT), Burns District of 

the BLM, and Harney County to maintain and improve safe and appropriate transportation access in 

and around the Refuge. 

Refuge Revenue Sharing Payment: Annual payments to Harney County under the Refuge Revenue 

Sharing Program will continue according to the established formula and subject to payments 

authorized by Congress. Total payments made to the County in recent years are listed in Section 

5.8.5. 

Sustainable Practices for Maintenance and Updating of Existing Infrastructure: Periodic 

maintenance and updating of refuge buildings and facilities will be necessary. Periodic updating of 

infrastructure is necessary for safety and accessibility and to support staff and management needs and 

is incorporated in the Federal Business Management System and Environmental Management Plan. 

The Refuge will seek to become energy independent and carbon negative by implementing green 

technology and sustainable practices. 

Endangered Species Act Section 7 Consultations: All projects will be compliant with the 

Endangered Species Act (ESA, 16 U.S.C. 1531-1544 et seq.). Section 7 consultation was not 

completed programmatically for the CCP. The need for Section 7 consultations for special projects or 

actions not described in this plan (e.g., management actions related to aquatic health) will be 

conducted on a case-by-case basis. 

Section 106 Compliance: Any new ground-disturbing projects or modifications (e.g., removal of 

historic water control structures or dams) will undergo a review under Section 106 of the NHPA (16 

U.S.C. 470 et seq.). 

Integrated Pest Management (IPM): In accordance with 517 DM 1 and 569 FW 1, an integrated 

pest management (IPM) approach will be used, where practicable, to eradicate, control, or contain 

pest and invasive species (herein collectively referred to as pests) on refuge lands. IPM will involve 

using methods based upon effectiveness, cost, and minimal ecological disruption, which considers 

minimum potential effects to non-target species and the refuge environment. Pesticides may be used 

where physical, cultural, and biological methods or combinations thereof, are impractical or 

incapable of providing adequate control, eradication, or containment. If a pesticide is needed on 

refuge lands, the most specific (selective) chemical available for the target species will be used 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-12 Chapter 2. Management Direction 

unless considerations of persistence or other environmental and/or biotic hazards preclude it. In 

accordance with 517 DM 1, pesticide usage will be further restricted because only pesticides 

registered with the U.S. Environmental Protection Agency (USEPA) in full compliance with the 

Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA; 7 U.S.C. prec. 121) and as provided in 

regulations, orders, or permits issued by USEPA may be applied on lands and waters under refuge 

jurisdiction. 

Environmental harm by pest species refers to a biologically substantial decrease in environmental 

quality as indicated by a variety of potential factors including declines in native species populations 

or communities, degraded habitat quality or long-term habitat loss, and/or altered ecological 

processes. Environmental harm may be a result of direct effects of pests on native species including 

preying and feeding on them; causing or vectoring diseases; preventing them from reproducing or 

killing their young; out-competing them for food, nutrients, light, nest sites or other vital resources; 

or hybridizing with them so frequently that within a few generations, few if any truly native 

individuals remain. Environmental harm also can be the result of an indirect effect of pest species. 

For example, decreased waterfowl use may result from invasive plant infestations reducing the 

availability and/or abundance of native wetland plants that provide forage during the winter. 

Environmental harm may involve detrimental changes in ecological processes. For example, 

cheatgrass infestations in shrub-steppe greatly can alter fire-return intervals, displacing native species 

and communities of bunchgrasses, forbs, and shrubs. Environmental harm may also cause or be 

associated with economic losses and damage to human, plant, and animal health. For example, 

invasions by fire-promoting grasses that alter entire plant and animal communities eliminating or 

sharply reducing populations of many native plant and animal species can also greatly increase firefighting costs. 

See Appendix G for the Refuge’s IPM program documentation to manage pests. Along with a more 

detailed discussion of IPM techniques, this documentation describes the selective use of pesticides 

for pest management on refuge lands, where necessary. Throughout the life of the CCP, most 

proposed pesticide uses on refuge lands will be evaluated for potential effects to refuge biological 

resources and environmental quality. These potential effects will be documented in “Chemical 

Profiles” (see Appendix G). Pesticide uses with appropriate and practical BMPs for habitat 

management as well as cropland/facilities maintenance will be approved for use on refuge lands 

where there likely will be only minor, temporary, and localized effects to species and environmental 

quality based upon non-exceedance of threshold values in Chemical Profiles. 

Hazard Analysis and Critical Control Point Plan: Hazard analysis and critical control points 

planning (HACCP) is a tool to help natural resource managers identify critical control points in their 

activities to decrease the spread of invasive species. The HACCP Wizard Version 2.04 

(http://www.haccp-nrm.org/Wizard/default.asp) will be used to construct plans for staff, contractors, 

volunteers, and other users of the refuge to evaluate their activities and address ways to conduct their 

activities to limit the chance of spreading invasive species. 

Water Rights: The right to use water on the Refuge is managed through the State of Oregon’s Water 

Resources Department. Water rights in Oregon are managed by two basic principles: beneficial use 

and first in time/first in right. Almost all water use on the Refuge has some form of a State-certified 

water right. The exception is springwater in the Double-O Unit of the Refuge, which is threatened by 

groundwater withdrawals in the area. To protect the habitats and values associated with springs, the 

Service will take steps to file a groundwater right. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-13 

Water Quality: Water quality is addressed through the ODEQ. Refuge-specific water quality 

guidelines have not yet been established through a formal TMDL study conducted by the State. 

Although water quality impairments exist in the Blitzen River before it reaches the refuge boundary, 

various refuge-led studies have indicated a continued increase in temperature and turbidity and a 

decrease in dissolved oxygen levels within some refuge water bodies (see Chapter 3) during specific 

times of the year. Refuge staff will continue to identify and implement best management practices to 

address water quality. 

Blitzen River Water Management: The Refuge will continue to maintain a minimum flow of 25 cfs 

in the Blitzen River to benefit aquatic resources. 

Research, Monitoring, and Inventory: Refuge staff will continue to work with others to share 

information and expertise on habitat management, terrestrial and aquatic health, and 

restoration/rehabilitation techniques. Partnerships with local universities, nongovernmental 

organizations, Tribes, State and local agencies, and others will be expanded to conduct research that 

will advance sound science associated with decision making on the Refuge. 

Malheur Refuge State and Transition Model: The Refuge is partnering with ecologists, wildlife 

biologists, and scientists from various State and Federal agencies and nongovernmental organizations 

to develop the “Malheur Refuge State-and-Transition Model” (STM) to increase understanding of the 

wetlands managed by the Refuge. It describes various habitat types along a hydrological gradient and 

discusses the conditions that likely cause transitions between associated plant assemblages. The STM 

will serve as a “road map” for managing wetlands and uplands toward target habitat conditions and 

will provide increased understanding of the short- and long-term effects of management treatments 

on refuge habitats. 

Non-priority Uses: Non-priority wildlife-dependent recreational uses will be allowed at the Refuge if 

found appropriate and compatible. Certain uses will be allowed under the stipulations identified in 

Appendix B. Incidental uses such as horseback riding will be permitted only on the Center Patrol 

Road. Bicycling and cross-country skiing will be permitted on all public roads; pets will be permitted 

in designated areas. All-terrain vehicle (ATV) use is permitted in conjunction with the grazing and 

haying program. Recreational use of ATVs, snowmobiles, or dirt bikes will not be permitted 

anywhere on the Refuge. Special stipulations apply for ATV use on the Refuge as outlined in 

Appendix B. 

Prohibited activities include fires, swimming, camping, and collecting natural objects (such as plants, 

animals, minerals, antlers, etc.), and objects of antiquity. See Appropriate Use Determinations 

(Appendix A) and Compatibility Determinations (Appendix B) for more information. Such 

recreational activities not specifically addressed in this document may be allowed on refuge lands, if 

the Refuge Manager determines that they are appropriate and compatible. 

Predator Control: Although such an action is often justifiable, specific attainable objectives must be 

determined before conducting predator control. It has been noted, for example, that removal of 

coyotes (Canis latrans) often leads to an increase in other predator populations that can be even more 

detrimental to wildlife production (raccoons (Procyon lotor), mink (Neovison vison), etc.). If 

predator control is deemed necessary during the life of the CCP, the proper public process will be 

followed. Productivity of select key avian species will be monitored under the guidance of the I&M 

plan to assess whether the Refuge is serving as a source or sink for local avian populations, and if the 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-14 Chapter 2. Management Direction 

Refuge is not serving as a source, management options including manipulation of habitat conditions 

and predator control will be considered. 

2.4 Summary of Future Management 

Table 2-1 represents a conceptual future of the Refuge using best science to determine likely 

outcomes. A reliance on adaptive management is key to successfully incorporating the broad array of 

factors that will influence implementation of the plan. Numbers denoted in the table represent a range 

of possible futures and are not attached to specific ground locations unless indicated otherwise. 

Table 2-1. Summary of Future Management 

Management Theme Management Direction 

Top priority will be to improve the aquatic health of lakes and wetlands. 

Create a more developed and structured visitor experience with additional birding, fishing, and hunting opportunities. 

Initiate the development of a comprehensive riverine/wetland rehabilitation plan. 

Habitat Management 

Lacustrine (lakes) Major emphasis on carp population control for restoring aquatic health (see 

Invasive Species Control). 

Riverine Strategic approach beginning with most critical, foundational assessments and 

pilot studies and moving toward the creation of an integrated wetland/riverine 

rehabilitation plan sometime in the near future, most likely beyond the life of 

this CCP. Once carp control objectives are reached and successfully 

maintained (e.g., 100 pounds per acre in Malheur Lake), resource emphasis 

may expedite the development and implementation of the above-mentioned 

plan. Aquatic health inventory, monitoring and carp control will occur. 

Woody Riparian Maintain and enhance 1,000-1,500 acres. 

Palustrine Emergent (seasonallyflooded 

wet meadow) 

 Enhance and maintain 20,000-25,000 acres 

 An increase in overall meadow acreage (±2,000 acres) and enhanced 

diversity of meadow/marsh complexes 

 Increase management flexibility by utilizing State-and-Transition 

Model to address management issues with best available science 

(e.g., summer grazing) 

Palustrine Emergent (seasonally flooded 

marsh associated with wet meadow) 

Increased management flexibility to enhance and maintain 15,000-16,000 

acres. 

Increased blocking of carp movement and redband trout intrapment by 

installing fish screens. Increased inventory and monitoring of aquatic health. 

Palustrine Open Water/Emergent 

(semipermanently flooded Wetland 

Impoundment) 

Enhance and maintain 2,200-2,800 acres of wetland impoundments. 

Increased blocking of carp movement and redband trout intrapment by 

installing fish screens. Increased inventory, monitoring research and 

assessment of aquatic health. 

Dry Meadow Enhance and maintain 4,500-5,500 acres: 

 Idle strategy dominates 

 Treatment frequency determined by monitoring of structure and 

vigor 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-15 

Management Theme Management Direction 

Salt Desert Scrub Maintain 40,000 acres. 

Sagebrush Lowland Maintain 4,300-4,500 acres. 

Sagebrush Steppe Maintain 14,000-15,000 acres: 

 Continue to eradicate invasive western juniper 

 Investigate the diversification of crested wheatgrass seedings. 

 Implement projects to add native plant diversity in crested 

wheatgrass seedings 

 Conduct experimental burns and other treatments (shrub control, 

etc.) to increase desirable understory cover in pertinent plant 

communities 

Dune Protect and maintain 6,300 acres with minimal management. 

Playa Protect and maintain 29,000 acres with minimal management. 

Cropland Increase row crop up to 1,000 acres. 

Cold and Hot Springs Maintain and enhance 236 acres. Increased inventory, monitoring research and 

assessment of aquatic health. 

Cliffs, Rimrocks, and Outcropping Maintain current acres. 

Special Protection Areas 

RNA and WSA Management Continue to manage as closed areas except for research and/or maintenance 

activities and docent- or staff-led tours. 

Wilderness Study Area Adjust Harney Lake WSA proposal to reflect 2010 wilderness inventory of 

31,157 acres. 

Refuge Boundary and Management Area 

Lands West of State Highway 205 and 

East of Krumbo Reservoir 

With BLM, explore opportunities to coordinate land management and enhance 

conservation in the Refuge’s Boundary Unit adjacent to BLM land, 

considering mechanisms such as cooperative management agreements and/or 

interchange of lands. Because the identified land area is a thin sliver of uneven 

ground between road and rimrock, and is unmarked and unfenced in most 

areas, it is difficult to manage under Refuge regulations. No difference in 

public use opportunity is envisioned. 

Invasive Species Control 

Carp Control Following assessments (see Goal 13), use appropriate techniques to 

aggressively control carp that can be applied to the diversity of aquatic habitats 

throughout the watershed. IPM strategies to control carp will include, but not 

be limited to, the application of piscicide, chemo-attractants, chemo-repellants, 

barriers, commercial harvest, angling, and water manipulation. In-stream 

structures (i.e., traps, screens, and fish wheels) that address native fish passage 

issues and the prohibition of carp movement through the system will also be 

considered. 

Invasive Species Control Increase monitoring and control for undesirable species, determine efficacy of 

treatments, and map areas at risk of exceeding threshold levels (see Goals 1-4 

for thresholds). 

Wildland Fire and Hazardous Fuels Management 

Biological Fuels Treatment  Use wildfire, prescribed fire, and mechanical treatment to manage 

biological fuels. 

 Continue to coordinate with the Burns Interagency Fire Zone. 

 Use chemical treatment to manage biological fuels. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-16 Chapter 2. Management Direction 

Management Theme Management Direction 

Wildland Fire Prevention and Response  Continue to coordinate with the Burns Interagency Fire Zone. 

 Where required, suppress wildfires, but consider objective 

opportunities for resource benefits and ability to safely manage fires. 

Hazardous Fuels  Use wildfire, prescribed fire, and mechanical treatment to manage 

hazardous fuels 

 Continue to coordinate with Burns Interagency Fire Zone 

 Use chemical treatment to manage hazardous fuels. 

Water Resources 

Watersheds  Continue to improve aquatic health in Silvies, Double-O, and Blitzen 

River watersheds by working with public and private partners 

 Work with public and private partners to protect spring migratory 

habitat (e.g., snow goose) in the Harney Basin via available land 

protection and stewardship programs 

Water Rights  Prove up on new winter water rights for the Blitzen River and 

tributaries 

 Finalize transfer of existing Blitzen River water rights to wildlife 

refuge management 

 Establish a groundwater right for the springs in the Double-O Unit. 

Water Delivery System Assessment and 

Feasibility 

Complete a full assessment of water control structures of water delivery system 

for water management efficacy. 

Inventory, Monitoring, Scientific Assessments, and Research 

Inventory and Monitoring  Inventory, monitor, and assess fish, wildlife, and vegetation to guide 

annual management actions 

 Re-establish a program-wide I&M plan around focal species and 

national monitoring efforts 

 Design a geodatabase for inventory and monitoring surveys 

conducted 

Research Focus on aquatic health and wetland/terrestrial habitat management. Initiate 

development of the river/wetland rehabilitation plan. Systematically conduct 

research to further aquatic health and carp control on the refuge. 

Assessment  Conduct aquatic health assessments on focal areas of the refuge 

 Assess carp population dynamics and migratory patterns. 

 Conduct wetland and terrestrial habitat assessments. 

 Assess habitat response to management actions primarily from carp 

control and water connectivity through the watershed 

 Assess water delivery system to determine water control structures 

that deter carp passage 

 Commence assessment of riverine habitat characteristics that will 

influence future restoration efforts 

Welcome and Orientation 

Welcome and Orientation Panels Maintain and update 4 existing outdoor welcome and orientation panels at: 

 Narrows Pull-out 

 Refuge Headquarters 

 Buena Vista 

 Frenchglen 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-17 

Management Theme Management Direction 

 Krumbo Reservoir 

 P Ranch 

 Harney Lake 

 Double-O 

Developed Sites with Visitor Amenities 

(i.e., picnic tables, shelters, vault toilets) 

Maintain five developed sites at: 

 Refuge Headquarters 

 Buena Vista 

 Krumbo Reservoir 

 P Ranch 

Provide all or some described developed sites as shown: 

Complete Developed Sites 

 Double-O 

Vault Toilets Only 

 Sod House Ranch 

Picnic Tables and Shelters Only 

 Refuge Headquarters (ADA-compliant) 

 Buena Vista Overlook 

 P Ranch 

Visitor Contact  Maintain year-round visitor contact station/gift shop at Refuge 

Headquarters 

 Build an enlarged visitor contact station and gift shop at Refuge 

Headquarters 

 Enhance George Benson Memorial Museum to meet ADA standards 

and to meet preservation standards to protect specimens. 

 Establish a seasonal contact station at P Ranch, and provide staffing 

as available with volunteers during spring, summer, and fall 

 Continue to consider/participate in discussions for an interagency 

visitor facility off-refuge 

Wildlife Observation and Wildlife/Nature Photography 

Docent-led Tours Provide docent-led tours in conjunction with the annual John Scharff 

Migratory Bird Festival. 

Provide advertised docent-led tours, approximately monthly, to a variety of 

audiences at different locations on the Refuge, including kayaking and 

canoeing tours on Malheur Lake. 

Auto Tour Route and Vehicular Access Maintain refuge public roads on: 

 42-mile Blitzen Valley auto tour route (Center Patrol Road) yearround 

 Seasonal access to Krumbo Reservoir from fourth Saturday of April 

through October 31 

Provide year-round vehicle access and vehicle pull-offs when road conditions 

are not hazardous at: 

 Boat Landing Road 

 Krumbo Reservoir 

 East Canal Road to the confluence of Bridge Creek 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-18 Chapter 2. Management Direction 

Management Theme Management Direction 

Participate in Basin and Range Birding Trail on-refuge with Harney County 

Chamber of Commerce and other partners. 

Trails (foot, bicycle) 

Trails (foot, bicycle) 

Maintain 10 trails at: 

 Headquarters Overlook 

 Buena Vista Overlook 

 Crane Pond Overlook 

 Krumbo Reservoir 

 Benson Pond Trail 

 Bridge Creek Trail 

 River Trail 

 East Canal Trail 

 Barnyard Springs Footpath 

 Desert Trail 

Additional trails at: 

Spur Trail 

 Frenchglen to Barnyard Springs Footpath 

Loop Trails (≥ 1 mile) 

 Refuge Headquarters along the Blitzen River and Display Pond 

(Headquarters Loop Trail) 

 Connect Bridge Creek Trail, River Trail, and East Canal Trail with 

pedestrian crossings and boardwalks. 

ADA-compliant Trails 

 Sections of Headquarters Loop Trail 

 Sod House Ranch (upgrade to ADA standards) 

 Benson Pond 

 P Ranch 

Enhance the Desert Trail by: 

 Proposing alternative route 

 Posting appropriate Desert Trail signs 

Viewing Overlooks Maintain and enhance two viewing overlooks at: 

 Refuge Headquarters 

 Buena Vista (upgrade to ADA standards) 

Develop an ADA-compliant viewing overlook at Krumbo Reservoir. 

Elevated Viewing Platforms Develop elevated viewing platforms at: 

 Historic CCC lookout tower at Refuge Headquarters 

 Malheur Lake at airboat launch site 

 Harney Lake 

 Double-O 

Photography Blinds  Restore historic Audubon photography blind at Refuge Headquarters 

Display Pond 

 Build two ADA-compliant, first-come/first-served permanent 

photography blinds at appropriate sites to view wildlife 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-19 

Management Theme Management Direction 

Site Management for Rare and Incidental 

Passerines and Historic Landscapes 

Prepare and implement site plans, to manage vegetation and maintain trees and 

shrubs at: 

 Refuge Headquarters 

 Sod House Ranch 

 Benson Pond 

 Witzel Field 

 Barnyard Springs 

 P Ranch 

Interpretation 

Primary Interpretive Themes Maintain existing interpretive programs to include natural and historic 

resources themes. Include: 

 Historical and current significance of the Refuge to breeding and 

migratory birds 

 Precontact and post-contact history 

 CCC work in the area 

 Wilderness 

 Geology 

 Aquatic health 

 Water’s importance, hydrology, and movement through the 

landscape 

 Refuge’s primary management objectives, and management 

challenges, and methods for wildlife, habitat, and other resources 

 Role and importance of the National Wildlife Refuge System 

 An understanding of visitors’ relationships to, and impacts on, 

natural and historic resources to become stewards of the land 

Modern and Traditional Media Maintain and update existing modern and traditional media as shown: 

 Website and brochures 

Make greater use of modern media (CDs, podcasts, social media, etc.). 

Panel Locations Maintain five sites with outdoor interpretive panels at: 

 Narrows Pull-out 

 Refuge Headquarters 

 Sod House Ranch 

 Buena Vista Overlook 

 P Ranch 

Provide indoor interpretive panels in the George Benson Memorial Museum to 

connect visitors with places and the resources the Refuge protects 

Provide additional outdoor interpretive panels at key field sites to appropriately 

implement key interpretive themes focusing on improving aquatic health and 

associated management activities, and weaving historic events with ecology of 

the Refuge

Special Events Participate in four local events, on- and off-refuge: 

 John Scharff Migratory Bird Festival (April) 

 Free Fishing Day (June) 

 Invasive Carp Awareness (August) 

 Harney County Fair (September) 

Provide three additional local events, on- and off-refuge, with docent-led 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-20 Chapter 2. Management Direction 

Management Theme Management Direction 

activities, booths, educational materials, etc. for: 

 International Migratory Bird Day (May) 

 Ranching Heritage Day combined with Invasive Carp Awareness 

(August) 

 National Wildlife Refuge Week (October) 

Presentations Provide public presentations by refuge staff and volunteers to a variety of 

visiting groups upon request. 

Advertise through modern and traditional media that public presentations by 

refuge staff and volunteers are available, approximately monthly, for visiting 

groups 

Coordinate additional public presentations with other environmental education 

partners 

Environmental Education 

Environmental Education Program Reach approximately 500 students, on- and off-refuge, using refuge staff and 

volunteers with: 

 Local first and third graders 

 John Scharff Migratory Bird Festival Fun Fair and “Conservation 

through the Arts” 

 Free Fishing Day 

 Other environmental education programs upon request 

When refuge staff and volunteers are available, use and implement existing 

curricula, and national and regional environmental education modules, such as 

the Junior Duck Stamp Program, International Migratory Bird Day, etc., onand off-refuge 

Coordinate and assist with local environmental education initiatives upon 

request 

Great Basin Society/Malheur Field Station Review and revise as needed the cooperative Agreement between the Great 

Basin Society/Malheur Field Station and the Refuge. 

Environmental Education Facilities  Build an outdoor shelter at Refuge Headquarters where 

environmental education activities can be conducted during 

inclement weather 

 Provide an outdoor learning area at Refuge Headquarters for existing

environmental education programs, and efforts with other 

environmental education initiatives 

Hunting 

Upland Game Maintain upland game hunting at: 

Malheur Lake Hunt Unit 

 26,200 acres on north side of Malheur Lake; Open pheasant season 

same as State 

 Enhance by improving Saddle Butte access on the north side of 

Malheur Lake 

Buena Vista Hunt Unit 

 36,000 acres 

 Extend season opener from the fourth Saturday of October to the end 

of State pheasant season 

Boundary Hunt Unit 

 2,600 acres west of State Highway 205 and in Krumbo Creek area; 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-21 

Management Theme Management Direction 

Open to deer and pronghorn west of State Highway 205 and south of 

Foster Flat Road; Open to upland gamebirds, rabbit, and coyote in all 

Unit areas, according to State regulations. 

 Include Krumbo Creek area for pronghorn and deer. 

Waterfowl Malheur Lake Hunt Unit 

 26,200 acres on north side of Malheur Lake; Open waterfowl season 

same as State; Nonmotorized or electric boats permitted 

 Promote a youth hunt opportunity on State-designated weekend in 

the northern Malheur Lake Hunt Unit 

 Enhance by improving Saddle Butte access on the north side of 

Malheur Lake 

 Expand allowable boundary to include south-central area of Malheur 

Lake with special date regulations of fourth Saturday of October 

through end of State waterfowl season 

 Open new boat access for nonmotorized or electric boats on Malheur 

Lake at the airboat launch site near Refuge Headquarters with 

expanded parking area and an ADA-compliant boat launch with 

special date regulations of fourth Saturday of October through end of 

State waterfowl season 

 At low water (<10,000 acres), close Malheur Lake to waterfowl 

hunting 

Buena Vista Hunt Unit 

 Open hunt unit to waterfowl hunting with special date regulations of 

fourth Saturday of October through end of State pheasant season; 

boats will not be permitted 

 Support reasonable waterfowl hunting opportunities that comply 

with the ADA in partnerships with potential users 

Boundary Hunt Unit 

 2,600 acres west of State Highway 205 and in Krumbo Creek area; 

Open waterfowl season same as State 

Fishing 

Stream Fisheries  Maintain fisheries at: 

South Fishing Loop 

Upper Blitzen River, southern portion of East Canal, and tributaries 

open year-round to walk-in access; redband trout with special 

regulations 

 Allow drive-in access on East Canal Road to the confluence of 

Bridge Creek with access to Granddad Reservoir (BLM), except 

when road conditions are hazardous 

 Build a new pedestrian crossing at Bridge Creek to access a portion 

of the fishable area west of East Canal to its confluence with the 

Blitzen River 

 Open new seasonal bank fishing opportunity from Sodhouse Lane to 

the bridge on the Boat Landing Road, part of the Headquarters Loop 

Trail, from August 1 through September 15 

 Develop five panels with maps, brochures, regulations, and 

additional information at main entrance points 

Reservoir Fishery  Maintain fisheries at: 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-22 Chapter 2. Management Direction 

Management Theme Management Direction 

Krumbo Reservoir 

Open fourth Saturday of April through October 31 to drive-in access 

and to nonmotorized or electric boats; stocked with triploid rainbow 

trout. 

 Allow year-round, drive-in access, except when road conditions are 

hazardous. 

 Allow year-round boating access (nonmotorized and electric boats), 

except when reservoir begins to ice over. 

 Conduct genetic introgression study on redband trout in coordination 

with ODFW. 

 Develop one panel with maps, brochures, regulations, and additional 

information at main parking area. 

Volunteer Program and Partnerships 

Volunteer Program Maintain volunteer program: 

 Runs eight months of the year (March-October) 

 Over 5,000 hours are generated, with at least a 50% return rate 

Hire a full-time volunteer coordinator position to: 

 Increase recruitment, retention, and return rate of volunteers 

 Expand the program to best use facilities and refuge staff 

 Assist with building partnerships and increase public outreach 

Law Enforcement 

Regulations Continue to post regulations at key welcome and orientation sites, as well as 

locations where fishing and hunting uses predominate (Krumbo Reservoir, 

Malheur Lake, Buena Vista Unit, etc.). 

Improve all posting of regulations at key welcome and orientation sites, as well 

as locations where fishing and hunting uses predominate. 

Staffing/Field Presence Maintain current law enforcement staffing. Continue to emphasize 

information, education, and friendly presence in the field during key seasons. 

Cooperative Assistance Continue cooperative relationships and agreements with Oregon State Police 

and Harney County Sheriff’s office. 

Trespass Cattle Continue to fence in certain refuge boundary areas to minimize trespass cattle. 

Improve all fencing in certain refuge boundary areas to minimize trespass 

cattle. 

Transportation 

Public Roads Maintain current refuge public roads at: 

 42-mile Blitzen Valley auto tour route (Center Patrol Road) 

 Krumbo Reservoir 

 P Lane 

Enhance: 

 42-mile Blitzen Valley auto tour route (Center Patrol Road) 

 P Lane 

 Boat Landing Road 

 East Canal Road to the confluence of Bridge Creek 

 Double-O Road 

 Saddle Butte hunt access 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-23 

Management Theme Management Direction 

Pull-offs Develop additional vehicle pull-offs (1-2 vehicle lengths) at: 

 Boat Landing Road 

 42-mile Blitzen Valley auto tour route (Center Patrol Road) 

 Krumbo Lane 

 East Canal Road to the confluence of Bridge Creek 

Parking Areas Develop additional parking areas at: 

 Bridge on Boat Landing Road 

 Airboat launch site (to ADA standards) 

 East Canal at the confluence of Bridge Creek 

Cultural Resources 

Cultural Resource Management and 

Protection 

 Prohibit access to sensitive areas. Continue law enforcement patrols 

to monitor and protect cultural resources. Continue cultural resource 

surveys in advance of program projects where soil disturbance may 

occur. Coordinate with the Burns Paiute Tribe on cultural resource 

issues. No cultural resources management plans. 

 Develop and implement step down cultural resource management 

plans for historic sites and archaeological areas 

 Increase monitoring, inventory, and protection of cultural resources 

Opportunities for Native American Uses Expand opportunities for Native American uses by increasing the type and 

quantity of species of native plants used for traditional uses 

Cultural Resource Interpretation and 

Education 

 Expand interpretation to improve awareness and appreciation of 

refuge cultural resources 

 Develop and implement site specific interpretive plans for Sod 

House Ranch, P Ranch, Benson Pond and the Double-O Ranch 

Paleontological Resources 

Paleontological Resource Management 

and Protection 

Prohibit access to sensitive areas. Continue law enforcement patrols to monitor 

and protect paleontological resources. No paleontological resources 

management plan. 

Develop and implement a paleontological resources management plan. 

Paleontological Resource Interpretation 

and Education 

Provide interpretation to instill appreciation for the Refuge’s paleontological 

resources and the valuable information they can yield about past environments. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-24 Chapter 2. Management Direction 

2.5 Goals, Objectives, and Strategies 

Goals and objectives are the unifying elements of successful refuge management. They identify and 

focus management priorities, resolve issues, and link to refuge purposes, Service policy, and the 

Refuge System mission. 

A CCP describes management actions that help bring a refuge closer to its vision. A vision broadly 

reflects the refuge purposes, the Refuge System mission and goals, other statutory requirements, and 

larger-scale plans as appropriate. Goals then define general targets in support of the vision, followed 

by objectives that direct effort into incremental and measurable steps toward achieving those goals. 

Finally, strategies identify specific tools and actions to accomplish objectives (USFWS 2002). 

In the development of this CCP, the Service also prepared an EIS. The EIS evaluates alternative sets 

of management actions derived from a variety of management goals, objectives, and implementation 

strategies. 

The goals for Malheur Refuge over the next 15 years under the CCP are presented on the following 

pages. Each goal is followed by the objectives that pertain to that goal. 

The goal order does not imply any priority in this CCP. Priorities are described in the narrative above 

and further developed in Appendix C. 

Readers, please note the following: 

 Below each objective statement are the management strategies that could be employed in 

order to accomplish it. 

 Ranges in habitat acres capture the geographical extent of habitat types and not the quality of 

habitats, which is influenced by varying climatic conditions (e.g., low to high water years). 

Such variations do not typically cause dramatic shifts between habitats but do affect the plant 

communities found within the habitat types. Malheur Lake is an exception because widely 

fluctuating water levels do cause dramatic shifts in habitat types (i.e., salt desert scrub to 

lacustrine). 

Goal 1. Enhance aquatic health and habitat conditions. 

GOAL 1. Enhance aquatic health and habitat conditions essential to the 

conservation of the flora and fauna that depend on Malheur Lake and 

associated water bodies. 

Objective 1a. Lacustrine (Malheur and Mud lakes) 

Throughout the life of the CCP, enhance and maintain 500 to 110,000 acres for the health of the lake 

basin and associated terrestrial successional cycles of the lake systems on Malheur Refuge. American 

white pelican (Pelecanus erythrorhynchos), northern shoveler (Anas clypeata), canvasback (Aythya 

valisineria), and tui chub (Gila bicolor) will be used to evaluate habitat conditions that indicate 

ecosystem health for this unique marsh system. Desirable characteristics of Malheur and Mud lakes 

include: 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-25 

 Emergent vegetation is mainly hardstem bulrush (Scirpus acuta), bur-reed (Sparganium 

eurycarpum), cattail (Typha spp.), and Baltic rush (Juncus balticus) and will vary in abundance 

depending on lake level, topography, water chemistry, wind/wave action, etc. The western portion 

of Malheur Lake (west of Graves Point) has the greatest opportunity to achieve hemi-marsh 

conditions (approximately half marsh and half open water). 

 >40% cover of submergents (e.g., sago pondweed (Stuckenia 

pectinata)), associated with low turbid water conditions and 

maximum depth distribution in areas protected from extensive 

wave action. 

 Russian olive (Elaeagnus angustifolia L.) and salt cedar 

(Tamarix ramosissima) will be absent around lakeshore or in 

adjacent habitats. 

 Less than 100 pounds of carp per acre. This overall threshold 

is influenced by a multitude of factors (water quality, response of aquatic life, water depth, etc.) 

and may be adjusted as monitoring and inventory activities continue over time (Bajer et al. 2009). 

 Provide habitat conducive to supporting viable populations of fishes such as redband trout, 

bridgelip suckers (Catostomus columbianus), and tui chubs. 

 Diverse invertebrate community, including crustaceans, midges, aquatic worms, dragonflies, snails, 

mussels and water beetles. 

 <10% cover of established noxious weed species (e.g., perennial pepperweed) per designated 

management area. 

Strategies Applied to Achieve Objective

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Continue to use opportunistic approaches (i.e., the use of piscicide rotenone at low lake levels) to 

rapidly lower carp populations. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, lake levels, and habitat/migratory 

bird responses in lakes. 

Develop a model to predict habitat response based upon changes in biotic and abiotic factors in the 

lakes. 

Investigate and implement aggressive control strategies appropriate to the Refuge, based on assessment 

and research findings. Control strategies could include, but not be limited to, the application of 

piscicide, chemo-attractants, chemo-repellants, barriers, commercial harvest, angling, and water 

manipulation. 

Consider the need for continued amendments to and the construction of additional strategically placed 

in-stream structures (i.e., traps, screens, and fish wheels) that address native fish passage issues and the 

prohibition of carp movement through the system. 

Develop partnerships to address water quality, vegetation, and carp control issues within the Harney 

Basin. 

Enhance emergent vegetation within the lake system via carp exclosures, wind breaks, etc. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-26 Chapter 2. Management Direction 

Rationale: 

Common carp were introduced into the Silvies River watershed in the early 1920s. The Silvies River 

has intermittent connectivity with Malheur Lake. During times of connectivity, carp and other fish 

species have free passage to the lake. Prior to carp infestation, a diversity of submerged and emergent 

vegetation was abundant. By 1952, carp activity had created such turbidity that desirable submerged 

aquatic plants were nearly eliminated. In 1955 the carp population was controlled with rotenone, a fish 

toxicant or piscicide. It is estimated that 1.5 million carp, averaging 20 to 25 inches in length, were 

killed. The beneficial effect was demonstrated the next year, when sago pondweed showed an 

immediate response to improved growing conditions and covered 15,000 acres. Intensive efforts to 

control carp using rotenone continued in subsequent decades and realized similarly positive, yet 

fleeting, responses. 

Over time, however, responses to carp control became less dramatic as the lake experienced a 

significant reduction in emergent vegetation and a dramatic overall decrease in bird use. A combination 

of prolonged negative carp impacts, high water depths, and associated ice shearing during the 1980s, 

followed by severe drought cycles, and possible changes in water chemistry are believed to have led to 

the lake’s dramatically declining habitat conditions. Although emergent wetlands have persisted on the 

southern side and isolated patches remain primarily on the western half of the lake (Bat House Island, 

etc.), many large areas show little to no evidence of recovery. 

Bajer et al. (2009) examined changing carp densities in a recently restored 300-hectare (ha) 

Midwestern lake, and found that although a carp biomass of 30 kg/ha (approximately 30 lb/acre) had 

no discernible effects on vegetative cover (which exceeded 90%) or waterfowl (which exceeded 

150,000 individuals during fall censuses), the increase in carp biomass to 100 kg/ha (100 lb/acre) was 

associated with a 50% decrease in both vegetative cover and waterfowl. A further increase in carp 

biomass to over 250 kg/ha (250 lb/acre) coincided with a decrease in the vegetative cover to 17% of the 

lake’s surface and a decline in waterfowl use to 10% of its value when carp were absent. Overall, the 

increase in carp biomass could explain 93% of the variation in waterfowl abundance decline during the 

4 years studied. Although the lake studied is significantly smaller than Malheur Lake, the threshold 

value is the only known threshold from a field study correlating carp biomass, vegetative response, and 

waterfowl use. 

The selection of White pelican, Northern shoveler, Canvasback, and Tui chub as focal species for this 

goal define the mix of open water, island, hemi-marsh, and submergent plant habitat conditions 

essential to restoring the diversity and abundance of wildlife that historically used this area. Pelicans 

used open water segments for foraging and low-lying islands for breeding. Open water areas are also 

used by canvasbacks for loafing during migration and submergent beds such as sago pondweed for 

foraging. Northern shoveler depicts the interspersion of open shallow water with stands of submernent 

and emergent vegetation for foraging as well as associated grasslands and rangelands for nesting 

needed by a variety of wildlife species. This same general habitat type is used by Tui chub for 

spawning and foraging with a heavier vegetation component. The chub is an essential foodbase for 

waterbirds, one of the primary guilds of birds intended to be preserved in the lake’s acquisition. 

It is not known at this time if historic levels of hemi-marsh and submergent plant communities can be 

attained if carp control thresholds are successfully reached and maintained. Through the life of this 

CCP, a comprehensive, science-based approach to carp control will be initiated to reduce the carp 

population to the targeted threshold of 100 pounds of carp per acre. Lake rehabilitation efforts will 

involve the assessment of current water quality and habitat conditions, site potential, and vegetative 

trends, and these efforts will seek to increase our understanding of common carp’s biotic potential, 

carrying capacity, density-dependent factors, distribution, and susceptibilities within the lake and 

connected aquatic systems. The understanding gained through these efforts will assist refuge staff and 

partners in increasing the productivity of Malheur Lake, once a significant resource in the Pacific 

Flyway. Increased partnerships with subject-matter experts and funding agencies will be the key to this 

effort’s success. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-27 

Goal 2. Protect, maintain, and rehabilitate riverine habitats.

GOAL 2. Monitor, protect, maintain, and/or rehabilitate riverine habitats to 

conditions essential for the conservation of native fish and wildlife species. 

Objective 2a. Riverine (rivers and associated tributaries terminating on the Refuge): Develop an 

Integrated Wetland/River Rehabilitation Plan and Associated NEPA Document with Partners 

Throughout the life of the CCP, necessary information will 

be gathered to develop a comprehensive rehabilitation plan 

for targeted river systems2 and floodplain habitats. 

Information concerning biological, physical, and 

management attributes of these habitats will be gathered 

through specific assessments, pilot projects, and modeling 

(see Objectives 13b and 13c). This information will 

contribute to developing a decision support system that will 

allow comparisons among various alternatives in achieving 

management objectives and establish tools necessary to 

support development of a comprehensive riverine/wetland 

rehabilitation plan. 

Pending the above approach for gaining understanding of pertinent riverine systems, desirable 

characteristics of riverine habitats for redband trout, other fish species, and native wildlife within the 

Refuge include: 

 Water quality (e.g., maximum water temperature of <20°C, dissolved oxygen, turbidity, etc. 

within Oregon standards or exhibit no additional degradation attributable to refuge management 

actions) 

 Native fish habitat (i.e., redband trout): stream shading (>80%); bank cover (no bare soil); bank 

stability (<5% eroding); channel stability (<1% channel movement); fine sediment <2 mm 

(<10%); cover (>50% of channel [Zoellick and Cade 2006]); percent late summer pools (25%-

75%); and mean annual base flow (>45% of annual flow) (Raleigh et al. 1984) 

 Connectivity among habitats (i.e., unimpeded passage within channels, floodplain regularly 

flooded, continuous site-appropriate vegetation along riparian zones) 

 Channel form and substrate composition consistent with geomorphic and hydrologic setting 

Strategies Applied to Achieve Objective

Initiate process necessary to complete wetland/riverine strategic plan and associated NEPA 

documentation. 

Rationale: 

Using information and research gleaned from assessments and pilot projects (see Objectives 13b and 

13c), an integrated wetland/riverine strategic plan will be pursued to consider if rehabilitation is needed 

and various alternatives for river restoration; weigh the biological, cultural, economic, and social 

benefits and costs; and determine a future course of action supporting desired ecological outcomes. A 

three-tiered process will be required to develop the management plan: (1) identification of management 

objectives and assessment of hydrologic, geomorphic, and biologic features associated with target 

riverine systems (e.g., Blitzen River) and associated wetlands; (2) implementation of riverine pilot 

projects to evaluate biological and physical responses to management action and assess management 

objectives; and (3) development of a decision support system to support an integrated wetland/river 

rehabilitation plan and associated NEPA process (and resulting documentation) with partners. 

 

2

 Refuge riverine systems include the Blitzen, Silver Creek, and Silvies watersheds. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-28 Chapter 2. Management Direction 

Redband trout is designated as the focal species for riverine habitat. Redband need a stable free-flowing 

stream with a mix of channels, riffles, and pools as well as shading along various river reaches to 

support the year-round requirements of this species as well as a variety of other native fish and wildlife. 

This will provide the cornerstone for the three-tiered assessment process used in development of a 

wetland/river rehabilitation plan. 

The management direction was formulated to emphasize carp control while moving forward 

strategically with the riverine strategy. It follows a three-tiered process leading toward a strategic plan 

but allows for flexibility in the amount of progress that is made depending on the availability of 

resources and success related to carp control on the Refuge. It offers the advantage of using other 

available resources if they become available through agency funding, and partnerships. Another 

advantage of the management direction is that a greater understanding of the impacts on adjacent 

floodplain habitats will be gained over a longer study period, enabling the development of site-specific 

knowledge of how riverine, wet meadow, and marsh communities would respond to hydrologic system 

changes. The management direction will use a science-based process to inform decisions regarding the 

river to determine existing biological conditions and site capability. The Refuge will work with the 

Ecology Work Group and other stakeholders within the first 5 years of the CCP to prioritize and refine a 

set of priority questions/objectives (see Objectives 13b and 13c), creating a foundation to construct a 

comprehensive riverine strategy. Based on these questions/objectives the Refuge will take advantage of 

new resource opportunities to implement appropriate science-based steps to continue the advancement 

of a comprehensive river strategy. 

Objective 2b. Riverine 

Throughout the life of the CCP, enhance and maintain the aquatic health of the riverine systems of 

Malheur Refuge for the benefit of redband trout and other priority resource species by doing inventory 

and monitoring of biotic and abiotic factors and conducting research pertaining to carp control. 

Desired characteristics of Riverine include: 

 Native and localized fish populations thriving and invasive carp population controlled 

 Screened diversions and effluents pertaining to the river water delivery system 

 Diverse invertebrate community, including crustaceans, midges, aquatic worms, dragonflies, 

snails, mussels and water beetles. 

Strategies Applied to Achieve Objective

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, water levels, and 

habitat/migratory bird responses in this habitat type. 

Rationale: 

Yellow warblers, willow flycatchers, and associated benefitting species require dense thickets of 

deciduous riparian shrubs dominated by various willow species and occasionally interspersed with 

other shrubs and hardwood trees for feeding, reproduction, and migration. With these species almost 

entirely restricted to river corridors in this arid region the condition of this habitat is vitally important. 

The riverine system of the Malheur Refuge is an integral part of the success or failure of many habitat 

types. For the life of this CCP, the focus will be on collecting data of biotic and abiotic parameters and 

finding ways to control carp. The recent addition of fish passage ladders, traps, and screens on the 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-29 

Blitzen River have decreased thousand of acres that were available for spawning and juvenile rearing 

of common carp. In addition, this has decreased the number of redband trout and other species from 

entrainment in the irrigation system. The Silvies and Silver River health will be pursued by 

collaborating with landowners and other partners to focus on carp control. 

Goal 3. Protect, maintain, and rehabilitate riparian habitats. 

GOAL 3. Protect, maintain, and rehabilitate riparian habitats to conditions 

essential for the conservation of wildlife species.

Objective 3a. Woody Riparian 

Throughout the life of the CCP, enhance and maintain 1,000 to 1,500 acres of riparian shrub habitat on 

Malheur Refuge for the benefit of migratory land birds (e.g., 

yellow warbler (Dendroica petechia), willow flycatcher 

(Empidonax traillii)) and other wildlife. Desired characteristics of 

riparian shrub include: 

 40%-80% canopy cover of native shrub species (e.g., coyote 

willow (Salix exigua Nutt.), hawthorn (Crataegus L.), redosier 

dogwood (Cornus sericea L.), goose berry (Ribes hirtellum), 

Wood’s rose (Rosa woodsii)) that are >3 feet tall in areas 

associated with flood irrigation or shallow water table 

 >10% cover of understory native herbaceous species (e.g., sedges, rushes, spike bentgrass (Agrostis 

exarata), cinquefoil (Potentilla L.), false lupine (Thermopsis villosa))<5% cover of reed 

canarygrass and noxious species 

Strategies Applied to Achieve Objective

Improve native plant cover and distribution by active planting or seeding appropriate native species. 

Exclude livestock from riparian habitats adjacent to meadow areas receiving grazing treatments (e.g., 

temporary or permanent fencing). 

Promote riparian shrub health (e.g., prescribed fire and mechanical removals to stimulate new growth 

and suckering), especially in decadent stands. 

Permanently exclude grazing from streamside corridors (Appendix K). 

Manipulate soil moisture in riparian areas outside of the naturally occurring floodplain (e.g., flood 

irrigation associated with meadow management). 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale: 

Yellow warblers, willow flycatchers, and associated benefitting species require dense thickets of 

deciduous riparian shrubs for feeding and/or reproduction. This objective and associated strategies seek 

to maximize shrub density while managing for periodic disturbance to reinvigorate woody riparian 

stands. The greatest negative impact to riparian shrub habitat over the last century has been past 

grazing practices and the purposeful eradication of riparian habitats throughout the Blitzen Valley. In 

recent years, livestock grazing and other impacts to woody riparian communities have been 

significantly reduced. The result has been an increase in both the quantity and quality of this habitat 

type on the Refuge. In order to continue this upward trend, it will be necessary to protect these and 

additional potential woody riparian areas from unnecessary impacts. In target areas that are either 

disconnected from the floodplain, or lie outside of floodplain areas, supplemental soil moisture via 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-30 Chapter 2. Management Direction 

flood irrigation will be used to sustain existing acres of this habitat and promote its expansion. Strategic 

planting will be used to increase shrub species diversity, particularly along waterways, and may include 

native shrubs such as various willows (e.g., beak, Drummond’s, Geyer, Lemmon’s Pacific, and 

yellow), black hawthorn, chokecherry, golden currant, Lewis’ mock orange, redosier dogwood, 

Saskatoon serviceberry, silver buffaloberry, and water birch. Prescribed fire and mowing treatments 

will be infrequent and balanced by the need for older stands of dense, undisturbed willow/shrub areas 

according to focal species needs and designated acreages. 

The vast majority of this habitat is located in the southern Blitzen Valley and extends northward along 

the Blitzen River and associated waterways and adjacent to impoundments. This habitat is not prolific 

in the Double-O Unit due to prevailing soil conditions (i.e., alkalinity) and only occurs there in isolated 

areas. 

Goal 4. Enhance, protect, and maintain a diversity of aquatic and terrestrial wildlife species.

GOAL 4. Enhance, protect, and/or maintain primary habitats essential to 

the conservation of a diversity of aquatic and terrestrial wildlife species. 

Objective 4a. Palustrine Emergent (seasonally flooded wet meadow) 

Throughout the life of the CCP, enhance and maintain 22,000 

to 27,000 acres of moist/wet meadow habitat on Malheur 

Refuge for the benefit of migratory birds (e.g., bobolink 

(Dolichonyx oryzivorus), sandhill crane, cinnamon teal (Anas 

cyanoptera)), and a diverse assemblage of other wildlife (e.g., 

Columbia spotted frog (Rana luteiventris)). Desired 

characteristics of moist/wet meadow habitat include: 

 Irrigation depths ranging from 0 inches 

(subirrigation) to 5 inches of standing water 

 >75% cover of perennial grasses, rushes, and sedges 

 15%-20% cover of forbs such as lupine, clover, and 

cinquefoils 

 <20% cover of reed canarygrass 

 <5% cover of noxious weeds (e.g., perennial pepperweed and Canada thistle) 

 Grass height of treated acres <6 inches by October 1 

 Maintain site vigor (i.e., prevent excessive litter accumulation from hindering diversity and 

expression of plant species) 

 >50% of stems in a vertical or semivertical position for nesting waterfowl and other wildlife 

 No willows 

 Intake and effluent water screened or manipulated to stop influx of carp during spawning and 

juvenile rearing 

Strategies Applied to Achieve Objective

Maintain/enhance management units within this habitat type through the use of prescribed fire, haying, 

rake-bunch grazing, and rest from defoliation. 

Maintain/enhance management units within this habitat type through the use of active successional 

vegetation management (e.g., seeding, disking, grazing, grain farming, etc.). 

Use tolerance thresholds specific to each plant community as determined through the Malheur Refuge 

State-and-Transition Model (Appendix L) to influence management prescriptions to meet annual and 

long-term wet meadow habitat objectives. 

Use both winter and summer water rights in flood irrigation. Commencement and duration will depend 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-31 

on site-specific objectives. 

Modify dikes, ditches, and other infrastructure as needed to reclaim acres lost to cattail encroachment 

(e.g., Northwest Big Sagebrush field). 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, water levels, and 

habitat/migratory bird responses in this habitat type. 

Develop a model to predict habitat response based upon changes in biotic and abiotic factors in the 

habitat type. 

Enhance water control structures to stop the influx of spawning carp and juvenile rearing. 

Rationale: 

Cinnamon teal, greater sandhill crane, and bobolink have been designated as focal species for 

palustrine emergent seasonally flooded wet meadows. Cinnamon teal nest near water in rushes, sedges, 

and grasses or occasionally over water in dense bulrush and cattails and move to nearby large wetlands 

for molting and brood development. The sandhill crane nests in isolated emergent vegetation within 

expanses of wet marshy meadows and forage in these same locations. The bobolink uses irrigated 

lowland wet meadows within the refuge landscape. They prefer transitional areas between wetter and 

drier sites dominated by dense stands of vegetation with a high percentage grass and moderate 

percentage of forbs and good litter density. 

The Refuge provides much needed wetland habitat within the Pacific Flyway. Refuge wetlands have 

long been managed under prescriptions necessary to meet the needs of migrating and reproducing 

waterbirds and waterfowl. Unfortunately, these same prescriptions can cause undesirable plant 

community transitions. This dilemma creates a need for a creative and flexible new management 

paradigm. For example, warm-season cattail treatments may need to take place in areas experiencing 

encroachment of meadows by cattail (e.g., the lower Buena Vista Unit). Although extended irrigation 

schedules encourage this problem in some areas, they also play a significant role in meeting critical 

needs during various stages of wildlife reproduction and development. Therefore, the cessation of such 

a practice may not be desirable. 

The CCP will begin with a 60:40 ratio of treated to untreated meadow, which was arrived at by 

examining past and current management practices (Blitzen Valley and Double-O Management Plans), 

consulting with former refuge biologists and flyway experts, and carefully examining life stage 

requirements for various wildlife species that use this habitat throughout the year (see Appendix K). It 

represents a starting point to test the efficacy of the haying and grazing program to achieve wet 

meadow objectives. This ratio is relevant only when considering all wet meadows within the Refuge 

and differs across fields and area-specific management units. The needs of focal species, the suite of 

wildlife they represent, and the nature of habitats they depend on determines the use and extent of these 

tools in realizing or maintaining attributes identified under this objective. This ratio provides an 

understanding of the overall use of haying and grazing but does not address the specific needs of 

wildlife in specific areas. These tools will be carefully evaluated on an annual basis by the science 

advisory team and adjusted relative to their efficacy in terms of achieving refuge objectives. The 60:40 

ratio is meant to be illustrative, not definitive. Key to this approach is a recognition that haying and 

grazing is a tool to achieve desired habitat conditions as opposed to an objective unto itself. To ensure 

long-term habitat integrity of at-risk wet meadows, a combination of irrigation schedule adjustments, 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-32 Chapter 2. Management Direction 

the designation of alternative suitable acres to meet irrigation prescriptions, or warm-season treatments 

may be used. Associated changes in water management that make these areas less susceptible to cattail 

expansion will be sought if alternative suitable acres are available to meet irrigation prescriptions. 

Treatments may include the use of livestock on reed canarygrass monocultures or the use of a marsh 

master (i.e., mowing), aerial application of appropriate pesticide, among other methods to set back 

cattail stands. 

Mesic wet meadow areas may be placed on a rest-rotation schedule and forego defoliating treatment for 

periods suitable to site-specific conditions and associated wildlife habitat objectives (>50% vertical 

stems, etc.). Although most dense vegetative nesting is encouraged in marsh or dry meadow/sagebrush 

lowland/salt desert scrub sites, wet meadow areas less prone to flooding after the initiation of nesting 

activities can provide valuable breeding habitat for a variety of avian species. 

In many refuge management units, topographic heterogeneity plays a significant role in providing for 

the habitat needs of a diversity of wildlife species. Variations in depth to water table allow for a variety 

of plant assemblages to be expressed across the landscape. Extra care is needed in areas where 

gradients in elevation occur with less frequency. In the former situation, prolonged irrigation may meet 

nesting and foraging needs of waterfowl and cranes without crossing thresholds that lead to significant 

decreases in forb and grass species and susceptibility to cattail and reed canarygrass invasion. In the 

latter situation, irrigation can strongly influence the long-term viability of the site for wildlife use. 

In many areas, topographic diversity has been greatly reduced by past farming practices involving 

disking, plowing, and other ground-leveling disturbances. This is why it is important to remain 

cognizant of hydrological gradients that can drive plant community expression and subsequent habitat 

quality and availability for a number of target wildlife species. Sandhill cranes and bobolinks were both 

selected as focal species for this habitat type because they tend to prefer conditions on opposite ends of 

the moist-to-wet meadow gradient that exists for this habitat type. It is important to establish irrigation 

prescriptions that accommodate the habitat needs of both species. By carefully identifying priority 

areas for both focal species and regarding the larger plant successional characteristics that are involved 

in meadow management to meet prescriptions long-term, dynamic management will seek to maintain 

or enhance the integrity of this habitat type in areas where dynamic, yet subtle shifts in topography 

have been compromised or an unacceptable percentage of plant assemblages is shifting toward 

undesirable species such as reed canarygrass or hybrid/common cattail. 

Treatments may be applied during the growing or dormant season, depending on a science-based 

rationale. Due consideration will be given for late nesting requirements. Grazing may take the form of 

rake-bunching for litter management and to provide for migrants and early arriving wildlife. The use of 

livestock may be prescribed during the growing season in designated areas to influence plant 

community succession (see Appendix K). 

Grain farming may be used as a tool to facilitate a significant successional shift toward more desirable 

plant communities. This approach is appropriate when conditions merit the manipulation of the existing 

soil propagule bank (e.g., seeds, tubers, rhizomes). The intensive annual management needed for grain 

production can drive undesirable plant species from the treatment area and allow a transition to more 

favorable species. Under this type of strategy, the cessation of farming will coincide with 

assisted/controlled colonization of desirable species. 

Enhancement of water control structures on the intake and outflow of this habitat is an integral way to 

control spawning and rearing of juvenile common carp. By installing/maintaining fish screens or 

modifying the current water control structures the acres inhabitated by carp will sharply decrease and 

the food source for birds will increase. 

Objective 4b. Palustrine Emergent (seasonally flooded marsh associated with wet meadow) 

Throughout the life of the CCP, enhance and/or maintain 15,000 to 16,000 acres of emergent marsh on 

Malheur Refuge (excluding marshes associated with Malheur Lake) for the benefit of migratory birds 

(e.g., yellow-headed blackbird, sandhill crane, redhead, bittern, mallard) and a diverse assemblage of 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-33 

other wetland-dependent wildlife (beaver, muskrat, native amphibians, and reptiles). Emergent marsh 

generally occurs within a mosaic of moist/wet meadows. Desired characteristics of emergent marsh 

within this habitat complex include: 

 Dominated by emergents (favoring hardstem bulrush and 

burreed while de-emphasizing cattails) 

 Water depths ranging from 6 inches to 3 feet 

 Irrigated in concert with associated wet meadows. 

Typically flooded by mid-March for breeding/nesting 

migratory birds and inundated until at least July 1 

 20%-40% open water for foraging wetland birds in areas 

of continuous marsh >10 acres in size 

 Open water areas host submergents (e.g., sago pondweed) 

 No carp or Eurasian water milfoil (Myriophyllum spicatum L.) 

 Intake and effluent water screened or manipulated to stop influx of carp during spawning and 

juvenile rearing 

 <20% cover invasive plants (e.g., reed canarygrass, common reed (phragmites spp., hybrid 

cattail) 

 Diverse invertebrate community, including crustaceans, midges, aquatic worms, dragonflies, 

snails, mussels, and water beetles. 

Strategies Applied to Achieve Objective

Reduce extensive emergent cover using prescribed fire, disking, herbicides, and mowing. 

Facilitate treatment of extensive emergents and/or carp control using periodic drawdowns. 

Ensure water delivery and management through maintenance or enhancement of infrastructure (e.g., 

delivery ditches, water control structure). 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, water levels, and 

habitat/migratory bird responses in this habitat type. 

Develop a model to predict habitat response based upon changes in biotic and abiotic factors in the 

habitat type. 

Enhance water control structures to stop the influx of spawning carp and juvenile rearing. 

Rationale: 

Palustrine emergent seasonally flooded marsh associated with wet meadow is usually found 

immediately adjacent to our irrigated meadow system. Sandhill crane and yellow-headed blackbird, 

focal species for this habitat, require nesting sites over or near water in dense emergent stands of 

cattail, bulrush, or reeds, which predominate on these sites. They forage on the abundance of insects, 

macro-invertebrates, and other small wildlife species found in this environment during brood rearing. 

The adjacent meadows are used later in the year for summer foraging and staging for the fall migration. 

This blend of habits is central to the success of these birds and other associated wildlife species. 

Managing toward 20%-40% open water in emergent stands associated with wet meadows provides 

optimum conditions for the greatest diversity of dependent species. Diverging from this range in either 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-34 Chapter 2. Management Direction 

direction decreases overall wildlife diversity and abundance; however, it may not be practical to meet 

this prescription for every acre across this habitat type due to its quantity and the limited availability of 

resources. Priority will be given to areas directly adjacent to the most productive wet meadows. 

Seasonal marshes should be irrigated simultaneously with wet meadows since the two are generally 

connected hydrologically, as well as biologically in terms of wildlife use. 

The above-mentioned strategies (mowing, grazing, burning, deep flooding, prescribed drought, 

plowing, herbicides, etc.) can generally reduce the density of emergent vegetation in direct relation to 

the intensity of the treatment. The plant species composition of specific target areas will determine 

appropriate management actions because some species are preferred over others (e.g., bulrush at the 

expense of cattail), and species such as burreed are more sensitive to disturbance than others. 

The reduction of approximately 2,000 acres in this habitat type coincides with an equivalent increase in 

semiflooded seasonal wet meadows. This projected shift will not lead to a decrease in quality marsh 

habitat because the specified acreages address areas of meadow that have been invaded by cattail 

species. 

Enhancement of water control structures on the intake and outflow of this habitat is an integral way to 

control spawning and rearing of juvenile common carp. By installing/maintaining fish screens or 

modifying the current water control structures the acres inhabitated by carp will sharply decrease and 

the food source for birds will increase.

Objective 4c. Palustrine Open Water/Emergent (semipermanently flooded wetland 

impoundment) 

Throughout the life of the CCP, protect and maintain 2,200 to 

2,800 acres of semipermanently flooded wetland impoundments 

on Malheur Refuge for the benefit of migratory birds (e.g., 

trumpeter swans, sandhill crane, redheads, mallards, soras, 

Virginia rails, colonial waterbirds) and other wetland-dependent 

species (beaver, muskrat, native amphibians and reptiles). The 

desired characteristics sought for this habitat type include: 

 Between 40:60 and 60:40 ratio of open water to emergent 

plant cover in individual units (with the exception of 

Boca Lake, which will be managed for <20% emergent 

marsh cover, and West Knox Pond, which will be managed primarily as a moist soil unit) 

 Emergent species include bulrush (predominantly hardstem), burreed, and cattail 

(predominantly common) 

 Water depths ranging from 6 inches to 3 feet 

 Permanently flooded with drawdowns every three to seven years (with the exception of West 

Knox Pond, which will be managed primarily as a seasonal wetland [i.e., moist soil unit] and 

Boca Lake, where water levels will fluctuate more frequently to meet annual seed production 

goals and carp control) 

 >40% cover of submergents (e.g., sago pondweed) within open water 

 No carp or Eurasian water milfoil (Myriophyllum spicatum L.)

 <10% cover invasive plants (e.g., reed canarygrass, phragmites, hybrid cattail)

 Diverse invertebrate community, including crustaceans, midges, aquatic worms, dragonflies, 

snails, mussels and water beetles.

Strategies Applied to Achieve Objective

Deliver and manage water through maintenance or enhancement of infrastructure (e.g., delivery 

ditches, water control structure). Address needs associated with spotted frog refugia in identified areas 

(e.g., East Canal, Five Mile Spring within West Canal, etc.). 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-35 

Use prescribed fire to remove extensive emergent cover. 

Use disking to remove extensive emergent cover. 

Use mowing to remove extensive emergent cover. 

Apply herbicide(s) to control emergents. 

Experiment with grazing as a tool in monotypic stands of emergent cover to set back succession. 

Manage water levels by flooding up and drawing down for habitat and carp management. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, water levels, and 

habitat/migratory bird responses in this habitat type. 

Develop a model to predict habitat response based upon changes in biotic and abiotic factors in the 

habitat type. 

Enhance water control structures to stop the influx of spawning carp and juvenile rearing. 

Rationale: 

Palustrine open water/emergent (semi-permanently flooded wetland impoundments) are vital to 

migratory waterfowl and other water birds. The focal species eared grebe, redhead, and ruddy duck 

express the range of habitat requirements used by the wide diversity of wildlife species benefiting from 

this habitat. All three prefer large permanently or semi-permanently wetlands or impoundments where 

open water areas are interspersed with emergent and submergent vegetation tracts. Water depth is the 

critical factor separating how our focal species and other associated wildlife species use the habitat. 

The eared grebe favor abundant submergent aquatic beds linked to open water areas up to 10 feet deep 

to nest and forage in. The ruddy duck prefers interspersed open water and vegetation areas from 1 to 3 

feet deep while redheads can be found in the same environments with water depths from a few inches 

to 3 feet. It should be remembered that these wetlands are critical brooding and rearing areas for the 

very large portion of the diversity of birds using the refuge. 

This wetland habitat will be managed for moist soil vegetation or to provide optimum food production 

in the form of submergent aquatic plants and aquatic invertebrates. For shorebirds, shallow water 

drawdowns will provide important feeding opportunities. Emergent vegetation in marshes provides 

nesting cover for overwater nesters (e.g., sandhill crane, trumpeter swan, rail, redhead, bittern, 

canvasback, mallard, and diving ducks) and escape cover for broods of numerous species, particularly 

late-season nesters such as gadwall, redhead, and grebes. 

Periodic drawdowns and deep flooding are important tools in management of pond vegetation. A 

gradation of water depths from mud flats to deep water pools will encourage use by a wide variety of 

wildlife. 

Enhancement of water control structures on the intake and outflow of this habitat is an integral way to 

control spawning and rearing of juvenile common carp. By installing/maintaining fish screens or 

modifying the current water control structures the acres inhabitated by carp will sharply decrease and 

the food source for birds will increase. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-36 Chapter 2. Management Direction 

Strategies Applied to Achieve Objective

Use agricultural practices (e.g., haying, grazing) to maintain/enhance fields to meet the habitat 

objective. Treatments may be applied during the growing season or dormancy, depending on a sciencebased rationale. 

Use burning regimes where feasible. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale: 

Western meadowlark is the focal species for this habitat and its habitat requirements provide many of 

the key needs for the diversity of other wildlife using this environment. Meadowlark favor open 

country meadows, fields, or desert grasslands with good grass and litter cover with little or no woody 

layer. 

Manipulation of vegetation via mowing, burning, or grazing will be used to stimulate vertical nesting 

structure (Cornely et al. 1983) and deter successional shifts away from desirable conditions (i.e., shrub 

encroachment could be controlled through the use of prescribed fire). Prescribed fire is the preferred 

tool for stimulating this habitat type because it is also the most effective tool for controlling sagebrush 

encroachment from adjacent upland habitats and has the highest potential for stimulating a favorable 

forb response. If perennial pepperweed and/or other noxious species pose a threat to areas needing 

treatment, then mowing will be the preferred tool. Mechanical treatments can be advantageous on 

weed-prone sites because the amount of resources (e.g., nutrients) released by this management action 

is less than that released by prescribed fire. If mowing is not feasible due to the presence of rocks, 

shrub stumps, or other obstacles, then late-season grazing may be implemented. 

Warm-season grazing or other manipulations as directed by the Malheur Refuge State-and-Transition 

Model (see Appendix L) and associated collaborative process may be merited in specific situations 

where target plant community characteristics are at risk or are no longer present (e.g., increasing 

dominance of Russian knapweed). 

When desirable characteristics for this habitat type are achieved, site productivity and plant species 

composition will determine the frequency and specific type of disturbance on a field-by-field basis. 

Treatments should be infrequent because many avian species prefer to nest in dry meadows consisting 

of dense residual vegetation. 

Objective 4d. Dry Meadow 

Throughout the life of the CCP, enhance or maintain 4,500 to 

5,000 acres of dry meadows on Malheur Refuge for the benefit of 

nesting migratory birds (e.g., cinnamon teal, northern pintail, 

savannah sparrow) and a diverse assemblage of other species 

(e.g., small mammals). The desired characteristics of dry meadow 

habitat include: 

 50%-70% cover of live native grasses (e.g., creeping 

wildrye) 

 At least 20% cover of plant litter (residual) 

 <10% cover of invasive plants (e.g., Russian knapweed 

(Acroptilon repens), pepperweed, whitetop (Cardaria spp.)) 

 Disturbance regime on five- to 10-year intervals to rejuvenate nesting cover (see Appendix B, 

Grazing and Haying Compatibility Determination, for potential uses) 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-37 

Objective 4e. Salt Desert Scrub 

Throughout the life of the CCP, protect and maintain 40,000 

acres of salt desert scrub for the benefit of breeding 

migratory birds (e.g., sage thrasher, sage sparrow) and other 

native wildlife species (e.g., kangaroo rats (Sorex preblei), 

grasshopper mouse (Onychomys leucogaster)) on Malheur 

Refuge. The desired characteristics of desert salt scrub and 

greasewood habitat include: 

 <15% cover of scattered patches of shrubs (e.g., 

greasewood) 

 <20% cover of native herbaceous species 

 >20% cover bare ground 

 Microbiotic crust present 

 <10% cover of invasive plants 

 Minimal human disturbance

Strategies Applied to Achieve Objective

Protect existing sensitive sites with microbiotic crusts. 

Use prescribed fire depending on site-specific factors. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale:

Aside from periodic weed control and prescribed fire, this habitat type does not receive a significant 

amount of active management. 

The habitat preferences of loggerhead shrike of open terrain with low density of shrubs mixed with low 

or sparse grasses characterize the needs of other wildlife species typically found in the settings. 

Objective 4f. Sagebrush Lowland 

Throughout the life of the CCP, protect and maintain 4,300 to 4,500 acres of lowland big sagebrush 

habitats (e.g., basin big sagebrush, Wyoming big sagebrush, basin 

wildrye, Indian ricegrass, Sandberg’s bluegrass, bottlebrush 

squirreltail, etc.) for the benefit of ground nesting migratory birds 

(e.g., gadwall, short-eared owl, meadowlark) and a diverse 

assemblage of native species (e.g., small mammals). At any time, 

40% of the sagebrush lowland habitat on the Refuge is 

characterized by the following attributes: 

 0%-12% canopy cover of dominant and subdominant 

brush species (e.g., basin big sagebrush, Wyoming big 

sagebrush, greasewood, rabbit brush, horse brush) 

 10%-25% cover of native bunchgrasses (e.g., great basin wildrye, Sandberg’s bluegrass, etc.) 

and forbs 

 >5% cover of residual bunchgrasses 

 <10% cover invasive plants (e.g., pepperweed, knapweeds) 

Strategies Applied to Achieve Objective

Use prescribed fire. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-38 Chapter 2. Management Direction 

control/eradicate invasive plants (see Appendix G). 

Rationale:

Mallard and gadwall are focal species for sagebrush lowland and in this region prefer islands of brushy 

shrubland mixed with clumps of native bunchgrasses in the vicinity of water. 

Aside from periodic weed control and prescribed fire, this habitat type does not require a significant 

amount of active management. 

Objective 4g. Sagebrush Steppe 

Throughout the life of the CCP, protect and maintain 15,500 acres 

of sagebrush steppe upland habitat on Malheur Refuge for the 

benefit of migratory landbirds (e.g., sage sparrow, brewer sparrow, 

sage thrasher) and a diverse assemblage of other sagebrushobligate species (e.g., jackrabbit, mule deer). Desired 

characteristics of sagebrush steppe habitat to achieve include: 

 0%-20% canopy cover of sagebrush species (e.g., 

Wyoming sagebrush, rabbit brush, bitterbrush) 

 >5% cover of bunchgrasses (e.g., Idaho, fescue, 

Sandberg’s bluegrass, bluebunch wheatgrass) 

 3%-5% cover of native forbs (e.g., western yarrow, arrowleaf balsam root, lupine) 

 No medusahead or young juniper present 

 5% cover of cheatgrass 

 <5% cover of other invasive plants 

Strategies Applied to Achieve Objective

Add diversity to crested wheatgrass monocultures using best science practices (i.e., Krumbo research 

project). 

Mimic natural disturbance process in sagebrush communities using mechanical and chemical methods 

to promote bunchgrasses and forbs. 

Seed desirable grasses and forbs. 

Use prescribed fire, where appropriate, and based upon site-specific conditions. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale:

Wildlife use in this sagebrush landscape is dominated by rangeland passerine birds with the sage 

thrasher designated as the focal species. The thrasher favors large contiguous tracts of open terrain 

covered with high density of shrubs with a scattered herbaceous layer. These habitat elements also 

support a number of mammals such as the pronghorn antelope as well as other wildlife species. 

Aside from periodic weed control and limited prescribed disturbance, this habitat type does not require 

a significant amount of active management. Research is currently being conducted on the Refuge to 

address the lack of species diversity in areas that were historically seeded into crested wheatgrass 

following wildfire. Depending on research results, some successional management may occur on these 

sites, but wetland habitat management will continue to receive highest management priority. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-39 

Objective 4h. Dune 

Throughout the life of the CCP, protect and maintain 6,300 acres 

of dune habitat on Malheur Refuge. Desired characteristics of 

dune habitats include: 

 Open sand dunes hosting widely spaced shrubs (e.g., 

shortspine horsebrush, fourwing saltbush, bud sagebrush, 

green and gray rabbitbrush, greasewood, and Basin big 

sagebrush), grasses (e.g., Indian ricegrass, needle-andthread, bottlebrush squirreltail, alkali sacaton), and forbs 

(e.g., tufted evening primrose, Paiute suncup, Geyer’s 

milkvetch, sharpleaf penstemon, various lupines) 

 Soil formation by lacustrine sands is neutral to moderately alkaline (8.2); moist in the winter 

and spring and usually dry June through October 

 Host rare and unique invertebrates 

Strategies Applied to Achieve Objective

Protect dune areas from disturbance (e.g., well-maintained boundary fences). 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale: 

The sage sparrow has been defined as the focal species for this environment. The habitat needs of this 

bird as well as associated wildlife species readily describe the landscape. It prefers tracts of widely 

spaced shrubs surrounded with open patches of bare soil or sand and lightly scattered grasses and forbs. 

Aside from periodic weed control, this habitat type does not require a significant amount of active 

management.

Objective 4i. Playa 

Throughout the life of the CCP, protect and maintain 29,000 

acres of playa on Malheur Refuge for the benefit of migratory 

birds (e.g., snowy plover) and associated guilds. The desired 

characteristics of playa habitats include: 

 Retention of hypersaline conditions where appropriate 

(avoid dilution caused by freshwater irrigation) 

 Water depth ranges from hydrated soils to 3-4 feet 

 Bare ground with little vegetation (e.g., saltgrass, shrub, 

herbaceous cover) 

 Recharge through springs or natural overland flow 

 High populations of brine flies and brine shrimp 

 Retention of fringe habitats consisting of dunes, salt desert scrub, and mudflat habitats 

 No salt cedar present 

Strategies Applied to Achieve Objective

Prevent freshwater irrigation from negatively impacting water chemistry. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale: 

This unique environment is well defined by the habitat needs of its focal species, the snowy plover. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-40 Chapter 2. Management Direction 

This bird favors barren, sparsely vegetated alkaline flats usually with an adjacent very shallow gloss of 

water within a mile. 

Aside from periodic weed control around perimeters, this habitat type does not require a significant 

amount of active management. 

Objective 4j. Provide Agricultural Crops for Migratory Waterfowl and Sandhill Cranes 

Throughout the life of the CCP, annually provide approximately 80 to 1,000 acres of small grains (e.g., 

wheat, barley) as forage for migrating aquatic birds (e.g., waterfowl, sandhill crane) and other resident 

wildlife. The desired characteristics of agricultural lands cropped in small grains include: 

 Fall harvesting completed by October 

 ≤1,000 acres as short-stature small grains available during mid-fall to mid-winter 

 Limited presence of invasive plants 

Strategies Applied to Achieve Objective

Use traditional agricultural practices (cultivating, seeding, fertilizing) to produce grain crops. 

Conduct cropland management through cooperative farming agreement and/or refuge staff. 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Rationale: 

Grain farming in the Blitzen Valley is essential to meeting Refuge objectives for fall maintenance of 

greater sandhill cranes. Grain crops on the Refuge and adjacent private lands provide for a large 

population of staging and migrating cranes in fall, and are recommended under the Greater Sandhill 

Crane (Central Valley Population) Pacific Flyway Plan (Pacific Flyway Council 1997). Analysis has 

determined that 190 tons of grain is required to meet 225,000 crane use-days (Rule et al. 1990). This is 

the target number of crane use-days, based on historical crane use on the Refuge. The average yield per 

acre in the Blitzen Valley is 1 ton per acre. Currently the acres farmed on the Refuge have the potential 

to meet about half this target, but the force-account (Refuge staff conducts farming) method of grain 

production results in the grain availability being less consistent. In addition, there is no guarantee that 

the adjacent private lands will continue to be farmed in the future. 

Under the CCP, the Service attempts to resolve these issues by doubling the target level of grain 

produced on Refuge lands, and by modifying the program to a cooperative farming model. Under this 

model, Refuge lands are used for growing crops but the labor is provided by a private farmer. The 

farmer will be compensated for his/her efforts by being permitted to take an 80% share of the crop. The 

remaining 20% will be left in the field for wildlife. Although such a model will provide more 

consistency in the grain production for the benefit of cranes, it also requires a larger land base for crop 

production. Under this scenario, approximately 950 acres of grain farming will be needed. 

Goal 5. Enhance and maintain rare and unique habitats. 

GOAL 5. Enhance and maintain rare and unique habitats. 

Objective 5a. Cold and Hot Springs 

Throughout the life of the CCP, protect and maintain 230 to 250 acres of cold and hot springs, 

associated pools, and vegetative habitats on Malheur Refuge for the benefit of a diverse assemblage of 

native plants, fish, and wildlife species (e.g., Columbia spotted frog, endemic invertebrates). 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-41 

The desired characteristics of cold and hot springs include: 

 Water table and springhead integrity maintained 

 Diversity of native macroinvertebrates 

 Breeding, feeding, and winter refugia for native 

amphibians 

 Dominant substrate vegetation, with boulders, fines, 

cobble, or gravel

 Vegetation varies depending upon soil type

 No turbidity

 No carp or bullfrogs present

Strategies Applied to Achieve Objective

Secure/adjudicate groundwater rights to protect cold and hot springs. 

Protect spring habitat to provide a stable permanent water source for Columbian spotted frogs. 

Protect spring habitat areas from undesirable, preventable disturbance (i.e., livestock grazing, traffic, 

etc.). 

Use IPM strategies including chemical, mechanical, horticultural, and biological control agents to 

control/eradicate invasive plants (see Appendix G). 

Conduct baseline inventories of fish, wildlife, and vegetation to guide future management actions. 

Conduct surveys, inventories, and assessments of pre- and post-carp control effects on aquatic habitats. 

Conduct research to understand carp population dynamics and seasonal movements. 

Conduct research to understand relationships among water chemistry, water levels, and 

habitat/migratory bird responses in this habitat type. 

Develop a model to predict habitat response based upon changes in biotic and abiotic factors in the 

habitat type. 

Rationale: 

Springs provide a stable, permanent source of water for spotted frog breeding, feeding, and winter 

refugia. Current refuge distribution of the spotted frog is believed to be associated with spring-fed 

water bodies. Invasive species in these habitats may compete for habitat and food, carry diseases, or be 

predators upon these amphibians. 

Objective 5b. Cliffs, Rimrock, and Lava Flows 

Throughout the life of the CCP, protect and annually maintain cliff, 

rimrock, and lava flow habitats for the benefit of migratory birds 

(e.g., golden eagle, prairie falcon) and a diverse assemblage of 

native, cliff/canyon-dependent wildlife (e.g., bat species, marmot) 

on Malheur Refuge. The desired characteristics of cliffs, rimrock, 

and lava flow habitats include: 

 Well-sheltered crevices, cavities, bluffs, high walls, or 

rocky ledges overlooking valleys within range of open 

grasslands, wet meadows, and shrub-steppe deserts 

 Largely unvegetated 

 Minimal human disturbance, especially in proximity to nesting birds 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-42 Chapter 2. Management Direction 

Strategies Applied to Achieve Objective 

Prohibit mining and rock removal, except by the Refuge and according to valid permits for use of 

existing gravel/rock pits. 

Prohibit rock climbing. 

Rationale: 

This habitat type is not actively managed. These areas will be protected from disturbance (rock mining, 

climbing, etc.) due to their high value for nesting birds as well as reptiles, mammals, and other wildlife. 

Public Use Goals 

The following goals and objectives cover facilities and programs associated with wildlife-dependent 

recreational uses (the “Big Six”): wildlife observation, wildlife/nature photography, interpretation, 

environmental education, hunting, and fishing. Objectives for related activities, including welcome 

and orientation, volunteers, partnerships, law enforcement, and transportation, are also included. 

Although all of the wildlife-dependent recreational uses will be provided on the Refuge, the 

cornerstone of the program will be providing quality wildlife observation and wildlife/nature 

photography opportunities. Interpretation and welcome and orientation features are also high 

priorities. These programs will be focused on enhancing visitor experiences and promoting the key 

values and features unique to the Refuge: a renowned diversity of wildlife, signs of earlier 

inhabitants, remoteness, and solitude. Environmental education, hunting, and fishing will also be 

provided, but with less commitment of refuge staff time than the other programs. However, 

additional areas will be opened to enhance opportunities for hunting and fishing. Each of these 

programs will be supported with the help of volunteers and partnerships. 

Quality will be emphasized for each use and program. The definition of “quality” for wildlifedependent recreational uses is defined in refuge policy by several elements (605 FW 1): 

 Promotes safety of participants, other visitors, and facilities; 

 Promotes responsible behaviors and compliance with applicable laws and regulations; 

 Minimizes or eliminates conflicts with fish and wildlife population or habitat goals or 

objectives; 

 Minimizes or eliminates conflict with other compatible wildlife-dependent recreation; 

 Minimizes conflicts with neighboring landowners; 

 Promotes accessibility and availability to a broad spectrum of the public; 

 Promotes resources stewardship and conservation; 

 Promotes public understanding and increases public appreciation of natural resources and the 

Refuge’s and National Wildlife Refuge System’s roles in managing and protecting these 

resources; 

 Provides reliable, reasonable opportunities to experience wildlife; 

 Uses facilities that are accessible and blend into the natural setting; and 

 Uses visitor satisfaction to help define and evaluate programs. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-43 

Goal 6. Welcome and orient visitors. 

GOAL 6. Welcome visitors and offer them a safe experience of the Refuge’s 

outstanding features: diversity of wildlife, signs of earlier inhabitants, scenic 

landscapes, and solitude. As a result, visitors will leave the Refuge with a 

memorable experience that fosters a connection between themselves and 

nature, and with an appreciation of Malheur Refuge’s unique resources.

Objective 6a. Provide Welcome and Orientation to Visitors 

Provide an integrated set of welcome and orientation features for visitors to: 

 Feel welcomed 

 Easily find accurate, timely, and appropriate orientation materials and information 

 Be aware of their options (available activities and experiences, where and when to go, how to 

get there, etc.) 

 Safely pursue self-guided activities. 

Welcome and orientation features shall be characterized as follows: 

 Both modern and traditional media will be used to reach and orient visitors to the Refuge 

 Entrance signage welcoming visitors to Malheur Refuge will be located at all seven refuge 

entrances and road junctions at Refuge Headquarters, Malheur Field Station, both access points 

at Buena Vista, Krumbo Lane, P Lane, and Double-O 

 Directional signs that alert visitors to the presence of nearby attractions (such as “Krumbo 

Reservoir – Fishing”, “Visitor Center” or “Contact Station”) will be posted on State Highway 

205 and along the auto tour route (Center Patrol Road) in appropriate locations 

 Outdoor welcome and orientation panels will be provided at four to eight locations to direct 

and guide visitors 

 Maps, brochures, regulations, and additional information on the outdoor welcome and 

orientation panels will be positively worded and available at attractive and visible structures, 

such as masonry work, near main refuge entrances and at areas where visitors tend to 

congregate, especially at the Narrows Pull-out, Buena Vista, Krumbo Reservoir, P Ranch, and 

Frenchglen 

 Five to 10 clean, well maintained, and accessible developed sites with visitor amenities, such 

as picnic tables, shelters, and vault toilets will be provided in logical and appropriate locations 

in the Blitzen Valley and at Double-O 

 Structures and developed sites will be built to blend in with the surrounding features and 

habitat 

 Daily opportunities for personal contact with refuge staff and volunteers at Refuge 

Headquarters and P Ranch contact station will be provided 

Strategies Applied to Achieve Objective 

Continue to maintain and update existing modern and traditional media (website, brochures, Flickr 

account, etc.) to reach and orient visitors. Use other modern media as appropriate. 

Develop step-down plans for outdoor panels, facilities, and signs. 

Continue to maintain and update four existing outdoor panels to welcome and orient visitors at: 

 Narrows Pull-Out 

 Refuge Headquarters 

 Buena Vista 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-44 Chapter 2. Management Direction 

 Frenchglen 

Develop additional outdoor welcome and orientation panels at: 

 Krumbo Reservoir 

 P Ranch 

 Harney Lake 

 Double-O 

Maintain existing developed sites with visitor amenities such as picnic tables, shelters, and vault toilets 

at: 

 Refuge Headquarters 

 Buena Vista 

 Krumbo Reservoir 

 P Ranch 

Provide additional developed sites: 

Complete Developed Sites 

 Double-O 

Vault Toilet Only 

 Sod House Ranch 

Picnic Tables and Shelters Only 

 Refuge Headquarters (ADA-compliant) 

 Buena Vista Overlook 

 P Ranch 

Build an enlarged visitor contact station and gift shop at Refuge Headquarters. 

Enhance George Benson Memorial Museum to meet ADA standards and meet preservation standards 

to protect specimens. 

Establish a seasonal contact station at P Ranch, and provide staffing as available with volunteers during 

spring, summer, and fall. 

Continue to consider/participate in discussions for an interagency visitor facility off-refuge. 

Rationale: 

A high number of visitors to the Refuge are new to the area and benefit from direction and guidance 

especially at refuge entrances and road junctions. The strategies focus on providing quality customer 

service and improving information and orientation availability. Utilizing modern and traditional media, 

and providing outdoor welcome and orientation panels and developed sites that are clean, well 

maintained, and accessible, while also not detracting from the surroundings, will be emphasized. This 

objective and its strategies are aimed at ensuring that information provided to visitors is clear so 

visitors can easily determine where they can go, what they can do, and how to safely and ethically 

engage in wildlife-dependent recreational uses. 

Objective 6b. Address Transportation Issues and Concerns 

Develop a transportation plan for existing and needed roads, bridges, pull-outs, access points, parking 

areas, trails, and other elements of transportation infrastructure that support public uses and refuge 

management needs as identified within other CCP objectives. The transportation plan will: 

 Develop strategies for maintaining three to six public roads, parking areas and several vehicle 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-45 

pull-offs, to minimum public safety standards 

 Consider provisions, according to management and public use needs, for vehicles, farming 

equipment, bicycles, school buses or other larger vehicles, and pedestrians 

 Include ancillary facilities, such as interpretive signage, environmental education shelters, 

restrooms, parking areas, boat launches, etc. 

 Address potential impacts to wildlife and associated habitats 

 Include a safety audit of all transportation facilities identified above 

 Include a prioritized list of construction and improvement items 

 Implement as funds become available to bring all facilities up to approved Service standards

Strategies Applied to Achieve Objective

Continue to maintain existing refuge public roads: 

 42-mile Blitzen Valley auto tour route (Center Patrol Road) 

 Krumbo Reservoir 

 P Lane 

Enhance the following refuge public roads: 

 Boating Landing Road 

 East Canal Road to the confluence of Bridge Creek 

 Double-O 

 Saddle Butte hunt access 

Continue to maintain a variety of vehicle pull-offs (one or two vehicle lengths) on the 42-mile Blitzen 

Valley auto tour route (Center Patrol Road) and develop the following additional vehicle pull-offs to 

assist with wildlife observation and wildlife/nature photography, hunting, and fishing programs: 

 Boating Landing Road 

 East Canal Road to the confluence of Bridge Creek 

Maintain existing parking areas and develop the following parking areas to assist with wildlife 

observation and wildlife/nature photography, hunting, and fishing programs: 

 Bridge on Boat Landing Road 

 Airboat launch site (to ADA standards) 

 East Canal at the confluence of Bridge Creek 

Work with local and State governments to identify alternative funding sources and cost-sharing 

opportunities for maintenance of and improvements to the transportation system to and through the 

Refuge. 

Partner with the Federal Highway Administration, ODOT, local county road departments, and others to 

develop the transportation plan and safety audit. 

Rationale: 

A comprehensive transportation plan and safety audit is needed to ensure the safest and most efficient 

access for visitors, cooperative ranchers, and others who need to access the Refuge. A transportation 

plan will also assist the Refuge in obtaining funds available under Federal and State transportation 

authorities for project implementation. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-46 Chapter 2. Management Direction 

Goal 7. Provide wildlife observation and nature photography opportunities. 

GOAL 7. Connect the hearts and minds of visitors with the places and 

resources the Refuge protects, and enlighten visitors’ experiences with an 

understanding of, appreciation for, and knowledge about historic and 

natural resources, and the importance of conservation and stewardship.

Objective 7a. Provide Wildlife Observation and Wildlife/Nature Photography Opportunities to 

the Casual Visitor and Beginning to Moderate Birders 

Provide casual visitors and beginning to moderate birders with a variety 

of structured opportunities to view wildlife, observe nature, and 

photograph wildlife and the surrounding landscape. The program shall: 

 Provide docent-led tours, approximately monthly, at different 

locations on the Refuge, including into areas that are normally 

closed to the public 

 Provide occasional opportunities to experience Malheur Lake 

with docent-led kayaking and canoeing tours 

 Integrate the interpretive program with observation and 

photography opportunities so that visitors can make their own 

discoveries (see Objective 7c) 

 Provide a variety of vehicle pull-offs on the 42-mile Blitzen 

Valley auto tour route (Center Patrol Road) at key locations to 

enhance the birding experience 

 Provide an opportunity for exercise and enhanced opportunities 

for solitude as part of the recreational experience by providing two to four loop trails (>1 mile) 

 Provide at least five or six spur trails to good birding sites, with some trails meeting ADA 

standards 

 Include trail signs (e.g., trail access information (TAI) signs) posted at all trailheads (see 

photo). 

 Provide access to five to seven developed viewing facilities, such as overlooks and platforms at 

key locations for viewing wildlife and landscapes 

 Provide opportunities for quality photography in three first-come/first-served permanent, 

ADA-compliant photography blinds or temporary, day-to-day basis photography blinds 

Strategies Applied to Achieve Objective

Docent-led Tours 

Continue to provide docent-led tours in conjunction with the annual John Scharff Migratory Bird 

Festival. 

Advertise and provide docent-led tours, approximately monthly, to a variety of audiences for the 

purposes of viewing wildlife and habitats at different locations on the Refuge. Tours may include 

kayaking or canoeing on Malheur Lake. Encourage advanced birders to volunteer to lead docent-led 

tours for the general public and groups. 

Auto Tour Route and Vehicular Access 

Continue to maintain existing refuge public roads on the 42-mile auto tour route (Center Patrol Road), 

Krumbo Reservoir, and P Lane. Provide additional vehicle access year-round, except when road 

conditions are hazardous, at Boat Landing Road, Krumbo Reservoir, and East Canal Road to 

confluence of Bridge Creek. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-47 

Participate in Basin and Range Birding Trail on-refuge with Harney County Chamber of Commerce 

and other partners. 

Trails

Provide trails listed below. Mark all existing and new trailheads with trail signs (e.g., TAI). 

Spur Trail 

 Frenchglen to Barnes Springs Footpath 

Loop Trails (≥1 mile) 

 Refuge Headquarters along the Blitzen River and Display Pond (Headquarters Loop Trail) 

 Connect Bridge Creek Trail, River Trail, and East Canal Trail with pedestrian crossings and 

boardwalks 

ADA-compliant Trails 

 Sections of Headquarters Loop Trail 

 Sod House Ranch (upgrade to ADA standards) 

 Benson Pond 

 P Ranch 

Propose alternative route to enhance the Desert Trail and post appropriate Desert Trail signs at logical 

locations.

Observation and Photography Features 

Provide viewing features listed below and develop step-down plans for viewing overlooks and 

platforms. 

Viewing Overlooks 

 Krumbo Reservoir (ADA-compliant) 

Elevated Viewing Platforms 

 Historic CCC lookout tower at Refuge Headquarters 

 Malheur Lake at airboat launch site 

 Harney Lake 

 Double-O 

Restore historic Audubon photography blind at Refuge Headquarters Display Pond. 

Provide two ADA-compliant, first-come/first-served permanent photography blinds for high-quality 

wildlife photography at appropriate locations. 

Allow boating use (nonmotorized or electric boats, kayaks, canoes, etc.) that is not directly supporting 

fishing at Krumbo Reservoir year-round, except when reservoir begins to ice over. 

Require a yearly special use permit for for-profit commercial wildlife guiding and commercial 

photography uses on the Refuge. 

Rationale: 

During scoping, casual visitors and beginning to moderate birders expressed a need for increased 

access, vehicle pull-offs near a variety of trails, viewing and photography facilities, and other 

opportunities for this user group. Wildlife observation is the primary visitor activity that occurs on the 

Refuge, but visitors also come to enjoy the area’s wide open spaces, geology, and historic resources. 

The Refuge provides docent-led tours during the John Scharff Migratory Bird festival to closed areas of 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-48 Chapter 2. Management Direction 

the Refuge; visitors respond enthusiastically to these tours. An expanded use of docent-led tours will 

promote relationship-building between the Refuge and visitors, create greater awareness of the values 

of Malheur Refuge, and allow occasional access to areas that are normally closed to refuge visitors, in a 

manner that minimizes conflicts with fish and wildlife population or habitat goals. 

Connecting people to nature is a national initiative that the Refuge will contribute to via the strategies 

described above. Providing docent-led tours on Malheur Lake by kayak and canoe will enhance the 

opportunity for freedom and experience of one of the Refuge’s most well-known landmarks, and 

provide an opportunity to educate visitors about the management challenges posed by invasive 

common carp and the degradation of important habitat on the lake. 

Continuing to provide an auto tour route, while enhancing the experience by providing additional areas 

for vehicle access and pull-offs, providing longer trails, and providing additional viewing and 

photography facilities, will also help to meet a visitor need to connect with the larger landscape and 

resources. 

Objective 7b. Provide Opportunities to View Rare and Incidental Species to Advanced Birders 

Provide advanced birders with continued opportunities to enjoy sightings of rare and incidental birds, 

particularly passerines. The Refuge will: 

 Maintain four to six sites (approximately 300 acres) of habitats characterized by cottonwood 

trees, other non-endemic trees, and shrubs associated with historic landscapes 

Strategies Applied to Achieve Objective 

Participate in and promote real-time rare bird alerts utilizing modern media. 

Prepare and implement a site plan for Refuge Headquarters that incorporates birders’ concerns, such as 

maintaining cottonwood trees, other non-endemic trees, and shrubs. 

Prepare and implement site plans to maintain cottonwood trees, other non-endemic trees, and shrubs at 

Sod House Ranch, Benson Pond, Witzel Field, Barnes Springs, and P Ranch. 

Conduct vegetation management of invasive species in ways that do not interfere with the ability of the 

identified sites to host rare and incidental species. 

Integrate vegetation management and access at the identified sites with appropriate cultural resource 

protection and interpretation (see Goal 10). 

Continue to maintain seasonal closure at Sod House Ranch to protect heron rookery. 

Rationale: 

Advanced birders are a small but important component of the visitor base at the Refuge. Some of the 

trees that host the rare and vagrant species are not native to the area but were brought in deliberately by 

early settlers for shade. Because these special birding sites are located at sites of historic significance, 

maintaining a component of tall shade trees meets both the objective of providing habitat for rare and 

incidental species, and the purpose of providing a continued “look and feel” characteristic to these 

historic landscapes. In addition to these reasons, these sites occupy a small percentage of the overall 

refuge landscape and also provide values to native wildlife, including a heron rookery at Sod House 

Ranch; therefore, we consider it acceptable to maintain and promote this non-native vegetative 

component. 

Objective 7c. Provide Interpretive Opportunities of Key Resources and Issues 

Provide a variety of interpretive opportunities to connect refuge visitors and the local community with 

historic and natural resources. Interpretive features shall be characterized as follows: 

 Enhance uses of modern media to convey information to visitors and enhance opportunities for 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-49 

self-guided or multisensory experiences 

 Provide a range of traditional interpretive materials and programs, including indoor and 

outdoor interpretive panels, approximately monthly presentations, and four to seven local 

events 

 Provide well-marked outdoor interpretive panels that include “attractants” to slow and 

encourage visitation, such as masonry work 

Using various methods, advance visitor understanding of the following key themes: 

 Historical and current significance of the Refuge to breeding and migratory birds 

 Precontact and post-contact history (see Goal 10) 

 CCC work in the area (see Goal 10) 

 Wilderness 

 Geology and paleontology 

 Aquatic health 

 Water’s importance, hydrology, and movement across the landscape 

 Primary refuge wildlife, habitat, and resources management objectives and management 

challenges, and methods 

 Role and importance of the National Wildlife Refuge System 

 An understanding of visitors’ relationships to, and impacts on, natural and cultural resources to 

encourage and inspire them to become stewards of the lands 

Strategies Applied to Achieve Objective

Regularly maintain and update information on key interpretive themes via a variety of media such as 

websites and brochures. Make greater use of modern media such as CDs, podcasts, social media, etc.

Provide new interior panels in the George Benson Memorial Museum to connect visitors with places 

and the resources the Refuge protects. 

Continue to maintain five existing outdoor interpretive panels at Narrows Pull-out, Refuge 

Headquarters, Sod House Ranch, Buena Vista Overlook, and P Ranch. Provide additional outdoor 

interpretive panels at key field sites to appropriately implement key interpretive themes, and focus on 

aquatic health and associated management activities and weaving historic events and ecology of the 

Refuge. 

Participate in local events, on- and off-refuge, providing docent-led activities and visits to specified 

sites with booths and educational materials as appropriate: 

 John Scharff Migratory Bird Festival (April) 

 Free Fishing Day (June) 

 Invasive Carp Awareness (August) 

 Harney County Fair (September) 

 International Migratory Bird Day (May) 

 Ranching Heritage Day combined with Invasive Carp Awareness (August) 

 National Wildlife Refuge Week (October) 

Continue to provide public presentations by refuge staff and volunteers at least monthly. Advertise and 

share presentations by utilizing modern media. 

Rationale: 

Interpretive features and programs emphasizing key interpretive themes relevant to the Refuge can 

greatly assist visitors in discovering the resources and understanding the role and relevance of the 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-50 Chapter 2. Management Direction 

Refuge. The visiting public has expressed a need for a stronger emphasis on connecting visitors with 

places and resources the Refuge protects, and enlightening visitors’ experiences through interpretive 

panels, docent-led tours, special events, and group presentations. Investing in such programs and 

facilities is consistent with the Refuge System mission and will expand refuge support and 

relationships.

Objective 7d. Support and Provide Environmental Education Programs 

In partnership, implement environmental education programs that: 

 Emphasize enjoyable, hands-on, outdoor learning 

 Integrate key interpretive themes (see Objective 7c) 

 Promote discovery and wildlife awareness 

 Build understanding and appreciation of the Refuge’s historic and natural resources 

 Promote conservation and stewardship 

The program shall be characterized as follows: 

 Facilitate on- and off-refuge education for all ages for ≥500 students annually, with a target 

audience of local first and third graders 

 Partner with other environmental education initiatives to promote assistance with programs, 

activities, and exhibits 

 Support local, state, and national education standards and other curricula 

 Serve formal educators (i.e., teachers) and informal educators (i.e., Scouting group leaders) 

 Use various refuge resources to assist with environmental education activities, and use refuge 

facilities, including wildlife observation structures, interpretive panels, trails, etc. 

 Coordinate and assist with other environmental education initiatives 

Strategies Applied to Achieve Objective 

Continue to conduct existing environmental education program and ongoing collaboration with 

environmental education initiatives.

When refuge staff and volunteers are available, use and implement existing curricula, and national and 

regional environmental education modules, such as Junior Duck Stamp Program, International 

Migratory Bird Day, etc., on- and off-refuge. 

Coordinate and assist with local environmental education initiatives upon request. 

Review and revise as needed the Cooperative Agreement between the Great Basin Society/Malheur 

Field Station and the Refuge. 

Build an outdoor shelter at Refuge Headquarters where environmental education activities can be 

conducted during periods of inclement weather. 

Provide an outdoor learning area at Refuge Headquarters to assist with existing environmental 

education program and efforts with other environmental education initiatives. 

Require a yearly special use permit for non-profit groups and educational institutions engaging in EE 

programs on the Refuge. 

Rationale: 

The Refuge has an opportunity to support and provide environmental education programs for local 

schools, universities, and other educational or community groups, in partnership with other local 

environmental education initiatives. Using and enhancing partnerships with established programs like 

these, and using ready-made national curricula will provide greater efficiency for the Refuge and build 

community relationships. The existing environmental education program will remain, and when staff 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-51 

and volunteers are available existing curricula and national and regional environmental education 

modules will be used and implemented. Provision of specified outdoor learning facilities will promote 

enjoyable and hands-on learning and an integrated curriculum at key target sites, while mitigating 

demands on the Refuge’s indoor spaces. 

Goal 8. Provide hunting and fishing opportunities. 

GOAL 8. Provide reasonable challenges and opportunities, and provide 

uncrowded conditions for the hunting and fishing public. 

Objective 8a. Provide Hunting Opportunities for Upland Game 

Provide high-quality hunting opportunities for upland game hunting in the Malheur Lake, Buena Vista, 

and Boundary hunt units, for the species, seasons, and other details described in the Hunt Plan 

(Appendix P). 

The program shall be managed such that: 

 Youth are provided added emphasis 

 Conditions are uncrowded, with abundant opportunities for solitude over 58,000 allowable 

hunting acres 

 The hunt is safe and managed to minimize conflicts with wildlife and other priority wildlifedependent recreational uses 

 Access is provided on suitable all-weather access roads 

 Game are wild or naturalized (not stocked) 

 Most hunters reach their quota each day 

 Refuge staff engages in close cooperation and coordination with State fish and wildlife 

management agencies for management of hunting opportunities on the Refuge and in setting 

population management goals and objectives 

 Hunt is consistent with State fish and wildlife laws, regulations, and management plans 

Strategies Applied to Achieve Objective 

Update existing hunting brochure and website to explain upland game hunting opportunities and 

regulations; update Code of Federal Regulations [CFRs] per revised Hunt Plan (Appendix P). 

Malheur Lake Hunt Unit

Maintain hunt program under current regulations, except drop rabbit from the list of allowable species. 

Improve Saddle Butte access on north side of Malheur Lake Hunt Unit (see Appendix P). 

Buena Vista Hunt Unit

Maintain hunt program under current regulations, except drop rabbit from the list of allowable species 

and extend season opener from the fourth Saturday of October to the end of the State pheasant season 

(see Appendix P). 

Boundary Hunt Unit

Manage hunt program as described in Hunt Plan (Appendix P). 

Rationale: 

The most substantial modification suggested for the upland game hunt on the Refuge under the 

management direction is the season extension for the Buena Vista Unit; this will provide greater 

hunting opportunity. The hunt openers have been designed to minimize disturbance to staging sandhill 

cranes, which do not use the northern part of the Malheur Lake Hunt Unit; hence, this unit will remain 

open at the same time as the regular State season, thus spreading out the openers across two weekends 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-52 Chapter 2. Management Direction 

and reducing crowding. 

Greater vehicular access for the Buena Vista Unit was considered but rejected because many believe 

the free-roaming, off-road nature of the hunt is one of its key assets. The P Ranch Unit was also 

considered but was rejected due to conflicts with wintering waterfowl, which use the P Ranch Unit 

more heavily than other units because of the access to open water, which is limited during winter on the 

Refuge. 

Rabbit will be dropped from the Malheur Lake and Buena Vista hunt units because this species may be 

taken at any time of day or night, and this presents a conflict with the hunts as designed for these units.

Objective 8b. Provide Hunting Opportunities for Waterfowl 

Provide high-quality opportunities for waterfowl hunting in the Malheur Lake, Buena Vista, and 

Boundary hunt units, for the species, seasons, and other details described in the Hunt Plan (Appendix 

P). 

The program shall be managed in such that: 

 Youth are provided added emphasis 

 Conditions are uncrowded with abundant opportunities for solitude over 63,000 allowable 

hunting acres 

 The hunt is safe and managed to minimize conflicts with wildlife and other priority wildlifedependent recreational uses 

 Access is provided on suitable all-weather roads 

 Hunters can enjoy a range of waterfowl hunting experiences, ranging from traditional setup 

with decoys and dogs to jump-shooting 

 Parking areas are adequate, with parking at three existing locations and one new parking area 

and boat launch at the airboat launch site to access a new hunt opportunity on the southern side 

of Malheur Lake 

 Most hunters reach their quota each day 

 Refuge staff engages in close cooperation and coordination with State fish and wildlife 

management agencies for management of hunting opportunities on the Refuge and in setting 

population management goals and objectives 

 Hunt is consistent with State fish and wildlife laws, regulations, and management plans 

Strategies Applied to Achieve Objective 

Update existing hunting brochure, website, and CFRs to explain waterfowl hunting opportunities and 

regulations.

Malheur Lake Hunt Unit 

Manage the waterfowl/migratory bird hunt on Malheur Lake Unit as described in Appendix P. 

Promote waterfowl youth hunt opportunity on State-designated weekend in the northern Malheur Lake 

Hunt Unit. 

Improve Saddle Butte access on north side of Malheur Lake Hunt Unit. 

Expand allowable boundary to include south-central area of Malheur Lake with special date regulations 

of the fourth Saturday of October to the end of the State waterfowl season. 

Open new boat access for nonmotorized or electric boats on Malheur Lake at the airboat launch site 

near Refuge Headquarters with expanded parking and a boat launch (ADA standards). Opening date for 

the access will be the on the fourth Saturday of October to the end of the State waterfowl season. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-53 

At low water (<10,000 acres), close Malheur Lake to waterfowl hunting. 

The new Caspian tern island in the South Malheur Lake Unit will be permanently closed to hunting. 

Buena Vista Hunt Unit

Open Buena Vista Hunt Unit to waterfowl hunting with special date regulations, from the fourth 

Saturday of October to the end of the State pheasant season. Boats will not be permitted. See Appendix 

P for details. 

Support reasonable waterfowl hunting opportunities that comply with the ADA in partnerships with 

potential users. 

Boundary Hunt Unit

Continue to allow waterfowl/migratory bird hunting within the Boundary Hunt Unit under existing 

regulations (see Appendix P). 

Rationale: 

Although historically Malheur Lake was renowned for its waterfowl hunting opportunities, currently 

the waterfowl hunt is perceived as poor quality. The key issue preventing greater success is seen as the 

plenitude of invasive common carp in the lake. Access is also poor from the existing access points; lake 

fluctuations often preclude opportunities to provide easy drive-in access to reliable boat launches on 

most parts of the lake. Hence, at the present time, few hunters hunt the lake and those who do rarely 

use boats to access the lake. Providing a fourth access point at the more reliable airboat launch site on 

the Blitzen River delta near Refuge Headquarters will allow hunters to access a larger portion of the 

lake by boat and provide additional opportunities for hunting. As aquatic health improves (see 

Objective 1a), waterfowl hunting opportunities on the lake should improve. 

Opening the Buena Vista Hunt Unit will provide a quality experience in a large additional area with 

good access. This unit has some wetlands and the mainstem of the Blitzen River. Hunters may walk in 

and set up decoys on some of the wetlands or jump-shoot as opportunities present themselves. 

Although the small size of ponds and wetlands could pose competition and disturbance issues, the 

limited number of hunters past opening weekend will likely mitigate against these concerns. Safety 

issues along the auto tour route (Center Patrol Road) will also be mitigated as visitor use is expected to 

be light during the hunting season. 

Other areas considered for waterfowl hunting included the P Ranch and Double-O units. With the 

change in water rights, there could be a potential opportunity to flood up additional areas for hunting in 

the Blitzen Valley. However, most of the additional water will arrive early in the spring, so it will not 

be available during prime waterfowl hunting time. In addition, the P Ranch Unit was also rejected as a 

hunt unit due to conflicts with wintering waterfowl, which use the P Ranch Unit more heavily than 

other units because open water is more concentrated in the P Ranch Unit during winter. The Double-O 

Unit is considered more sensitive to biological and cultural resource disturbances, but a weekend youth 

hunt may be possible while limiting the amount of disturbance.

Objective 8c. Provide Stream Fisheries Aimed at Experienced Fly-fishers and Other Anglers 

Provide a high-quality, challenging, semiprimitive fishing opportunity aimed at experienced fly-fishers 

and non-bait anglers along the upper Blitzen River, a portion of the East Canal, and tributaries 

(collectively known as the South Fishing Loop), and along a new fishing opportunity near Refuge 

Headquarters. The program shall be managed such that: 

 Drive-in access is available in close proximity on approximately 3 miles of the stream 

opportunity, with pedestrian crossings for walk-in access to 7 miles of fishable area west of the 

East Canal to the confluence of Bridge Creek at the Blitzen River 

 Conditions are uncrowded, with abundant opportunities for solitude over 11 miles of river 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-54 Chapter 2. Management Direction 

 Minimal facilities are present for a more undeveloped experience 

 Maps, brochures, regulations, and additional information are positively worded on panels and 

available at attractive and visible structures, such as wooden kiosks, at all five fishing 

entrances; 

 Redband trout and other native fish are present 

 Conflicts with wildlife and other priority wildlife-dependent recreational uses are minimized; 

 Refuge staff engages in close cooperation and coordination with State fish and wildlife 

management agencies for fisheries management 

 Fishing is consistent with State fish and wildlife laws, regulations, and management plans 

Strategies Applied to Achieve Objective 

Continue to allow fishing opportunities in the areas identified in this objective’s other strategies and 

under regulations currently in place and specified. 

Allow drive-in access on East Canal Road to the confluence of Bridge Creek with access to Granddad 

Reservoir (BLM), except when road conditions are hazardous. 

Build a new pedestrian crossing and boardwalks at Bridge Creek to access a portion of the fishable area 

west of East Canal to its confluence of Bridge Creek with the Blitzen River. 

Open new seasonal bank fishing opportunity from Sodhouse Lane to the bridge on the Boat Landing 

Road, part of the Headquarters Loop Trail. Dates for fishing access will be August 1 to September 15. 

Develop five outdoor panels with maps, brochures, regulations, and additional information at main 

entrance points, such as the East Canal, P Ranch, Bridge Creek, Sodhouse Lane, and the bridge on the 

Boat Landing Road, and provide additional signing. 

Rationale: 

The fishery as currently managed offers a semideveloped experience with greater challenge than the 

Krumbo Reservoir fishery. Re-opening the East Canal Road to Bridge Creek to vehicles under The 

management direction will provide greater access, including access to Granddad Reservoir (BLM). 

Currently, members of the fishing public either cannot or do not wish to walk long distances. Opening 

a new seasonal bank fishing opportunity from Sodhouse Lane to the bridge on the Boat Landing Road 

near Refuge Headquarters will also provide additional fishing opportunity. 

Objective 8d. Provide a Reservoir Fishery Aimed at Successful Take for Casual Anglers 

Provide a quality year-round fishing opportunity at Krumbo Reservoir aimed at providing successful 

trout and bass fishing for beginning, casual, and local anglers. The program shall be managed such that: 

 Visitors can drive in and walk short distances 

 Anglers may fish from the shoreline, on the accessible fishing dock, or by boat 

 Access for visitors with disabilities is available 

 Clean and maintained facilities, including vault toilets, picnic tables, and shelters, are available 

 Maps, brochures, regulations, and additional information will be positively worded and 

available at one attractive and visible structure, such as a wooden kiosk at the main parking 

area 

 Numerous catchable fish are present 

 Managed to minimize conflicts with wildlife and other priority wildlife-dependent recreational 

uses 

 Refuge staff engages in close cooperation and coordination with State Fish and Wildlife 

management agencies for stocking of fish and fisheries management 

 Fishing is consistent with State fish and wildlife laws, regulations, and management plans 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-55 

Strategies Applied to Achieve Objective 

Develop fishing brochure to explain fishing opportunities and regulations, and update existing website. 

Continue coordination with ODFW and stocking of Krumbo Reservoir with triploid rainbow trout with 

steps to undertake genetic introgression study on redband trout (See Objective 13d). 

Open Krumbo Reservoir to fishing year- round with drive-in access, except when road conditions are 

hazardous. For safety reasons, ice fishing or nonmotorized or electric boats will not be permitted when 

the reservoir begins to ice over. 

Develop one panel with maps, brochures, regulations, and additional information at the main parking 

area. 

Rationale:

Providing access for fishing (and other uses) year-round is a way to provide greater opportunity for this 

use and to avoid the opening day rush and overcrowding that currently occurs in the spring. As noted in 

a strategy under Objective 7a, it will also allow use of the area during fall, winter, and spring for 

wildlife observation and hikers. Some wintering use by diving ducks, swans, and other wintering 

waterfowl occurs on the reservoir, but since wintertime visitor use is expected to be light, any 

disturbance that may occur is not expected to significantly impact these species. Wildlife surveys will 

be underway in the winter of 2010-2011 to evaluate the extent of wildlife use and to estimate future 

wildlife disturbance. Camping was requested by several members of the public during scoping and was 

considered for Krumbo Reservoir to support the fishing experience; it was determined that it is 

unnecessary to provide camping in the area because of the availability of nearby camping opportunities 

on BLM and at the Narrows, and because of the demands camping would place upon refuge staff and 

law enforcement. 

The CCP team recommends continuing the current practice of stocking the reservoir with triploid 

rainbow trout, a non-native fish. Transitioning the fishery to a native redband trout fishery was 

considered but a variety of steps would need to be undertaken (public review, genetic introgression 

study, and regulation change). If the fishery was transitioned to a native fishery, it would likely require 

a regulation change to catch-and-release or two-fish limit. Although the stocking of non-native species 

is discouraged under refuge policy (601 FW 3), in this case it is justified because of the importance of 

this recreational opportunity to local and nonlocal visitors. There are only a few other such 

opportunities for year-round fishing in southeast Oregon.

Goal 9. Provide wildlife observation and wildlife/nature photography opportunities 

GOAL 9. Enhance Refuge Programs, Partnerships and Public Outreach 

Objective 9a. Enhance Refuge Programs, Partnerships and Public Outreach with Volunteer 

Opportunities 

Build a volunteer program and partnerships to help the Refuge achieve its mission and goals. The 

programs shall: 

 Identify ways the Malheur Wildlife Associates can best support the Refuge 

 Provide volunteer opportunities that allow the public to maximize their interaction with refuge 

facilities and staff 

 Focus on priority projects that will enhance the wildlife and habitat on the Refuge, and support 

a variety of projects and programs 

 Focus on building partnerships and public outreach 

 Increase recruitment, retention, and a volunteer return rate of ≥50% 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-56 Chapter 2. Management Direction 

Strategies Applied to Achieve Objective 

Continue to conduct existing volunteer program and ongoing collaboration with Malheur Wildlife 

Associates, including assisting with building their capacity. 

Establish a full-time volunteer coordinator position that will focus specifically on improving the 

volunteer program, such as by increasing recruitment, retention, and return rate of volunteers and 

expanding the program for efficient use of facilities and Refuge staff. The position will also focus on 

building partnerships and increasing public outreach. 

Rationale: 

Although the Refuge is remote, current capacity for supporting volunteers is relatively high. The 

Refuge has six RV pads with full hookups; in addition, two bunkhouses with 11 bedrooms provide the 

potential to support up to 15 volunteers at any one time. Typically 50 volunteers are on-site between 

March and October, each serving approximately two months. Over 5,000 hours are contributed 

annually with a return rate of at least 50%. However, to increase the volunteer program without 

additional assistance will be difficult. Establishing a full-time volunteer coordinator position will 

enable desired improvements to the program, efficient use of facilities, and more use of volunteers by 

Refuge staff. 

Objective 9b. Maintain an Effective Law Enforcement Presence 

Establish and maintain an effective, professional, and courteous law enforcement presence to 

discourage unauthorized uses and maintain reported incidents at a flat or declining trend over a 15- year 

period. 

Strategies Applied to Achieve Objective 

In connection with Objective 6a, improve posting of regulations at key welcome and orientation sites, 

as well as locations where fishing and hunting uses predominate (Krumbo Reservoir, Malheur Lake, 

Buena Vista Unit, etc.). 

Maintain current law enforcement staffing (one dedicated law enforcement officer). 

Continue cooperative relationships and agreements with Oregon State Police and Harney County 

Sheriff’s office. 

Continue to emphasize information, education, and a friendly presence in the field during key seasons. 

Improve fencing in certain refuge boundary areas to minimize trespass cattle. 

Rationale: 

Enforcement of Federal wildlife laws, regulations specific to the Refuge System, and State laws is an 

essential component of refuge operations; enforcement ensures that natural and cultural resources are 

protected and that visitors have a safe environment. Fortunately, law enforcement incidents at the 

Refuge are relatively few compared to other refuges. The predominant law enforcement concerns 

center on cultural resource protection, trespass cattle, and fishing and hunting compliance. Cooperative 

relationships with other law enforcement organizations improve effectiveness. 

Objective 9c. Engage Partners and Stakeholders in Adaptive Management 

Continue to work with partners and stakeholders in the pursuit of the best available science to further 

our understanding of the effects of implementing management activities, evaluating methods and 

techniques, and initiating adaptive management to address needed changes. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-57 

Strategies Applied to Achieve Objective 

Via the Ecology Work Group, develop the Malheur Refuge State-and-Transition Model (STM) (see 

Appendix L). 

Implement use of the Malheur Refuge STM. 

Use the Malheur Refuge STM as a framework for presenting results of management activities to 

partners and stakeholders. 

Via the Aquatic Health Coalition’s workgroups (control, assessment, and partnership and funding) 

develop grant proposals and conduct research to adaptively manage aquatic health. Communicate via 

the Aquatic Health Coalition list serve. 

Rationale: 

The benefits of the STM concept for Malheur Refuge are greater than the ecological understanding of 

refuge habitat it promotes. The STM is a living model that is continually transformed as new 

information is gleaned over time and because of this, it introduces an amplified dependence on 

actualized adaptive management. It also provides a framework for organizing results and reporting 

them to the interested public. The STM and the Aquatic Health Coalition provide transparency, 

heightened and continued interaction with partnering agencies/organizations, and accountability for 

continued monitoring of management actions. The desired outcome is to work collaboratively with 

others to address habitat management and aquatic health needs using the best available science, 

innovative methods and techniques, and transparency. The Refuge is committed to keeping our partners 

engaged as we move forward with adaptive management activities. 

Goal 10. Manage prehistoric and historic cultural resources on the Refuge. 

GOAL 10. Manage prehistoric and historic cultural resources for their 

educational, scientific, and cultural values for the benefit of present and 

future generations of refuge users and for the communities that are 

connected to these resources. 

Objective 10a. Identify and Protect Prehistoric and Historic Archaeological Resources 

Increase monitoring and protection of all cultural resources, prehistoric and historic, on the Refuge 

while increasing public and staff support and appreciation. 

Strategies Applied to Achieve Objective 

Continue to identify archaeological sites and historic structures that coincide with existing and planned 

roads, facilities, public use areas, habitat restoration, and research projects. Prepare and implement 

activities to mitigate impacts to sites as necessary. 

Implement a program to evaluate eligibility for listing on the NRHP for those archaeological sites and 

historic structures that may be impacted by Service undertakings, management activities, erosion, or 

neglect. 

Develop a historical buildings management plan with list of maintenance and restoration needs by 

structure. Prioritize the list by structure and include estimated repair costs. Actively seek funding and 

develop partnerships to maintain and protect structures. 

Coordinate with the Tribe on cultural resources inventory, evaluation, and project monitoring, 

consistent with the regulations of the NHPA. Protect all identifiable archaeological sites by avoiding 

disturbance within the area. 

Develop and strengthen partnerships with educational and historic institutions for the interpretation and 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-58 Chapter 2. Management Direction 

protection of cultural resources at the Refuge. 

Facilitate partnerships with other appropriate Federal and State agencies, professional archaeologists, 

descendants of early settlers, and the general public to aid in the management of cultural resources. 

Rationale: 

Various Federal historic preservation laws and regulations require the Service to implement the kind of 

program described under this objective. Providing adequate attention and resources to these 

responsibilities will identify areas to be avoided by disturbances associated with projects being 

implemented by Refuge staff as they focus on other land, habitat, and wildlife management efforts. 

Objective 10b. Provide Interpretation of Cultural Resources 

Increase awareness of and appreciation for the Refuge’s cultural resources among refuge users, the 

community, and staff.

Strategies Applied to Achieve Objective 

Prepare interpretive media (e.g., pamphlets, signs, exhibits) that communicate cultural resources 

information and Native American perspectives to visitors. 

Develop interpretive media (e.g., pamphlets, signs, exhibits) that describes the history of EuroAmerican settlement and use of the Refuge. 

Prepare environmental/cultural education materials for use by local schools concerning cultural 

resources, the discipline of archaeology, the perspectives of Native Americans, the history of the area, 

and conservation of natural and cultural resources. These materials could include an artifact replica kit 

with hands-on activities and curriculum prepared in consultation with the local school district, the 

historical society, and the Tribe. 

Consult with the Tribe and other preservation partners to identify the type of cultural resources 

information appropriate for public interpretation. 

Develop an outreach program and materials so that the cultural resource messages become part of 

cultural events in the area, including the State’s Archaeology Month, National Wildlife Refuge Week, 

and local festivals (see Objective 7c). 

Develop museum property inventory for the George Benson Memorial Museum. Create storage and use 

plans for museum property as part of the outreach program. 

Promote reuse of existing historic structures (e.g., for environmental education, interpretive programs, 

storage). 

Develop and implement interpretive plans for the Headquarters CCC site, Sod House Ranch, Benson 

Pond CCC site, P Ranch, and Double-O Ranch. 

Continue working with the Tribe on the collection of native plant materials where compatible. 

Rationale: 

Cultural resources are not renewable. Interpretation of cultural resources can raise public interest and 

appreciation for the peoples who lived in earlier times. Ultimately, such appreciation can result in 

public support for conservation, maintenance, and protection of archaeological and historic sites. 

Objective 10c. Consultation on Cultural Resources 

Increase coordination and consultation with the Burns Paiute Tribe for prehistoric resources and 

important native plants and wildlife on the Refuge. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-59 

Strategies Applied to Achieve Objective 

Continue consulting and coordinating with the Tribe on refuge projects that may affect prehistoric sites, 

native plants, or wildlife important to the Tribe. Meet with the Tribal Council at least three times a year 

to review upcoming refuge projects. 

Continue working with the Burns Paiute Tribe on the collection of native plant materials where 

compatible and the inclusion of important traditional plants in riparian or other habitat restoration 

projects. 

Rationale: 

Federal historic preservation laws and regulations require the Service to consult with Native American 

Tribes concerning projects which may affect archaeological sites. Collaborating with the Tribe on the 

inclusion of important traditional plants in refuge restoration projects ensures greater communication 

with the Tribe. 

Goal 11. Identify and protect prehistoric and historic resources on the Refuge. 

GOAL 11. Identify and protect prehistoric and historic resources on the 

Refuge that are eligible for or listed on the National Register of Historic 

Places. 

Objective 11a. Increase Management Efforts for Historic Sites Listed on or Eligible for Listing 

on the NRHP 

Identify, stabilize, and restore eligible historic resources from the homestead, ranching, and CCC eras. 

Strategies Applied to Achieve Objective 

Perform an inventory and assessment of historic sites to determine NRHP eligibility. As part of this 

inventory, identify specific stabilization and restoration costs. This should include prioritization of the 

most critical needs for each site and structure. 

Develop partnerships (University of Oregon, National Park Service, etc.) to assist in the stabilization 

and restoration of historic sites and structures. 

Rationale: 

Federal historic preservation laws and regulations require a determination of eligibility for the NRHP 

for sites 50 years or older, and preservation of historic resources determined to be eligible for listing.

Objective 10d. Establish Site Significance Factors 

Identify criteria that allow us to determine what cultural resource sites, site types, and data from sites 

are important and need preservation or analysis to address specific research questions.

Strategies Applied to Achieve Objective 

Develop a model identifying the sensitivity of various habitat types for the presence of cultural 

resources. Link these to specific layers in a GIS database. 

Perform an archaeological analysis of the Refuge and the surrounding area to formulate a short list of 

information and research needs for cultural resources and their management. 

Rationale: 

Implementation of this objective will streamline the process used to identify cultural resources that may 

be impacted by refuge projects or public uses. 
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2-60 Chapter 2. Management Direction 

Goal 12. Manage the Refuge’s paleontological resources 

GOAL 12. Manage the Refuge’s paleontological resources for their 

educational and scientific values for the benefit of present and future 

generations of refuge users. 

Objective 12a. Protect Paleontological Resources 

Increase monitoring and protection of paleontological resources on the Refuge. 

Strategies Applied to Achieve Objective 

Continue to identify paleontological sites that coincide with existing and planned roads, facilities, 

public use areas, habitat restoration, and research projects. Prepare and implement activities to mitigate 

impacts to sites as necessary. 

Rationale: 

Paleontological resources are not renewable. Federal laws and regulations mandate protection of this 

resource on Federal lands. 

Objective 12b. Provide Interpretation of Paleontological Resources 

Provide interpretation to instill appreciation for the Refuge’s paleontological resources and the valuable 

information they can yield about past environments. 

Strategies Applied to Achieve Objective 

Provide interpretation of paleontological resources at Refuge Headquarters using static displays, 

brochures, etc. 

Partner with National Park Service staff from the John Day Fossil Beds National Monument on the 

development of interpretive and educational materials about the Refuge’s paleontological resources. 

Rationale: 

Interpretation of paleontological resources can raise public interest and appreciation of the scientific 

information that can be gained from studies of fossil fauna and flora and how this information relates to 

Objective 11b. Increase Management Efforts for Prehistoric Sites Listed on or Eligible for 

Listing on the NRHP 

Identify and protect prehistoric archaeological sites listed on or eligible for listing on the NRHP. 

Strategies Applied to Achieve Objective 

Identify archaeological sites that coincide with existing and planned roads, facilities, public use areas, 

and habitat projects. Evaluate threatened and impacted sites for eligibility to the NRHP. Prepare and 

implement activities to mitigate impacts to sites as necessary. 

Implement a program to evaluate eligibility to the NRHP for those archaeological sites that may be 

impacted by Service undertakings, management activities, erosion, or neglect. 

Develop a GIS layer for cultural resources that can be used with other GIS layers for the Refuge yet 

contains appropriate locks to protect sensitive information. 

Rationale: 

Federal historic preservation laws and regulations require a determination of eligibility for the NRHP 

for archaeological sites 50 years or older. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-61 

past environments in the Great Basin. Ultimately, such appreciation can result in public support for 

conservation, maintenance, and protection of paleontological resources. 

Goal 13. Gather scientific information to support adaptive management decisions. 

GOAL 13. Gather scientific information (surveys, research, and 

assessments) to support adaptive management decisions. 

Objective 13a. Inventory and Monitoring (Surveys) 

Throughout the life of the CCP, conduct high-priority inventory and monitoring (survey) activities that 

evaluate resource management and public use activities to facilitate adaptive management. Surveys 

should contribute to the enhancement, protection, use, preservation, and management of wildlife 

populations and their habitats on and off refuge lands. Additionally, surveys can be used to evaluate 

achievement of resource management objectives identified in the CCP. These surveys have the 

following attributes: 

 Data collection techniques should result in minimal animal mortality or disturbance, and 

minimal habitat destruction 

 The minimum number of samples (e.g., water, soils, vegetative litter, plants, 

macroinvertebrates, vertebrates) to meet statistical analysis requirements will be collected for 

identification and/or experimentation in order to minimize long-term or cumulative impacts 

 All common carp will be lethally sampled unless the survey pertains to telemetry or mark and 

recapture. 

 Proper cleaning of investigator equipment and clothing as well as quarantine methods, where 

necessary, will minimize the potential spread or introduction of invasive species 

 Projects will adhere to scientifically defensible protocols for data collection, where available 

and applicable

Strategies Applied to Achieve Objective 

The following is a list of survey activities to support resource management decisions on the 

Refuge. 

Aquatic inventory and monitoring associated with highest priority habitat objectives. 

Terrestrial inventory and monitoring associated with highest priority habitat objectives. 

Wildlife inventory and monitoring associated with highest priority habitat objectives. 

Habitat inventory and monitoring associated with highest priority habitat objectives. 

Rationale: 

National Wildlife Refuge System Administration Act of 1966, as amended (16 U.S.C. 668dd-ee) 

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

Surveys will be used primarily to evaluate resource response to assess progress toward achieving 

refuge management objectives (under Goals 1-4 in this CCP) derived from the NWRS mission, refuge 

purpose(s), and maintenance of biological integrity, diversity, and environmental health (601 FW 3). 

Determining resource status and evaluating progress toward achieving objectives is essential to 

implementing adaptive management on Department of Interior lands as required by policy (522 DM 1). 

Specifically, results of the surveys will be used to refine management strategies, where necessary, over 

time in order to achieve resource objectives. Surveys will provide the best available scientific 

information to promote transparent decision-making processes for resource management over time on 

refuge lands. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-62 Chapter 2. Management Direction 

Objective 13b. Assessment of Hydrological Features Associated with Riverine Systems and 

Associated Wetlands (i.e., Blitzen River) 

Conduct geomorphological, hydrological, and biological assessments that will provide current baseline 

information about the ecological status of riverine systems (i.e., Blitzen River and tributaries) and 

associated wetlands. 

Strategies Applied to Achieve Objective

Historic channel/floodplain geometry (e.g., historic aerial photo analysis, transport measurements). 

Sediment flux (sediment/hydraulic modeling). 

Water allocation (water budget, habitat use, and availability surveys). 

Life history/habitat needs of aquatic species (population modeling, literature review, aerial photos). 

Bank erosion and incision rates (e.g., erosion pins, channel surveys). 

Channel morphology surveys (e.g., sediment budget). 

Sediment transport measurements (e.g., channel change). 

Continued gauging of flows (water supply, potential climate change, channel and floodplain change). 

Ongoing aerial photo collection and analysis (bank erosion rates, extent of floodplain inundation). 

Riparian plant surveys (composition/distribution of riparian vegetation). 

Habitat availability surveys for focal species (condition of in-stream habitat). 

Habitat use surveys for focal/invasive species (physical factors affecting aquatic species). 

Investigate bed erosion associated with in-stream structures. 

Rationale: 

See Objective 2a. 

Objective 13c. Implement Riverine Pilot Projects to Assess River and Wetland Response to 

Rehabilitation Efforts 

Utilizing information gleaned from assessment results, identify and implement two to five pilot projects 

to gain greater understanding of plant community and physical responses to rehabilitation efforts of the 

Blitzen River and associated tributaries, wetlands, and meadows. 

Strategies Applied to Achieve Objective

Study response of wetland habitats to the cessation of flood irrigation. 

Initiate small in-stream rehabilitation pilot projects in tributaries or reaches of the Blitzen River in 

response to assessment results. 

Rationale: 

See Objective 2a. The necessity of this objective is dependant upon the outcomes of Objectives 13a and 

b.

Objective 13d. Research 

Throughout the life of the CCP, conduct high-priority research projects that provide the best science for 

habitat and wildlife management on and off the Refuge. Scientific findings gained through these 

projects will expand knowledge regarding life-history needs of species and species groups as well as 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-63 

identify or refine habitat and wildlife management actions. Research also will reduce uncertainty 

regarding wildlife and habitat responses to refuge management actions in order to achieve desired 

outcomes reflected in resource management objectives and to facilitate adaptive management. These 

research projects should exhibit the following attributes: 

 Projects will adhere to scientifically defensible protocols for data collection, where available 

and applicable, in order to develop the best science for resource management 

 Data collection techniques should cause minimal animal mortality (except for invasive species) 

or disturbance and temporary habitat damage 

 Investigators should collect the minimum number of samples (e.g., water, soils, vegetative 

litter, plants, macroinvertebrates, vertebrates) to meet statistical analysis requirements for 

identification and/or experimentation in order to minimize long-term or cumulative impacts 

 All common carp will be lethally sampled unless the research pertains to telemetry or mark and 

recapture 

 Investigator equipment and clothing will be properly cleaned or quarantined, where necessary, 

to minimize the potential spread or introduction of invasive species 

 Permitted research should result in peer-reviewed articles in scientific journals and publications 

and/or symposiums 

The following is a prioritized list of research projects to support resource management decisions 

on the Refuge. 

Conduct research to gather scientific data to further carp control efforts. 

Determine management action responses by native fish and wildlife resources. 

Identify methods for restoration of crested wheatgrass plantings and cheatgrass-dominated areas to 

native sagebrush steppe communities. 

Monitor the effect of seasonal water table depths on plant communities along hydrological gradients in 

emergent marsh and wet and dry meadow habitats in select areas. 

Identify strategies for diversifying plant communities (e.g., reed canarygrass and other introduced grass 

monocultures) where appropriate. 

Rationale: 

Research projects on refuge lands would address a wide range of natural and cultural resource as well 

as public-use management issues. Examples of research projects include habitat use and life-history 

requirements for specific species/species groups, practical methods for habitat management and 

restoration, extent and severity of environmental contaminants, techniques to control or eradicate pest 

species, effects of climate change on environmental conditions and associated habitat/wildlife response, 

identification and analyses of paleontological specimens, wilderness character, modeling of wildlife 

populations, and assessment of responses of habitat/wildlife to disturbance from public uses. Projects 

may be species-specific or refuge-specific, or they may evaluate the relative contribution of the Refuge 

to issues and trends at larger landscape level (e.g., ecoregion, region, and flyway, national, 

international). Like monitoring, results of research projects would expand the best available scientific 

information and potentially reduce uncertainties to promote transparent decision-making processes for 

resource management over time on refuge lands. In combination with results of surveys, research 

would promote adaptive management on refuge lands. Scientific publications resulting from research 

on refuge lands will help increase the visibility of the NWRS as a leader in the development of the best 

science for resource conservation and management. 

Objective 13e. Scientific Assessments 

Throughout the life of the CCP, conduct scientific assessments to provide baseline information to 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-64 Chapter 2. Management Direction 

expand knowledge regarding the status of refuge resources to make better resource management 

decisions. These scientific assessments will contribute to the development of refuge resource objectives 

and they will also be used to facilitate habitat restoration through selection of appropriate habitat 

management strategies based upon site-specific conditions. These scientific assessments should exhibit 

the following attributes: 

 Use of accepted standards, where available, for completion of assessments 

 Scale and accuracy of assessments where appropriate for development and implementation of 

refuge habitat and wildlife management actions 

The following is a prioritized list of scientific assessments to support resource management 

decisions on the Refuge. 

Conduct aquatic health assessment of Malheur Lake pertaining to fish, macroinvertebrates, water, and 

plants. 

Assess avian predation on carp. 

Assess carp control study areas before and after treatment. 

Rationale: 

In accordance with policy for implementing adaptive management on refuge lands (522 DM 1), 

appropriate and applicable environmental assessments are necessary to determine resource status, 

promote learning, and evaluate progress toward achieving objectives whenever using adaptive 

management. These assessments will provide fundamental information about biotic (e.g., vegetation 

data layer) as well as abiotic processes and conditions (e.g., soils, topography) that are necessary to 

ensure that implementation of on-the-ground resource management achieve resource management 

objectives identified under Goals 1-4. 

Objective 13f. Monitor Public Use Programs 

Monitor public use programs to meet the needs and desires of refuge visitors, and to ensure visitor 

satisfaction with wildlife-dependent recreational opportunities. The program will use visitor 

satisfaction surveys or other instruments to help define and evaluate wildlife-dependent recreational 

opportunities. 

Program Indicator Method Frequency Locations Partners 

Overall use Visitation 

numbers 

Traffic counters Checked 

monthly 

Entrances at 

Headquarters 

parking area 

and P Lane 

Volunteers 

Site visits Number of 

visitors at key 

sites 

Door counter, 

head count and 

self-registration 

Checked 

monthly 

Visitor Center, 

trail heads, and 

fishing areas 

Volunteers 

Facility 

conditions 

Conditions Visual/site 

condition form 

Checked 

quarterly 

Signs, trails, 

interpretive 

panels, etc. 

Volunteers 

Welcome and 

orientation 

Number of 

users and user 

satisfaction 

Comment cards Checked 

monthly 

Visitor Center 

and key sites 

Volunteers 

Wildlife 

observation 

Number of 

users and user 

Self-registration Checked 

monthly 

Visitor Center 

and key sites 

Volunteers 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-65 

satisfaction 

Wildlife/ 

nature 

photography 

Number of 

users and user 

satisfaction 

Self-registration Checked 

monthly 

Visitor Center 

and key sites 

Volunteers 

Interpretation Number of 

users and user 

satisfaction 

Self-registration Checked 

monthly 

Visitor Center 

and key sites 

Volunteers 

Environmental 

education 

Number of 

users and user 

satisfaction 

Feedback forms Per scheduled 

programs 

All scheduled 

programs 

Hunting Number of 

users and user 

satisfaction 

Verbal 

communication 

During 

hunting 

seasons 

All hunt units 

Fishing Number of 

users and user 

satisfaction 

Self-registration Checked 

monthly 

Entrances to 

fishing areas 

Volunteers 

Volunteers and 

partnerships 

Number of 

users and user 

satisfaction 

Feedback forms 

and verbal 

communication 

End of 

volunteer tour 

of duty or 

opportunity 

All volunteers; 

partners at biannual 

intervals 

Rationale: 

Monitoring public use, including the level of visitation, facility condition, and visitor experience, 

assists in maintaining a quality public use program. Monitoring will provide a tool to evaluate the 

public use program and assist the Refuge with making needed improvements. 

Goal 14. Integrate conservation-based mission with the best available science. 

GOAL 14. Integrate our conservation-based mission with the best available 

science and become a leader in advancing best practices for the design and 

management of innovative, sustainable refuge and community development 

opportunities. 

Objective 14a. By 2020, Achieve Carbon Neutrality (striving for carbon negative), Meeting and 

Exceeding All Energy and Material Efficiency and Effectiveness as Defined by 565 FW 1 and 

Executive Order 13514 for All Facets of Refuge Management and Operations 

Strategies Applied to Achieve Objective 

Establish performance benchmarks within Environmental Management System (515 DM 4) as the 

critical first step, then create metrics and benchmarks for all other sustainability-based practices 

(environmental, social, economic, and community).

Complete audits for energy and material use, carbon footprint, and biomass-based carbon sequestration.

Integrate sustainability-based approaches into partnerships, contracts, and other external stakeholder 

efforts.

Provide staff and external stakeholder training for sustainability-based principles and practices, social 

justice/equity, community development, and partnership performance standards.
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

2-66 Chapter 2. Management Direction 

Develop projects to refit and right-size facilities, infrastructure, and vehicle fleet to maximize energy 

efficiency and production. Seek funding through Refuge Operations Needs and Deferred Maintenance 

databases, and other opportunistic and entrepreneurial funding sources.

Rationale: 

The word “sustainability” came into common use only in the past 25 years, most formally in 1987 

when the Brundtland Commission defined sustainable development as “meeting the needs of the 

present without compromising the ability of future generations to meet their own needs.” 

This widely published definition says much about the ethics and responsibility of one generation to the 

next. Sustainability is how we commonly think in terms of leaving the nation and world a better place 

for our children and grandchildren, whether in regards to family, land, and finances, or in terms of 

public land and resources. As such, it is a reinforcement of traditional American values: protection of 

our natural and cultural resources, self-sufficiency, self-determination, ingenuity, and responsibility. 

Sustainability-based planning, design, and management practices are essential to the conservation of 

biodiversity as well as, if not synonymous with, the longevity and resilience of surrounding local 

communities and landowners, who are possible partners in Refuge sustainability initiatives. 

There are numerous policy statements and initiatives that call for integrating sustainability-based 

principles and practices within the CCP. 

 USFWS Strategic Plan for Climate Change, which calls for the Service to become carbon 

neutral by 2020 

 515 DM 4, Environmental Management System (EMS), which gives facilities a systematic way 

to identify environmental impacts from operational activities and to set facility-specific goals 

and targets for sustainability; Malheur Refuge is one of 17 USFWS facilities chosen to 

implement EMS 

 Executive Order 13514, Federal Leadership in Environment, Energy, and Economic 

Performance 

 Executive Order 13423, Federal Environmental, Energy, and Transportation Management 

(codified by Section 748 of the Omnibus Appropriations Act of 2009 (P.L. 111-8)), and 

Instructions for Implementing the Order) 

 Secretary of Interior Salazar’s speech at the UN Conference on Climate Change in 

Copenhagen, entitled “New Energy Future: The Role of Public Lands in Clean Energy 

Production and Carbon Capture” 

As such, in the interest of contributing to national security and economic competitiveness through our 

mission, the Refuge must do its part in producing more energy than it consumes, storing more carbon 

than it produces, proactively adapting to climate change, and maximizing the delivery of all other 

ecological services, especially biodiversity and clean water. 

The Refuge is taking the approach of the old adage that if we are not part of the solution, then we are 

part of the problem. If we are part of the problem, then we risk being irrelevant, if not disposable, in the 

eyes of the general public. Our intent is to lead. 

2.6 References 

Bajer, P., G. Sullivan, and P. Sorensen. 2009. Effects of a rapidly increasing population of common 

carp on vegetative cover and waterfowl in a recently restored Midwestern shallow lake. 

Hydrobiologia 632:235-245. 

Brundtland Commission. 1987. Our common future: Brundtland report. Available at: 

http://www.worldinbalance.net/intagreements/1987-brundtland.php. Accessed May 25, 2011. 

Cornely, J.E., C.M. Britton, and F.A. Sneva. 1983. Manipulation of flood meadow vegetation and 

observations on small mammal populations. Prairie Naturalist 15:16-22. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

Chapter 2. Management Direction 2-67 

David, J. and G. Ivey. 1995. Double-O habitat management plan. Malheur National Wildlife Refuge. 

U.S. Fish and Wildlife Service. Princeton, OR. 88 pp. 

Pacific Flyway Council. 1997. Pacific Flyway management plan for the Central Valley population of 

greater sandhill cranes, Pacific Flyway Study Committee. Unpublished report. Portland, OR. 

44 pp. + appendices. Available at: http://pacificflyway.gov/Documents/Cvgsc_plan.pdf. 

Raleigh, R.F., T. Hickman, R.C. Solomon, and P.C. Nelson. 1984. Habitat suitability information: 

rainbow trout. FWS/OBS-82/10.60. U.S. Fish and Wildlife Service. Washington, D.C. 76 pp. 

Rule M., D. Johnson, G. Ivey, and D. Paullin. 1990. Blitzen Valley management plan. Malheur 

National Wildlife Refuge. Princeton, OR. 169 pp. 

USFWS (U.S. Fish and Wildlife Service). 2002. Writing refuge management goals and objectives: a 

handbook. Draft. U.S. Fish and Wildlife Service. Washington, D.C 

Zoellick, B.W. and B.S. Cade. 2006. Evaluating redband trout habitat in sagebrush desert basins in 

southwestern Idaho. North American Journal of Fisheries Management 26:268-281. 
Malheur National Wildlife Refuge Comprehensive Conservation Plan 

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Buena Vista Ponds 

©Maren Murphy

Chapter 3 Physical Environment

Chapter 3PhysicalEnvironment

Chapter 1Introduction andBackground

Chapter 5HumanEnvironment

Chapter 4BiologicalEnvironment Maps

Chapter 2Management Direction Appendices