Iowa

Wetland Management District

Final Comprehensive

Conservation Plan

U.S. Department of the Interior

Fish and Wildlife Service

Region 3 (Midwest Region)

Division of Conservation Planning; Bloomington, MN

U.S. Fish & Wildlife Service

 
The mission of the U.S. Fish & Wildlife Service is working with others to 

conserve, protect, and enhance fish and wildlife and their habitats for the 

continuing benefit of the American people.

The mission of the National Wildlife Refuge System is to administer a 

national network of lands and waters for the conservation, management and, 

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

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

generations of Americans.

Comprehensive Conservation Plans provide long-term guidance for 

management decisions; set forth goals, objectives and strategies needed to 

accomplish refuge purposes; and, identify the Fish and Wildlife Service's best 

estimate of future needs. These plans detail program planning levels that are 

sometimes substantially above current budget allocations and, as such, are 

primarily for Service strategic planning and program prioritization purposes. 

The plans do not constitute a commitment for staffing increases, operational 

and maintenance increases, or funding for future land acquisition.
Iowa

Wetland Management District

Final Comprehensive Conservation Plan 

Approval

Iowa WMD / Final Comprehensive Conservation Plan

i

Iowa

Wetland Management District

Final Comprehensive Conservation

Plan

Table of Contents

Iowa Wetland Management District Final Comprehensive Conservation Plan Executive 

Summary .................................................................................................................................. 1

Chapter 1: Introduction ........................................................................................................... 1

The Process and the Plan ...................................................................................................................... 1

The District.............................................................................................................................................. 2

Easements ....................................................................................................................................... 3

Purpose of and Need for the Plan .......................................................................................................... 3

Chapter 2: District Planning Context...................................................................................... 6

Refuge System Planning Guidance........................................................................................................ 6

The U.S. Fish and Wildlife Service .................................................................................................. 6

FWS Mission.............................................................................................................................. 6

The National Wildlife Refuge System .............................................................................................. 6

NWRS Mission........................................................................................................................... 7

NWRS Goals ............................................................................................................................. 7

NWRS Guiding Principles.......................................................................................................... 7

Ecological Integrity ........................................................................................................................... 8

Cooperative Farming........................................................................................................................ 9

Description of the Farming Program for the Iowa WMD ...........................................................9

Site-Specific Effects Analysis for the Farming Program in the Iowa WMD .............................14

Legal and Policy Compliance.........................................................................................................19

Wilderness Review.........................................................................................................................19

District Management Guidance ............................................................................................................20

Brief History of District Establishment and Acquisition ..................................................................20

District Purposes ............................................................................................................................23

District Vision Statement................................................................................................................26

District Goals..................................................................................................................................26

Relationship to Other Conservation Initiatives .....................................................................................26

Migratory Bird Conservation Initiatives ..........................................................................................26

Strategic Habitat Conservation ......................................................................................................27

SHC Guiding Principles ...........................................................................................................29

Plains and Prairie Pothole Landscape Conservation Cooperative ................................................29

Region 3 Fish and Wildlife Conservation Priorities........................................................................30

Climate Change Planning ..............................................................................................................30

U.S. Fish and Wildlife Service .................................................................................................30

State of Iowa............................................................................................................................31

Iowa’s State Wildlife Action Plan....................................................................................................33

Partners for Fish and Wildlife Program ..........................................................................................33

Iowa DNR Private Lands Program.................................................................................................35
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Bird Conservation Areas ................................................................................................................35

Important Bird Areas ......................................................................................................................35

Wetland Reserve Program.............................................................................................................36

Conservation Reserve Program.....................................................................................................36

Other Conservation Lands in the Area...........................................................................................38

The Planning Process ..........................................................................................................................38

Public Involvement.........................................................................................................................38

Planning Issues..............................................................................................................................39

Issues that Drive an Alternative...............................................................................................39

Wildlife...............................................................................................................................39

Habitat...............................................................................................................................39

People ...............................................................................................................................41

Alternative Development................................................................................................................41

Prepare NEPA Document and Draft Plan......................................................................................42

Prepare and Adopt Final Plan........................................................................................................42

Inventory, Monitoring, and Research.............................................................................................42

Step-Down Management Plans .....................................................................................................43

Plan Review and Revision .............................................................................................................43

Chapter 3: District Environment and Current Management.................................................44

Physical Environment ...........................................................................................................................44

Geographic Setting ........................................................................................................................44

Current Management...............................................................................................................44

Ecosystem Setting .........................................................................................................................44

Current Management...............................................................................................................45

Topography and Geology ..............................................................................................................45

Current Management...............................................................................................................45

Climate ...........................................................................................................................................47

Predicted Change....................................................................................................................47

The Soil Resource..........................................................................................................................49

Current Management...............................................................................................................51

Water Resources ...........................................................................................................................51

Current Management...............................................................................................................57

Air Quality.......................................................................................................................................58

Current Management...............................................................................................................58

Habitat ..................................................................................................................................................58

Wetlands ........................................................................................................................................64

Current Management...............................................................................................................66

Native Grasslands..........................................................................................................................66

Current Management...............................................................................................................67

Non-Native Grasslands ..................................................................................................................68

Current Management...............................................................................................................68

Other Habitats ................................................................................................................................69

Current Management...............................................................................................................70

Wildlife ..................................................................................................................................................70

Resident Wildlife ............................................................................................................................70

Plants.......................................................................................................................................70

Mammals .................................................................................................................................71

Fish and Mussels.....................................................................................................................71

Reptiles and Amphibians.........................................................................................................71

Insects .....................................................................................................................................71

Threatened and Endangered Species ...........................................................................................72

Least Tern – Endangered (Sterna antillarum).........................................................................72

Current Management ........................................................................................................72

Topeka Shiner – Endangered (Notropis topeka).....................................................................72

Current Management ........................................................................................................74

Indiana Bat – Endangered (Myotis sodalis).............................................................................74
Iowa WMD / Final Comprehensive Conservation Plan

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Current Management ........................................................................................................74

Prairie Bush Clover – Threatened (Lespedeza leptostachya).................................................74

Current Management ........................................................................................................74

Western Prairie Fringed Orchid – Threatened (Platanthera praeclara) ..................................75

Current Management ........................................................................................................75

Poweshiek Skipperling – Candidate Species (Oarisma poweshiek).......................................75

Current Management ........................................................................................................76

Dakota Skipper – Candidate Species (Hesperia dacotae)......................................................76

Current Management ........................................................................................................76

Migratory Birds ...............................................................................................................................77

Waterfowl.................................................................................................................................77

Current Management ........................................................................................................78

Shorebirds ...............................................................................................................................78

Current Management ........................................................................................................79

Water Birds ..............................................................................................................................79

Current Management ........................................................................................................80

Grassland Birds .......................................................................................................................80

Current Management ........................................................................................................80

Invasive Species ............................................................................................................................81

Current Management...............................................................................................................81

People...................................................................................................................................................82

Socioeconomic Setting...................................................................................................................82

Current Situation......................................................................................................................82

Demographics ...................................................................................................................82

Agriculture, Commodity Prices and Land Valuation .........................................................82

Land Use Patterns ............................................................................................................83

Visitor Services ..............................................................................................................................85

Current Management...............................................................................................................85

Historic and Cultural Resources ....................................................................................................86

Native American History and Early Settlement .......................................................................86

Cultural Resource Management..............................................................................................88

District Administration ....................................................................................................................89

Current Situation......................................................................................................................89

District Support...............................................................................................................................89

Current Situation......................................................................................................................89

Chapter 4: Management Direction and Implementation.......................................................91

Objectives and Strategies.....................................................................................................................91

Goal 1: Wildlife ...............................................................................................................................91

Issue 1-1: Focal species group and life cycle..........................................................................91

Goal 2: Habitat ...............................................................................................................................94

Issue 2-1: Prolonged decline of grassland-dependent bird populations due to the decline of 

grassland habitat .....................................................................................................................94

Issue 2-2: Upland habitat quality .............................................................................................96

Issue 2-3: Focal wetland type..................................................................................................99

Issue 2-4: Wetland quality .....................................................................................................102

Issue 2-5: Food plot use ........................................................................................................105

Strategic Land Protection.............................................................................................................107

Issues 2-6 and 2-7: Decreasing purchasing power of existing funds and priority areas for 

acquisition..............................................................................................................................107

Goal 3: People .............................................................................................................................109

Issue 3-1: District awareness and understanding .................................................................109

Issue 3-2: Appropriate recreational opportunities..................................................................111

Appendix A: Species Lists ...................................................................................................116

Plants..................................................................................................................................................116

Mammals ............................................................................................................................................122

Birds....................................................................................................................................................124
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Fish and Mussels................................................................................................................................134

Reptiles and Amphibians....................................................................................................................140

Appendix B: Abbreviations and Glossary...........................................................................142

Abbreviations ......................................................................................................................................142

Glossary..............................................................................................................................................143

Appendix C: Legal and Policy Guidance.............................................................................154

Appendix D: Literature Cited................................................................................................167

Appendix E: Appropriate Use Designations .......................................................................175

Appendix F: Compatibility Determinations .........................................................................190

Appendix G: List of Preparers and Contributors................................................................240

Appendix H: Communications .............................................................................................242

U.S. Fish and Wildlife Service ............................................................................................................242

Tribes..................................................................................................................................................242

Individuals...........................................................................................................................................242

Media ..................................................................................................................................................242

Congressional Officials.......................................................................................................................243

Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

...............................................................................................................................................248

Appendix J: Response to Comments..................................................................................258

Appendix K: Finding of No Significant Impact....................................................................274

Appendix L: Standard Eligibility Questionnaire for the use of Genetically Modified Crops 

on National Wildlife Refuge System Lands.........................................................................276

Appendix M: U. S. Fish and Wildlife Service Region 3 2014 Pesticide Use Policy...........284

Appendix N: 2014 Region 3 Farm Program Guidance........................................................306
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List of Figures

Figure 1-1: The Iowa WMD........................................................................................................................... 4

Figure 1-2: The Prairie Pothole Region ........................................................................................................ 5

Figure 1-3: Farm Service Agency Conservation Easements (black dots) and Area of Responsibility (gray 

shading) Managed by the Iowa WMD........................................................................................................... 5

Figure 2-1: Significant Events in the Establishment of the Iowa WMD.......................................................22

Figure 2-2: WMDs Established Under the Small Wetlands Program .........................................................23

Figure 2-3: Priority Wetland Complexes for Acquisition and Restoration in the Iowa WMD ......................24

Figure 2-4: Existing Basins in the Iowa WMD for Potential Wetland Restoration (Example).....................25

Figure 2-5: Conservation Initiatives Relevant to the Iowa WMD ................................................................28

Figure 2-6: Protected* Land in Iowa ...........................................................................................................37

Figure 3-1: Bailey’s Ecoregional Provinces, Sections, and Subsections for the Iowa WMD......................46

Figure 3-2: The Landforms of Iowa.............................................................................................................47

Figure 3-3: Soils of the Iowa WMD .............................................................................................................50

Figure 3-4: Historic and Existing Wetland Comparison of the Iowa WMD .................................................54

Figure 3-5: Watersheds, Rivers, and Lakes of the Iowa WMD...................................................................55

Figure 3-6: Iowa’s Remaining Tallgrass Prairie Remnants.........................................................................59

Figure 3-7: Potential Natural Vegetation of the Iowa WMD ........................................................................61

Figure 3-8: National Land Cover (2006) of the Iowa WMD.........................................................................62

Figure 3-9: Vegetative Cover for Spring Run Waterfowl Production Area in the Iowa WMD.....................63

Figure 3-10: National Wetlands Inventory of the Iowa WMD......................................................................65

Figure 3-11: Topeka Shiner Critical Habitat in Iowa ...................................................................................73

List of Tables

Table 2-1: Acres Farmed on Refuge System Land and Acres Planted to GMGT Crops within the Iowa 

WMD ...........................................................................................................................................................14

Table 2-2: Past Partners for Fish and Wildlife Program Projects within the Iowa WMD ............................34

Table 2-3: Partners for Fish and Wildlife Program Projects within the Iowa WMD Recorded in HabITS* .35

Table 2-4: Step-Down Management Plan Completion Schedule for the Iowa WMD .................................43

Table 3-1: Iowa WMD Vegetative Cover Type Classifications as of Summer 2011...................................60

Table 3-2: National Wetlands Inventory Water Regime for the Iowa WMD’s Wet Acres ...........................66
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Iowa WMD / Final Comprehensive Conservation Plan

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Iowa Wetland Management District Final 

Comprehensive Conservation Plan Executive 

Summary

Introduction

The Final Comprehensive Conservation 

Plan (CCP, Plan) for the Iowa Wetland 

Management District (WMD, district) is now 

complete. A separate environmental 

assessment (EA) and Draft CCP 

documents the National Environmental 

Policy Act of 1969 (NEPA) process for 

developing the CCP. In general, scoping 

revealed issues that drove alternative ways 

of managing the district. Implementation of 

each of those alternative management 

styles (including the no action alternative) 

had different effects on the physical, 

biological, and socio-economic 

environment. Analysis of those effects 

revealed the “preferred” alternative, which 

constitutes the CCP. The Plan includes goals, objectives, and strategies for the district to guide 

overall management for the next 15 years. The document can be viewed and downloaded at 

http://www.fws.gov/midwest/planning/iowawetlands/index.html. A CD or paper copy of the Plan 

can be requested through:

• E-mail at r3planning@fws.gov (Please include “Iowa WMD CCP” in the subject line); 

or

• Mail at Union Slough NWR, Attn: Iowa WMD CCP, 1710--360th Street Titonka, Iowa, 

50480; or 

• Telephone at (515) 928-2523.

The Iowa WMD consists of scattered tracts of habitat (both wetland and upland grassland) 

known as Waterfowl Production Areas (WPAs). Currently, there are 75 WPAs in 18 counties in 

north-central Iowa totaling 24,712 acres in fee title primarily managed by the Iowa Department 

of Natural Resources (DNR). Even though district acquisition has only occurred in 18 counties 

to date, a larger 35-county boundary is approved. This boundary follows the historic range of 

the poorly drained Prairie Pothole Region (PPR) in Iowa, an area known for its waterfowl 

production. The district also includes 575 WPA acres and approximately 434 Farm Service 

Agency acres in conservation easements on private land. This plan was prepared with the 

intent that the strong partnership with the Iowa DNR will continue over the next 15 years. 

Iowa Wetland Management District
Iowa WMD / Final Comprehensive Conservation Plan

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District Vision

Waterfowl and other winged wildlife herald the richness of resilient, productive wetlands and 

tallgrass prairies, bringing appreciation and satisfaction to visitors, the rewards of enduring 

commitments across ownerships throughout the Prairie Pothole Region of Iowa.

District Goals

Wildlife: In partnership with the Iowa DNR and others, restore a natural diversity and 

abundance of waterfowl, migratory birds, and other native fauna within the Iowa WMD.

Habitat: In partnership with the Iowa DNR and others, conserve, restore, and expand grassland 

and wetland habitat managing for a natural diversity of native flora within the Iowa WMD.

People: In partnership with the Iowa DNR and others, promote understanding, appreciation,

and support for the Iowa WMD as well as stewardship and understanding of the southern Prairie 

Pothole Region and its native ecosystems to visitors and local residents.

Public Involvement

Initial conversations about comprehensive 

planning for the district began mid-year of 

2009; however, the official kick-off was in

December 2011. In addition to identifying 

information essential to the planning process, 

district staff also developed a communication 

plan and a preliminary list of issues to be 

addressed in the CCP. The public scoping 

period began on January 30, 2012 and lasted 

for 30 days. The public was contacted 

through letters, news releases, and four open 

house meetings. The open houses gave the 

public an opportunity to discuss issues with 

district and Iowa DNR staff and regional 

planners. The public was also given 30 days to review and comment on the EA and Draft CCP 

document. This review period began on Monday August 19th, 2013 and was announced 

through postcards, news releases and two open house meetings.

Issues

Scoping produced ten issues that were addressed when developing alternative ways of 

managing the district: 

• What species group and life cycle is the focus of district management?

• How should the district address the decrease in populations of grassland-dependent

birds due to the decline of grassland habitat?

• How can the district improve/maintain upland habitat quality?

Public Open House Meeting
Iowa WMD / Final Comprehensive Conservation Plan

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• What wetland type is the focus of district management?

• How can the district improve/maintain wetland quality?

• How can the district manage food plot use?

• How will the district address the decreasing purchasing power of existing funds? 

• What are the district’s priority areas for acquisition? 

• How can the district promote awareness and understanding of WPAs as well as 

educate the public on the importance of their management?

• What public uses can the district allow that are appropriate and compatible with the 

U.S. Fish and Wildlife Service (FWS, Service) and National Wildlife Refuge System 

mission and meet the public demand for more recreational opportunities? 

Implementation

The following statements will apply to the district over the next 15 years:

• The general management direction in this plan will apply to all district properties in 

which the Service has acquired an interest across the 35 counties.

• Existing WPAs or other district properties will be inventoried as necessary; any new 

techniques implemented will be monitored as necessary to allow for adaptive 

management; and research will be designed when and where it was needed to 

support and/or guide management.

• Since one of the goals of refuge/district planning is, “to provide a basis for adaptive 

management by monitoring progress, evaluating plan implementation, and updating 

refuge plans accordingly” (FWS, 2000), the adaptive management process will be 

utilized in the district.

• The portions of three WPAs—Jemmerson Slough (Dickinson County), Elk Creek 

Marsh (Worth County), and Rice Lake (Winnebago and Worth Counties)— currently 

closed by state regulation as waterfowl refuges will remain closed.

• Within two years of CCP approval, it will be proposed through the federal rulemaking 

process to implement the following regulation on the Service’s fee title property 

within the Iowa WMD: “You may only use or possess approved nontoxic shot shells 

while in the field, including shot shells used for hunting wild turkey.” This 

requirement would be in line with current regulations at 50 CFR 32.2(k).

• The district will attempt to reduce its contribution to climate change as well as 

monitor the effects of climate change in the district.

The following objectives will guide management of the district over the next 15 years:

• Over the 15-year life of the CCP, increase the breeding population of Mallard by 450 

pairs and Blue-winged Teal by 450 pairs on protected wetlands (permanent state 

and federal ownership) in the PPR of Iowa, and develop strategies, as part of the 

district’s Inventory and Monitoring Plan, to set recruitment goals for these species in 

the PPR of Iowa. 
Iowa WMD / Final Comprehensive Conservation Plan

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• Over the 15-year life of the CCP, increase native grassland habitat by 7,500 acres 

with a plant diversity of 100 or more species, and provide more suitable habitat (in 

terms of vegetative structure as will be defined in the district’s Habitat Management 

Plan) in existing grassland for a wide variety of grassland-dependent birds within the 

Iowa WMD.

• At the end of the 15-year life of the CCP, perennial grassland, preferably native, is 

present on at least 97 percent of the uplands of the Iowa WMD. 

• At the end of the 15-year life of the CCP a variety of wetland types (75 percent 

temporary and seasonal, 15 percent semi-permanent, and 10 percent permanent)

exist across the Iowa WMD as representative of the pre-Euro-American settlement 

landscape. 

• Over the 15-year life of the CCP, wetlands within the Iowa WMD are restored and 

managed to provide breeding waterfowl pair densities of at least 0.9 pairs per 

wetland acre.

• During the 15-year life of the CCP, food plots are present on no greater than three 

percent of the upland acres within the Iowa WMD.

• Over the 15-year life of the CCP, continue to pursue perpetual protection of wetland 

and grassland of up to 112,000 acres in the PPR of Iowa in collaboration with county, 

state, and other federal governments, conservation organizations, private 

businesses, and concerned citizens. Landscape-level planning tools (i.e., foursquare mile survey, restorable wetlands layer, etc.) utilized by Iowa DNR and the 

Service’s Habitat and Population Evaluation Team office will guide partners as to 

where strategic land acquisition should occur. 

• Within 15 years of CCP approval, provide the infrastructure on three WPAs (such as 

trails, kiosks, pull-offs, etc.) and information (brochure, website, Facebook page, etc.) 

necessary for visitors to appreciate resources in the Iowa WMD, as defined in the 

Visitor Services Plan. 

• Upon implementation of the CCP, allow uses required by regulation (hunting, 

recreational fishing, and recreational trapping—all in accordance with state 

regulations) as well as other public uses deemed appropriate and compatible across 

the Iowa WMD. Within four years of CCP approval, appropriate and compatible uses 

will be clearly articulated to the public through uniform signage, brochures, and Iowa 

DNR and Iowa WMD websites as identified in the Visitor Services Plan.

Iowa Wetland Management District

1710 360th Street

Titonka, Iowa 50480

(515) 928-2523

http://www. fws.gov/refuge/iowa_wmd

U.S. Fish and Wildlife Service

http://www.fws.gov

Region 3, U.S. Fish and Wildlife Service

http://www.fws.gov/midwest
Iowa WMD / Final Comprehensive Conservation Plan

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Chapter 1: Introduction

Iowa WMD / Final Comprehensive Conservation Plan

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Chapter 1: Introduction

In this chapter:

The Process and the Plan

The District

Purpose of and Need for the Plan

This chapter provides introductory material that explains the process for developing as well as 

the purpose and need for the plan and provides background information about the district.

The Process and the Plan

The planning process to develop a Comprehensive Conservation Plan (CCP, Plan) for the Iowa 

Wetland Management District (WMD, district) includes eight steps (U.S. Fish and Wildlife 

Service [FWS, Service], 2000):

1. Preplanning: Planning the Plan

2. Initiate Public Involvement and Scoping

3. Review Vision Statement and Goals and Determine Significant Issues

4. Develop and Analyze Alternatives, Including the Proposed Action

5. Prepare Draft Plan and NEPA Document

6. Prepare and Adopt Final Plan

7. Implement Plan, Monitor, and Evaluate

8. Review and Revise Plan

In general, scoping reveals issues that drive alternative ways of managing the district. 

Implementation of each of those alternative management styles (including the no action 

alternative) may have different effects on the physical, biological, and socio-economic 

environment. Analysis of these effects reveals the alternative that best:

• Achieves the district purposes, vision, and goals;

• Fulfills the National Wildlife Refuge System (NWRS, Refuge System) mission;

• Maintains and where appropriate restores ecological integrity of the district and the 

Refuge System (of which the district is a part);

• Addresses significant issues and mandates; and is

• Consistent with principles of sound fish and wildlife management.

This alternative is preferred and therefore constitutes the CCP. The CCP includes goals, 

objectives, and strategies for the district to guide overall management for the next 15 years. 

Monitoring and evaluation of implementing the plan provides a basis for eventual review and 

revision (as necessary). Public, partner, tribal, and other stakeholder input guides the planning 

process and, in turn, the long-term management decisions of the district. The plan primarily 

applies to fee title properties; however, it also applies to all easement types within the district if 
Chapter 1: Introduction

Iowa WMD / Final Comprehensive Conservation Plan

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legally allowed with the general exception of management direction regarding visitor services. 

An environmental assessment (EA) was written to document the National Environmental Policy 

Act of 1969 (NEPA) planning process for developing this CCP.

Per the National Wildlife Refuge System Improvement Act of 1997 (Improvement Act) (Public 

Law, 1997), the CCP must identify and describe the following:

• Purposes of the district

• Fish, wildlife, and plant populations, their habitats, and the archeological and cultural 

values found in the district

• Significant problems that may adversely affect wildlife populations and habitats and 

ways to correct or mitigate those problems

• Areas suitable for administrative sites or visitor facilities

• Opportunities for fish and wildlife-dependent recreation

More specifically per Service Manual direction (FWS, 2000), the CCP includes the following:

• A vision for the district, which is a concise statement of what the district should be, or 

what it is desired to be, based primarily upon the Refuge System mission and 

specific district purposes, and other mandates

• Goals, which are broad statements of desired future conditions

• Objectives, which are concise statements of what, how much, when, and where to 

achieve something and who is responsible for the work

• Strategies, which are specific actions, tools, techniques, etc. to meet the objectives

Finally, the CCP for the Iowa WMD focuses on the following aspects of management:

• Focal species group and life cycle

• Prolonged decline of grassland-dependent bird populations due to the decline of 

grassland habitat

• Upland habitat quality

• Focal wetland type

• Wetland quality

• Food plot use

• Decreasing purchasing power of existing funds and priority areas for acquisition

• District awareness and understanding 

• Appropriate recreational opportunities

The District

The Iowa WMD consists of scattered tracts of habitat (both wetland and upland grassland) 

known as Waterfowl Production Areas (WPAs). As of 2011, there are 75 WPAs in 18 counties 
Chapter 1: Introduction

Iowa WMD / Final Comprehensive Conservation Plan

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in north-central Iowa totaling 24,712 acres in fee title and 575 acres in wetland and habitat 

easements (FWS, 2011a) (figure 1-1). While the federal Duck Stamp funds used to purchase 

the land are federal, the agency primarily responsible for restoration and management of the 

habitat is the Iowa Department of Natural Resources (DNR). Even though district acquisition 

has only occurred in 18 counties to date, a larger 35-county boundary is approved. This 

boundary follows the historic range of the poorly drained Prairie Pothole Region (PPR) (figure 1-

2) in Iowa, an area known for its waterfowl production due to its prime “pothole” wetland habitat. 

Union Slough National Wildlife Refuge (NWR, refuge) in Titonka, Iowa administers the district, 

which also includes 18 tracts (434.6 acres) of Farm Service Agency (FSA) conservation 

easements on private land (figure 1-3). This plan was prepared with the intent that the strong 

partnership with the Iowa DNR will continue over the next 15 years. 

Easements 

The district currently inspects 44 wetland easements, one habitat easement, and 18 FSA

conservation easements annually. These inspections include a visual search of aerial 

photography to look for tile drainage, ditches, filling, excavation, dumping, or any other violation. 

Field evaluations are also completed to make recommendations for habitat improvements and 

to discuss weed control and other general management issues. Letters are also sent to 

easement owners reminding them of its provisions and importance for waterfowl production. 

Violations are typically addressed by Service law enforcement staff seeking voluntary 

compliance. Some of the most common easement violations in the district are crop 

encroachment, rock dumping, and excavation (consolidation drainage). Finally, the Partners for 

Fish and Wildlife Program biologist at Union Slough NWR prioritizes habitat enhancement 

projects and works with landowners to repair/replace dikes and other water control structures. 

Purpose of and Need for the Plan

The Improvement Act requires the development of a CCP for each refuge/district of the Refuge 

System. These CCPs are to be completed within 15 years of the Improvement Act (i.e., 

October 2012). No CCP currently exists for the district, so there is a need to develop one. The 

purpose then, of the proposed action is to determine the desired future conditions of the Iowa 

WMD and develop long-range guidance and management direction to achieve the purposes of 

the district. This management direction will provide for the conservation of fish, wildlife, and 

plant resources and their related habitats, as well as opportunities for compatible wildlifedependent recreational uses (FWS, 2000) especially in the face of a changing climate 

(temperature/moisture changes may alter the entire PPR’s available waterfowl habitat). 

Per the Service Manual (FWS, 2000), the CCP for the district will not only describe the desired 

future conditions and management direction to achieve those conditions but will also:

• Help fulfill the NWRS Mission, which includes WMDs; 

• Maintain and where appropriate restore the ecological integrity of the district and the 

greater Refuge System of which it is a part; 

• Help achieve the goals of the National Wilderness Preservation System; and 

• Meet other mandates, especially Secretarial Order 3289 Amendment 1: Addressing 

the Impacts of Climate Change on America’s Water, Land, and Other Natural and 

Cultural Resources of 2010.
Chapter 1: Introduction

Iowa WMD / Final Comprehensive Conservation Plan

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Figure 1-1: The Iowa WMD
Chapter 1: Introduction

Iowa WMD / Final Comprehensive Conservation Plan

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Figure 1-2: The Prairie Pothole Region

Figure 1-3: Farm Service Agency Conservation Easements (black dots) and Area of 

Responsibility (gray shading) Managed by the Iowa WMD
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

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Chapter 2: District Planning Context

In this chapter:

Refuge System Planning Guidance

District Management Guidance

Relationship to Other Conservation Initiatives

The Planning Process

This chapter describes the organizational, legal, and policy context in regards to planning for 

and management of the Iowa Wetland Management District (WMD, district). This includes the 

U.S. Fish and Wildlife Service (FWS, Service) mission, the National Wildlife Refuge System 

(NWRS, Refuge System) mission, goals, and guiding principles as well as the history of the 

district and its purpose, vision, and goals.

Refuge System Planning Guidance

The U.S. Fish and Wildlife Service

The Iowa WMD is administered by the U.S. Fish and Wildlife Service, the primary federal 

agency responsible for conserving, protecting, and enhancing the Nation’s fish and wildlife 

populations and their habitats. The Service oversees the enforcement of federal wildlife laws, 

management and protection of migratory bird populations, restoration of nationally significant 

fisheries, administration of the Endangered Species Act, restoration of wildlife habitat such as 

wetlands, collaboration with international conservation efforts, and the distribution of 

conservation funding to states, territories, and tribes. Through its conservation work, the 

Service also provides a healthy environment in which Americans can engage in outdoor 

activities. Additionally, as one of three land managing agencies in the Department of the Interior 

(DOI), the Service is responsible for the Nation’s Refuge System.

FWS Mission

Working with others to conserve, protect, and enhance fish, wildlife, and plants and their 

habitats for the continuing benefit of the American people.

The National Wildlife Refuge System

The Refuge System was founded in 1903 when President Theodore Roosevelt designated a 

three-acre island off the Florida coast, Pelican Island, as a sanctuary for colonial nesting birds. 

Today, the Refuge System has grown to a network of 560 national wildlife refuges (NWR, 

refuge), 38 districts, and 49 coordination areas covering over 150 million acres of public lands 

and waters. Over 50 percent of these lands (over 76 million acres) are contained within Alaska’s 

16 refuges, with the remainder distributed throughout the other 49 states and U.S. territories. 

Since 2006, Marine National Monuments have been added to the Refuge System, bringing over 

50 million additional acres in the Pacific Ocean under federal protection and conservation 

management.

The Refuge System is the world’s largest collection of lands and waters specifically designated 

and managed for fish and wildlife. Overall, it provides habitat for more than 700 species of birds, 

220 species of mammals, 250 reptile and amphibian species, 200 species of fish, and more 
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

7

than 280 threatened or endangered plants and animals. As a result of international treaties for 

migratory bird conservation and related legislation (e.g., Migratory Bird Conservation Act of 

1929), many refuges have been established to protect migratory waterfowl and their migration 

flyways that extend from nesting grounds in the north to wintering areas in the south. Refuges 

also play a vital role in preserving threatened and endangered species. 

Refuges also provide important recreation and education opportunities for visitors. When public 

uses are deemed appropriate and compatible with wildlife and habitat conservation, they are 

places where people can enjoy hunting, fishing, wildlife observation, photography, 

environmental education, environmental interpretation, and other recreational activities. Many 

refuges have visitor centers, wildlife trails, automobile tours, and environmental education 

programs. Nationwide, over 41 million people visit national wildlife refuges annually.

NWRS Mission

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

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

United States for the benefit of present and future generations of Americans.

NWRS Goals

Revised goals for the Refuge System were adopted on July 26, 2006 and incorporated into Part 

601, chapter 1, (601 FW1) of the Service Manual (FWS, 2006). The goals are:

• Conserve a diversity of fish, wildlife, and plants and their habitats, including species 

that are endangered or threatened with becoming endangered;

• Develop and maintain a network of habitats for migratory birds, anadromous and 

interjurisdictional fish, and marine mammal populations that is strategically 

distributed and carefully managed to meet important life history needs of these 

species across their ranges;

• Conserve those ecosystems, plant communities, wetlands of national or international 

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

underrepresented in existing protection efforts;

• Provide and enhance opportunities to participate in compatible wildlife-dependent 

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

education and interpretation); and

• Foster understanding and instill appreciation of the diversity and interconnectedness 

of fish, wildlife, and plants and their habitats.

NWRS Guiding Principles

• We are land stewards, guided by Aldo Leopold's teachings that land is a community 

of life and that love and respect for the land is an extension of ethics. We seek to 

reflect that land ethic in our stewardship and to instill it in others;

• Wild lands and the perpetuation of diverse and abundant wildlife are essential to the 

quality of the American life;
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Iowa WMD / Final Comprehensive Conservation Plan

8

• We are public servants. We owe our employers, the American people, hard work, 

integrity, fairness, and a voice in the protection of their trust resources;

• Management, ranging from preservation to active manipulation of habitats and 

populations, is necessary to achieve Refuge System and Service missions;

• Wildlife-dependent uses involving hunting, fishing, wildlife observation, photography, 

interpretation, and education, when compatible, are legitimate and appropriate uses 

of the Refuge System;

• Partnerships with those who want to help us meet our mission are welcome and 

indeed essential;

• Employees are our most valuable resource. They are respected and deserve an 

empowering, mentoring, and caring work environment; 

• We respect the rights, beliefs, and opinions of our neighbors; and

• We are a science-based organization. We subscribe to the highest standards of 

scientific integrity and reflect this commitment in the design, delivery and evaluation 

of all of our work.

Ecological Integrity 

The National Wildlife Refuge System Improvement Act of 1997 directs the Service to ensure 

that the biological integrity, diversity, and environmental health of the System are maintained for 

the benefit of present and future generations of Americans. In response to this direction, the 

Service used a public process to develop policy that provides specific guidance to maintain 

biological integrity, diversity, and environmental health, collectively referred to as ecological 

integrity (FWS, 2001). The policy contains a process to evaluate each refuge/district and identify 

the best management direction to prevent degradation of environmental conditions; and where 

appropriate and in concert with refuge/district purposes and the Refuge System mission, restore 

lost or severely degraded components of ecological integrity as compared to those found under 

historic conditions. The ecological integrity components include the following: 

• Biological Integrity—Biotic composition, structure, and functioning at genetic, 

organism, and community levels comparable with historic conditions, including the 

natural biological processes that shape genomes, organisms, and communities. 

• Biological Diversity—The variety of life and its processes, including the variety of 

living organisms, the genetic differences among them, and communities and 

ecosystems in which they occur. 

• Environmental Health—Composition, structure, and functioning of soil, water, air, 

and other abiotic features comparable with historic conditions, including the natural 

abiotic processes that shape the environment. 

• Historic Conditions—Composition, structure, and functioning of ecosystems 

resulting from natural processes that we believe, based on sound professional 

judgment, were present prior to substantial human-related changes to the landscape. 

Maintaining the ecological integrity of a WMD is particularly challenging given that Waterfowl 

Production Areas (WPAs), although locally large complexes, are rather small and isolated within 

their larger landscape. For Iowa WMD, like many others, much of the larger landscape is in 
Chapter 2: District Planning Context

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9

heavy agricultural use. Therefore, WPAs are greatly influenced by the movement of sediment, 

nutrients, and agricultural chemicals from adjacent crop fields. This has led to decreased plant 

diversity and openings for many invasive plants to become established. These invasive plants 

often form dense stands and crowd out native vegetation. 

Furthermore, water quality in district wetlands has deteriorated due to sedimentation and 

eutrophication caused by runoff from neighboring farm fields. According to an unpublished 

report from a 1995 U. S. Geological Survey study at Union Slough NWR, the mean sediment 

increase in refuge pools from 1938 to 1995 was 2.62 feet, or more than 0.5 inches per year. In 

addition to sedimentation problems, a contaminant study conducted at Union Slough NWR from 

1995 to 1997 found numerous wetland quality issues including nitrate loading, elevated levels of 

ammonia, low dissolved oxygen levels, limited benthic macroinvertebrate diversity, limited 

wetland plant diversity, massive phytoplankton blooms, and elevated selenium levels (Coffey,

2000). The source of many of these problems is the effluent of drainage tiles that dump into 

wetlands. The tile introduces a pathway for excess sediment, nutrients, and pesticides to enter 

the wetlands. The influence of consolidated water from drainage tile in wetlands can effectively 

interrupt the important and natural wet/dry cycle of Prairie Pothole Region (PPR) wetlands. The 

combination of more stable water conditions and the introduction of more sediment, nutrients,

and pesticides have contributed to dense cattail stands in shallow water areas and wet meadow 

zones that are dominated by reed canarygrass. Collaborating with the Iowa Department of 

Natural Resources (DNR) and others, working within watersheds, and building complexes 

through acquisition rather than small-scattered tracts all help maintain the ecological integrity of 

the district within its landscape.

Cooperative Farming

Description of the Farming Program for the Iowa WMD

The use of farming as a land management tool supports the biological purposes and 

management strategies of the Iowa WMD presented in the EA and Draft CCP and will adhere to 

all regional and national policies and guidance, such as; Region 3 Pesticide Use Policy 

(appendix M of the Iowa WMD Final CCP), Region 3 Farm Program Guidance (appendix N of 

the Iowa WMD Final CCP) and the U.S. Fish and Wildlife Service (FWS, Service)’s Midwest 

Region Environmental Assessment (EA) for row crop farming and the use of geneticallymodified, glyphosate-tolerant (GMGT) corn and soybeans on refuge/district land (FWS, 2011c).

Farming in the Iowa WMD is accomplished primarily through the issuance of a Special Use 

Permit (SUP) or a Habitat Management Agreement (HMA) to private individuals (cooperative 

farmers). The SUP/HMA provides direction to the cooperative farmer on: types of crops to be 

planted, crop shares or cash payments for farming privileges, use of pesticides, use of best 

management practices, and other special conditions to ensure the farming program is 

conducted in an appropriate manner and within state, regional, and national Service guidance. 

The SUP/HMA is completed, issued, and signed by the Iowa WMD project leader or appropriate 

Iowa Department of Natural Resources (DNR) staff as provided in the Memorandum of 

Understanding (MOU). These annual agreements are typically written to work with the same 

cooperator farming the unit for multiple years. Some prescribed farming operations are 

conducted directly by Iowa DNR staff through provisions of the MOU. 

Farming in the Iowa WMD occurs on less than eight percent of the total district acres (updated 

as of January, 2014) and will occur on only previously disturbed areas, such as previously 
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10

farmed land. Farmed tracts vary in size from 5 to 160 acres and are located on terrain 

described as flat to gently rolling. Crops planted in the Iowa WMD currently include corn, 

soybeans, sunflower, sorghum, millet, alfalfa, wheat, and barley. Table 2-1 provides farm crop 

and acreage information for the 2011–2013 farming seasons.

Cooperative farmers utilize conventional farming practices including the use of tractors, plows, 

disks, planters, spray equipment, and combines. Each site is tilled prior to spring planting, once 

ground conditions permit the use of heavy equipment without damage to the soil (i.e., rutting). 

Tilling requires one to two days per site. Some sites may also be treated with a pre-emergent 

herbicide prior to planting. Crops such as corn and soybeans are planted. Typically, planting is 

completed in one day or less on any individual site, and planting on all sites typically begins as 

early as mid-April and is completed as late as early June depending on soil conditions and type 

of crop planted. Cooperating farmers will be subject to Service policy and regulation regarding 

use of chemicals and treated seeds. Chemical use is restricted by type and to the minimum 

necessary amount applied. 

Harvest techniques are the same for both no-till and traditional farming practices. Harvest 

begins in the fall using a self-propelled harvesting implement such as a combine. It usually 

takes about one day per site and is completed on all sites by late October or early November. 

Crops cultivated for winter food resources are left standing through the winter and harvested 

after March 1. Some crops such as winter wheat may be planted in the late summer or early 

fall. Planting and harvest activities are restricted to minimize disturbance of wildlife species. 

All use of genetically-modified crops in the Iowa WMD will occur under the guidance of the 

Service’s Midwest Region EA for row crop farming and the use of GMGT corn and soybeans on 

refuge/district land (FWS, 2011c). The use of genetically-modified crops will be limited to 

GMGT corn and soybeans, will be allowed only for the purpose of habitat restoration, and will 

under regional policy be limited to five years for any individual tract in preparation for habitat 

restoration. However, the Iowa WMD has a goal of accomplishing habitat restoration projects 

on individual tracts within just two years, weather permitting.

The Iowa WMD project leader is required to demonstrate that the proposed use of GMGT crops 

is essential for habitat restoration. If the use of GMGT crops is proposed, the project leader 

must complete a Standard Eligibility Questionnaire for Genetically Modified Crops on National 

Wildlife Refuge System Lands (appendix L of the Iowa WMD Final CCP). The Regional Chief of 

Refuges will review all requests for authorization to use GMGT crops and will approve or deny 

requests based on the questionnaire. A current farming compatibility determination that 

addresses the use of GMGT crops for habitat restoration is also required (appendix F of the 

Iowa WMD Final CCP). The use of GMGT corn and soybeans for restoration purposes has 

been authorized in the Iowa WMD and has been implemented since the 2012 farming season. 

The use of GMGT crops is not allowed for any other farming purposes, including habitat 

management, supplemental food, and attracting wildlife for viewing and photography.

For the past several years, the Service has been reducing the number of acres farmed on 

National Wildlife Refuge System (NWRS, Refuge System) land as well as the number of acres 

planted to GMGT crops within the region. This trend is also occurring in the Iowa WMD, 

especially in the number of acres of GMGT corn planted, as indicated in table 2-1. However, for 

those refuges/districts involved with land acquisition programs, farming as a land management 

tool will be necessary on those recently acquired acres. Generally, three to five years of 

farming is necessary to prepare the soil for native grass/forb seed planting, however the Iowa 

WMD has a goal of restoring farmed land within two years.
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11

The use of treated crop seeds, particularly those treated with chemicals referred to as 

neonicotinoids, have been a growing environmental concern due to potential effects on 

pollinator species. Neonicotinoids are a class of insecticides chemically similar to nicotine. They 

are marketed and distributed in various forms including sprays, powders, and seed treatments. 

Trade names containing neonicotinoids may include (but are not limited to) Acceleron®, 

Acetamiprid®, Actara®, Adage®, Adjust®, Admire®, Advantage®, Alpine®, Arena®, Assail®, 

Belay®, Calypso®, Celero®, Centric®, Clutch®, Confidor®, Cruiser®, Dinotefuran®, Encore®, 

Flagship®, Gaucho®, Helix®, Inside®, Intruder®, Ledgend®, Merit®, Meridian®, Nipsit®, 

Platinum®, Poncho® , Pravado®, Premise®, Regent®, Safari®, Scorpion®, Titan®, 

Touchstone ®, Tristar®, and Venom®. Active ingredients include: acetamiprid, clothianidin, 

dinotefuran, imidacloprid, nithiazine, sulfoxaflor, thiacloprid, and thiamethoxam. Due to this 

concern, the Iowa WMD will implement the following Region 3 guidance on the use of 

neonicotinoid treated seeds (a refuge/district manager can always be more restrictive than 

these more general regional guidelines):

• Refuge managers will exhaust all alternatives before allowing the use of 

neonicotinoid treated seeds on Refuge System land in 2014 and 2015.

• Refuge managers need to eliminate the use of neonicotinoid treated seed on Refuge 

System land in Region 3. The strategy is to start the transition in calendar year 2014 

and be "neonicotinoid seed free" in calendar year 2016. In 2014 and 2015 there will 

be some flexibility for the transition and take in to account the availability of nontreated seed. During the two transition years, refuge managers need to have an 

approved Pesticide Use Proposal (PUP) before allowing the planting of neonicotinoid 

treated seed on Refuge System land under their management. Special attention will 

be given to the "justification" section of the PUP. The PUP will become part of the 

official record and should clearly state the need to use treated seed during this 

transition period. Refuge managers must provide justification to the area supervisor 

and receive written concurrence prior to initiating a PUP for the use of neonicotinoid 

treated seeds.

• All crop seeds treated with neonicotinoid chemicals must be planted (incorporated) 

beneath the soil surface due to their high toxicity to birds. No residue seeds can be 

left above ground. Any treated seeds that are spilled and/or left above ground at the 

time of planting must be picked-up and removed or replanted underground 

immediately. The refuge/district must conduct random field spot checks at the time 

the treated seeds are planted to ensure they are incorporated beneath the soil 

surface. To accommodate this process, any Region 3 field station that uses 

neonicotinoid treated seed must complete a Region 3 Treated Seed Incorporation 

Monitoring Statement. This Statement will document that all treated seed has been 

incorporated beneath the soil surface, thus adhering to Service policy. This 

guidance also applies to fungicide treated seed as indicated in the Region 3 

Pesticide Use Policy.

• Seeds treated with neonicotinoid chemicals are listed as toxic to aquatic 

invertebrates. Therefore, field stations using neonicotinoid treated seeds must 

develop specific Best Management Practice guidelines to be included in the 

submitted PUP and implemented in the special use conditions of the SUP.

• Seed treatment chemicals cannot be mixed or applied to the crop seeds on 

refuge/district land, they must be treated off-site.
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

12

Farming, to accomplish habitat restoration objectives, is implemented primarily to prepare a 

quality seed bed for the establishment of native prairie grass and forb species. Farming may be 

utilized for one to two years to reduce unacceptable levels of undesirable chemical residue, 

noxious weeds, or non-native plant species. Newly acquired properties for the Iowa WMD are 

often land that is currently being farmed. Past prairie restoration efforts, without utilizing 

farming, have resulted in limited seedling establishment (mainly forb species) and unacceptable 

levels of invasive vegetation competition, thereby weakening prairie plant development. 

Furthermore many of the tracts acquired by the Iowa WMD have been extensively farmed for a 

long period of time, reducing the possibility that simply idling or creating “go back” prairie can be 

a feasible option. SUPS/HMAs may be utilized to extend the farming program to keep the land 

free of weeds until funds are available for habitat restoration; however, the Iowa WMD has a 

goal for the farming of any given tract of no more than two years. Under the SUP/HMA 

chemical use is restricted to promote a more favorable soil condition for native plant 

establishment and growth. The last year of farming typically requires the cooperative farmer to 

plant soybeans, as soybean stubble is a preferred substrate in which to plant native grasses 

and forbs. Native plant seeds are then broadcast on top of the ground or drilled into the 

soybean stubble depending on local planting strategies.

Through the Service’s partnership with the Iowa DNR, food plots have been established as an 

acceptable practice to provide winter food resources and provide wildlife viewing and hunting 

opportunities. The MOU between the Service and the Iowa DNR states that permanent food 

plots are permitted at levels identified in the Final CCP, the Iowa WMD Habitat Management 

Plan (to be written), and the Waterfowl Production Area (WPA) unit plans. Collaborative goals 

in the North American Waterfowl Management Plan (2012) include the following:

• Goal #2: Wetlands and related habitats sufficient to sustain waterfowl populations at 

desired levels, while providing places to recreate and ecological services that benefit 

society

• Goal #3: Growing numbers of waterfowl hunters, other conservationists, and citizens 

who enjoy and actively support waterfowl and wetlands conservation

The goals in this plan focus on engaging people with nature and growing the number of hunters. 

Food plots in Iowa are thought of as a positive practice providing excellent viewing and hunting 

opportunities. Allowing food plots on WPAs within the district, albeit limited, will assist the Iowa 

DNR (a key Service partner) in providing hunting opportunities that will in turn gain public 

support for waterfowl and wetland protection. 

Currently food plots range in size from three to ten acres; however, they are not necessary on 

all WPAs within the district. Service managers and Iowa DNR wildlife biologists will determine 

areas that would be appropriate for food plot placement. Given the waterfowl 

production/migratory bird purposes of the district, creation of edge, size of habitat patch (Warner 

et al., 2012), timing of disturbance related to farming practices (Korschgen and Dahlgren, 1992), 

and herbicide treatments of crops will be considered in the determination. Although some 

species of both migratory and resident birds have been documented nesting in corn and 

soybean row crops this may create an ecological trap (Best, 1986). For this reason managers 

need to be cautious with locations of food plots within the district. 

New management plans for individual units will involve evaluating the need for food plots on the 

tract and potential locations to lessen the impacts of disturbance, edge, chemical use, and soil 

erosion. Individual unit plans will also ensure that food plots are not located in wetland basins 
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

13

or remnant prairie sites. Many times food plots may be better situated on adjacent state WMAs, 

county conservation areas, or private land. Currently, approximately eight percent (updated as 

of January, 2014) of the district WPA properties are in row crop agriculture, mostly in 

reconstruction to prairie. It is reasonable to believe that Iowa DNR food plot objectives can be 

met with three percent of the district’s uplands in food plots without materially detracting from 

the waterfowl production purpose for the district. Three percent of the district uplands equates 

to approximately 500 acres of food plots across the district WPAs. This rate of food plot use in 

the district will be evaluated through the early stages of the Final CCP to determine the 

minimum acceptable level for food plots, especially given the partnership with the Iowa DNR 

and the district’s waterfowl production purpose. 

Wildlife food plots generally consist of plantings of corn, soybeans, sunflowers, wheat, barley, 

oats, rye, buckwheat, millet, milo, and sorghum. Cultivation of these crops is usually 

accomplished by cooperative farmers through an agreement with the Iowa DNR. Food plots will 

not be manipulated in any way to constitute baiting of migratory game birds and waterfowl as 

defined in the Migratory Bird Treaty Act of 1918 (16 U.S.C. 703–712 P.L. 105–312) and 50 CFR 

20.11–21. Standard agricultural practices will be used in farming operations with the exception 

that insecticide use will not be permitted. Crops will be left standing in the field and may be 

harvested in the early spring each year. 

Some food plots that are designed, in particular, for winter survival of Ring-necked Pheasant 

include planting shelterbelts of conifer trees and shrubs. Because grassland bird research 

suggests that some birds experience reductions in nest success and higher predation rates in 

grasslands that have been fragmented by trees (Johnson and Temple, 1990), WPAs would not 

be locations considered for shelterbelt placement in conjunction with food plots. Wetland 

vegetation can provide excellent winter cover for resident wildlife, therefore negating the need 

for shelterbelt plantings on WPAs. 

The decision to use cooperative farming for habitat restoration, habitat management, 

supplemental food, or attracting wildlife for viewing and photography would occur as part of 

strategies developed under specific program or unit habitat management planning. The use of 

farming provides a management tool that allows the WMD staff to meet the habitat goals and 

objectives. Service policy calls for maintaining or restoring WMD habitats to historic conditions 

if doing so does not conflict with refuge purposes. As practiced at the Iowa WMD, farming—

both conventional (for food plots) and with the use of glyphosate-tolerant corn and soybeans (for 

prairie restoration)—contributes to the achievement of WMDs purposes and the Refuge System 

mission, because it helps enhance and restore grassland habitat for migratory birds and 

resident wildlife. 
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

14

Table 2-1: Acres Farmed on Refuge System Land and Acres Planted to GMGT Crops 

within the Iowa WMD

Site-Specific Effects Analysis for the Farming Program in the Iowa WMD

No site-specific effects on the environment, other than what have already been disclosed in 

other NEPA documents completed by other federal agencies, are expected from the farming 

program in the district because of the following:

1. The Animal and Plant Health Inspection Service (APHIS) regulates the cultivation of 

genetically engineered organisms, not the U.S. Fish and Wildlife Service.

APHIS regulates the introduction (importation, interstate movement, or release into the 

environment) of certain genetically engineered organisms and products that may pose a risk 

to plant or animal health. APHIS exercises its regulatory authority through a system that 

includes both permits and notifications. A permit is granted for a field trial when APHIS has 

determined that the conduct of the field trial, under the conditions specified by the applicant 

or stipulated by APHIS, does not pose a plant pest risk. A researcher or developer may also 

request that APHIS no longer regulate an organism by submitting a petition for nonregulated 

status. 

Such field trials have been completed for both glyphosate-tolerant soybeans and corn. For 

soybeans, nine field tests took place between 1991 and 1994 at approximately 54 sites in 19 

states (including Iowa). “Field trial reports from these tests show no deleterious effects on 

plants, nontarget organisms, or the environment as a result of these releases,” (U.S. 

Planted by: 2013 (acres) 2012 (acres) 2011 (acres)

Cooperators/contractors to genetically-modified 

organism (GMO) corn.

370 669 826

Cooperators/contractors to GMO soybeans. 624 746 631

Cooperators/contractors to non-GMO corn. 126 155 79

Cooperators/contractors to non-GMO soybeans. 179 175 132

Cooperators/contractors to other crops as part of a 

farming rotation.

alfalfa 641, 

oats 114.5, 

sunflower 21

alfalfa 589.6, 

sunflower 

18.2, 

sorghum 6.8

alfalfa 538.6, 

oats 13.0, 

sunflower 2.6

Total Acres Farmed by Cooperators/Contractors 2,076 2,360 2,221

FWS (Iowa DNR) employees to GMO corn. 0 0 0

FWS employees to GMO soybeans. 0 0 0

FWS employees to non-GMO corn. 0 0 0

FWS employees to non-GMO soybeans. 0 0 0

FWS employees to other non-native crops as part of a 

farming rotation or a moist soil management activity. 

sorghum 28.4 

Iowa DNR

sorghum 34.7 

Iowa DNR

sorghum 43.8 

Iowa DNR

Total Acres Farmed by FWS Employees 28 35 44
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Iowa WMD / Final Comprehensive Conservation Plan

15

Department of Agriculture [USDA]-APHIS, 1994).” For corn, field tests occurred between 

1993 and 1996 in the major corn growing regions of the United States (20 states, assumed 

to include Iowa). “This line [MON 802] has been evaluated extensively to confirm that it 

exhibits the desired agronomic characteristics and does not pose a plant pest risk,” (USDAAPHIS, 1997a).

Given the field trial results, petitions for nonregulated status were also submitted for both 

soybeans and corn. In 1994 (USDA-APHIS), APHIS completed an environmental 

assessment and reached a finding of no significant impact on the environment “from the 

unconfined, agricultural use of glyphosate-tolerant soybean line 40-3-2 and its progeny.” In 

1997 (USDA-APHIS, 1997a), a similar environmental assessment was completed with a 

finding that “MON 802 corn will not have a significant adverse impact on organisms 

beneficial to plants or agriculture, or other nontarget organisms, and will not affect 

threatened or endangered species.” APHIS concluded, “There will be no significant impact 

on the human environment if MON 802 corn and its progeny were no longer considered a 

regulated article,” (USDA-APHIS, 1997a). 

Similar field trials, assessment, and finding were completed later in 1997 for glyphosatetolerant GA21 corn (USDA-APHIS, 1997b). Other extensions of these original petitions 

have been submitted in more recent years, and similar trials, assessments, and findings 

have been completed or are underway for other glyphosate-tolerant corn and soybean crop 

lines. This documentation, which includes analyses of the effects on humans and the 

environment from growing genetically engineered crops, can be found at the following 

website: http://www.aphis.usda.gov/biotechnology/petitions_table_pending.shtml. 

Since another federal agency, APHIS, regulates the cultivation of genetically engineered 

organisms and that agency has completed NEPA documentation including effects analyses 

of this activity, the Service relies on the findings from that agency when determining the 

effects of the same activity on refuge system land. APHIS has both the regulatory authority 

and the necessary technical expertise to assess effects of genetically engineered crops on 

the environment, while the Service has no regulatory jurisdiction over that activity. 

Therefore, no other site-specific effects other than what have already been disclosed by 

APHIS are expected from cultivation of genetically engineered crops by the Service. 

2. The U.S. Environmental Protection Agency (EPA) regulates the use of pesticide 

chemicals, including herbicides, in the environment. 

The EPA regulates the use of pesticide chemicals, including herbicides, in the environment. 

Under the Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA), EPA has the 

authority to regulate the testing, sale, distribution, use, storage, and disposal of pesticides. 

Before a pesticide may be sold, distributed, or used in the United States, it must be 

registered under FIFRA. 

For example, the EPA first issued a registration standard for glyphosate in June of 1986. 

Because of advances in scientific knowledge, pesticides that were first registered years ago 

are required by law to be reregistered to make sure that they meet today’s more stringent 

standards. In evaluating pesticides for reregistration, EPA obtains and reviews a complete 

set of studies from pesticide producers, describing the human health and environmental 

effects of each pesticide. Glyphosate was reregistered in 1993 as it was found to “not pose 

unreasonable risks or adverse effects to humans or the environment.” Furthermore, “EPA 

determined that the effects of glyphosate on birds, mammals, fish and invertebrates are 
Chapter 2: District Planning Context

Iowa WMD / Final Comprehensive Conservation Plan

16

minimal,” (EPA, 1993). In 1997, permanent tolerances for residues of glyphosate were 

established in or on raw agricultural commodities including field corn varieties geneticallymodified to be tolerant of glyphosate (EPA, 1997). 

The herbicide 2,4-D has been used since the 1940s as a pre-plant or post-emergent 

herbicide to control broadleaf weeds on a broad range of crop and non-crop sites, including 

cornfields. The EPA first issued a registration standard for 2,4-D in 1988, and the herbicide 

was reregistered in 2005. In summary, the EPA stated, “Some ecological risks are of 

concern on some sites for some species,” (EPA, 2005). They provide mitigation measures 

“expected to lessen, but not eliminate, the risk of 2,4-D to wildlife and plants,” (EPA, 2005). 

Currently, 2,4-D is approved for pre-plant and post-emergent application on corn and preplant application on soybeans.

Dicamba is widely used in agricultural, industrial, and residential settings for the post 

emergent control of certain broadleaf weeds and woody plants. It was first registered by the 

EPA in 1967 and was reregistered in 2006 with amendments in 2008 (EPA, 2009). During 

the reregistration, the EPA determines whether the pesticide meets the "no unreasonable 

adverse effects" criteria of FIFRA. As a result of the reregistration review, the EPA 

“determined that all products containing the active ingredient dicamba are eligible for 

reregistration provided that the risk mitigation measures indicated in the document are 

adopted,” (EPA, 2009).

APHIS is currently considering the deregulation of new genetically engineered corn, 

soybean, and cotton plants resistant to the herbicides known as 2,4-D and dicamba. 

However, the use of GMO crops in the Iowa WMD is limited to glyphosate-tolerant corn and 

soybeans (FWS 2011c). 

Since another federal agency, the EPA, regulates the use of pesticides, and that agency has 

completed NEPA documentation including effects analyses of this activity, the Service relies 

on the findings from that agency when determining the effects of the same activity on refuge 

system land. The EPA has both the regulatory authority and the necessary technical 

expertise to assess effects of pesticide use on the environment while the Service has no 

regulatory jurisdiction over that activity. Therefore, no other site-specific effects other than 

what have already been disclosed by the EPA are expected from pesticide use by the 

Service. 

3. The farming program in the district will follow the Service’s Midwest Region 

Environmental Assessment (EA) for row crop farming and the use of geneticallymodified glyphosate tolerant (GMGT) corn and soybeans on refuge/district land.

In 2011, the Service’s Midwest Region completed an EA for row crop farming and the use of 

GMGT corn and soybeans on refuge/district land (FWS, 2011c). Under the selected 

alternative, beginning in calendar year 2012, the use of GMGT corn and soybeans on 

Refuge System land in the Midwest Region would continue only for the purpose of habitat 

restoration. According to the EA, the use of GMGT corn and soybeans would be limited to 

five years on any individual tract being prepared for habitat restoration. Farming could 

continue to be used as a management tool for achieving multiple objectives; however, it 

would be limited to non-GMGT crops for objectives other than habitat restoration. Multiple 

objectives include but are not limited to the following:

o Habitat restoration
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o Habitat management

o Supplemental food for wildlife 

o Attracting wildlife for viewing and photography

Similarly, the Service’s ecological integrity policy specifies that GMGT crops cannot be used 

on Refuge System land unless they are “essential to accomplishing refuge [district] 

purposes.” Habitat restoration is a core objective of most refuges (districts) in achieving their 

purpose and in some circumstances, the use of GMGT crops could be essential. However, 

habitat management, supplemental food, and wildlife viewing objectives can more readily be 

accomplished without the use of GMGT seeds, and thus, their use is not likely essential.

Furthermore, refuge and district managers are required to demonstrate that their proposed 

use of GMGT crops is essential for habitat restoration. The Service has established an 

approval process for the use of GMGT corn and soybeans that includes completion of a 

Standard Eligibility Questionnaire for Genetically Modified Crops on National Wildlife Refuge 

System Lands (appendix L of the Iowa WMD Final CCP). When managers propose to use 

GMGT corn and soybeans, they are required to complete this questionnaire as part of the 

approval process. There will be strict adherence to the regional programmatic EA regarding 

the use of GMGT corn and soybeans within the Iowa WMD. 

4. The farming program in the district will adhere to all national, Department of Interior, 

Service, and Region 3 policies regarding pest management and treatments.

Pest management activities on Service land and facilities must conform to all EPA 

regulations, chemical labels, Material Safety Sheets, and Service and Department of the 

Interior policies and directives including:

517 DM 1 (http://www.nature.nps.gov/biology/ipm/Documents/DOI517DM1.pdf),

569 FW 1 (http://www.fws.gov/policy/569fw1.html),and 

242 FW 7 (http://www.fws.gov/policy/242fw7.html). 

These policies state that pests will be managed using an integrated sustainable approach 

when the pest is detrimental to site management goals and objectives and the planned pest 

management actions will not interfere with achieving site management goals and objectives. 

Service employees use their best professional judgment and available scientific information 

to select the lowest risk, most effective integrated pest management method, or combination 

of methods that is feasible for each pest management project.

If chemical treatment is considered, a Pesticide Use Proposal (PUP) must be prepared and 

approved by an appropriate level supervisor prior to the chemical application.

PUPS are extensive, detailed documents that require specific information about the planned 

treatment (pest target, threshold for treatment, active ingredient, application rate, 

application method) as well as a descriptions of the treatment site(s) (soil type, slope, 

organic content, nearest water, depth to ground water).

The PUPs are valid for only one year and provide a timely, site-specific evaluation of the 

current conditions. Reports regarding the efficacy of the treatments are required in February 
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of each year so Service staff can evaluate past management actions, and refine and 

improve subsequent control measures. 

5. Best Management Practices (BMPs) are currently being used for the farming program in 

the district, and a more thorough list of BMPs will be developed for the farming program 

to follow in the future.

In general, the Refuge System is reducing the amount of farming on national wildlife refuges 

(NWRs, refuges) and WMDs including the use of genetically-modified crops and pesticides. 

Farming with genetically-modified crops within refuges/districts is restricted to a very specific 

purpose (i.e., habitat restoration). Due to the many policies (e.g., Pesticide Use Policy, 

(appendix M of the Iowa WMD Final CCP); the regional programmatic EA regarding the use 

of GMGT corn and soybeans, etc.; the approval processes (e.g., Pesticide Use Proposals, 

Special Use Permits, Habitat Management Agreements, Memorandums of Understanding, 

etc.); and guidelines (e.g., Best Management Practices, Regional Direction regarding 

cooperative farming, etc.) in place governing farming practices on Refuge System land, 

farming within the Iowa WMD is not expected to have the potentially significant adverse 

effects to the environment as surrounding farming practices on private land described within 

the Iowa WMD EA and Draft CCP. 

Farming is used on the Iowa WMD to accomplish habitat and wildlife goals and purposes. 

Both the Service and Iowa DNR strive to use the best management practices when 

implementing farming as a habitat management strategy. Examples of items that are 

considered in habitat management plans include slope, distance to wetlands and ground 

water, habitat buffers, and disturbance of wildlife. When farming is used to prepare the seed 

bed of a newly acquired property (typically in row crop agriculture), both the Service and the 

Iowa DNR typically use farming cooperators and Habitat Management Lease Agreements or 

Special Use Permits. In these documents the Service articulates through stipulations the 

best management practices that will be used on the district property. Examples of 

agreement stipulations include the following:

Note: These stipulations may change over time to reflect new information.

o Use of chemicals must be approved through a Pesticide Use Proposal.

o Manure applications are prohibited.

o Fall tillage is prohibited unless its use is specified in the management plan for the 

year of prairie seeding.

o Habitat management plans must be followed.

o Glyphosate tolerant corn and soybean seed may only be used for habitat restoration 

purposes.

o Farming for wildlife food production or other purposes will utilize non-geneticallymodified crop seed.

o No insecticides may be used.

Chemical application provides the most effective means for site preparation prior to prairie 

restoration. Chemical site preparation reduces potential future applications by reducing 

weed seeds prior to restoration. Crop rotations with brome-alfalfa nesting habitat, corn, 

soybeans, oats, and other crops allow for mechanical control of crop pests and chemical 
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rotations to reduce the development of chemical resistant weeds. The following Best 

Management Practices will be followed to lessen any potential effects from pesticide 

application within the Iowa WMD:

o Allow pesticide application buffers around sensitive areas,

o Follow pesticide labels,

o Spray only when winds are 12 mph or less (but not inversions),

o Control drift through use of low pressure and nozzles that create larger droplets, 

o Monitor current and predicted winds, 

o Monitor predicted rainfall,

o Be cautious around shallow groundwater, and

o Maintain a buffer around water and wetlands.

6. The land in the farming program within the district has been privately farmed for over a 

century, more recently with the use of GMGT crops and pesticides. 

European settlers to Iowa began farming early in the 1800s. By the 1870s, farms and small 

towns covered the entire state. Over time, the settlers learned a lot about farming and made 

many changes in equipment and crops. The number of farms tended to decrease over time, 

but the size of farms steadily increased. Scientific advances in biotechnology (crop 

genetics, broadcast treatment of weeds, etc.) as well as general technology (larger and 

more aggressive tillage equipment, more accurate planting and harvesting equipment, etc.) 

continue to change and influence farming today as it did in the past. Farming in the Iowa 

WMD occurs on less than eight percent of the total district acres (updated as of January, 

2014) and will occur on only previously disturbed areas, such as previously farmed or 

currently farmed land. The farming program is simply used as a tool to prepare the seedbed 

for restoration of natural cover. 

In summary, no significant effects are expected from any of the proposed activities, based on 

the effects analysis completed in the EA for the Iowa WMD Draft CCP as well as the various 

effects analyses completed and cited above by APHIS regarding genetically engineered crops 

and the EPA regarding pesticide regulation. These analyses together constitute a “hard look” at 

the potential effects on the environment from the farming program in the Iowa WMD. 

Furthermore, various Section 7 consultations, with the Ecological Services branch of the Service 

in concurrence, have been completed for pesticide use in the Iowa WMD regarding threatened 

and endangered species. 

Legal and Policy Compliance

Laws, Executive Orders, and DOI and Service policies guide administration of refuges (including 

WMDs). A list of pertinent statutes and policy guidance are in appendix C.

Wilderness Review

Refuge/district planning policy mandates that wilderness reviews be conducted through the 

comprehensive conservation planning process (FWS, 2000). The wilderness review process 

consists of three phases: inventory, study, and recommendation. In the inventory phase, 
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Service-owned lands and waters within the refuge or district that are not currently designated 

wilderness are analyzed for areas that meet the criteria for wilderness established by Congress. 

The criteria are size, naturalness, opportunities for solitude or primitive recreation, and 

supplemental values. Areas that meet the criteria become Wilderness Study Areas (WSAs). In 

the study phase, a range of management alternatives are developed and evaluated for the 

WSAs to determine if they are suitable for recommendation for inclusion in the National 

Wilderness Preservation System. In the recommendation phase, the suitable recommendations 

are forwarded in a Wilderness Study Report that moves from the director through the secretary 

and the president to Congress.

No lands within the Iowa WMD meet the criteria for wilderness established by Congress and 

described in Service policy (FWS, 2008b). The Iowa WMD does not contain 5,000 contiguous 

acres of roadless, natural lands, nor does it possess any units of sufficient size to make their 

preservation practicable as wilderness. District lands and waters have been substantially altered 

by humans, especially by agriculture and residential and industrial developments. 

District Management Guidance

General guidance for managing the district comes from several sources including its purposes, 

the Refuge System mission, Service policies, and other laws. The vision and goals developed 

during this planning process will also guide management of the district. 

Brief History of District Establishment and Acquisition

The Iowa WMD, like many other WMDs, was established due to the success of the Small 

Wetlands Program (figure 2-1). To help permanently protect habitat for waterfowl, the Small 

Wetlands Program was officially created in 1958, with an amendment to the 1934 Migratory Bird 

Hunting Stamp Act (also known as the Duck Stamp Act). This amendment allowed proceeds 

from the sale of federal Duck Stamps to be used to acquire WPAs in any state with the 

Director’s (or Director’s appointee) approval (figure 2-2). 

In 1962, to help effectively manage the increasing number of WPAs acquired through the Small 

Wetlands Program, the Service created an administrative organization called a wetland 

management district (WMD). WMDs were established not only to manage all the WPAs in a 

multi-county area, but also to work closely with the private landowners, government and 

nongovernment organizations, businesses, and other federal agencies in their districts to 

improve wildlife habitat. Uniquely, however, in Iowa, with the signing of a Memorandum of 

Understanding (MOU) in 1978, it was decided that while the Service would provide federal Duck 

Stamp funds for land acquisitions, the Iowa DNR would supply the personnel necessary to 

restore and manage those acquisitions (WPAs). The initial approval from the state limited 

acquisition of land to 17 counties in north-central and northwest Iowa. This approval 

established the Iowa WMD, and in 1979 the first tract of land (WPA), known as West Swan 

Marsh, was purchased in Emmet County. A second tract, also in Emmet County, was 

purchased in 1980. Yearly acquisition, however, did not resume in the district until eight years 

later. 

In 1988, through the Prairie Pothole Joint Venture (PPJV) Program, the Iowa DNR established a 

priority area within the state to focus the use of Small Wetlands Program funds. This 35-county 

area in north-central Iowa generally follows the geologic area referred to as the Des Moines 

Lobe. This represents the southernmost advancement of the glaciers that shaped the prairie 
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pothole landform in Iowa. Both the approval for acquisition from the state and the MOU with the 

Iowa DNR were revised to include these 35 counties. 

In 2000, the MOU was updated again, and while the 35-county acquisition area remained the 

same, priority was given to the wetland complexes identified in “Identification of potential 

wetland complex restorations in the Iowa Prairie Pothole Region” (Iowa DNR, 1998). The Iowa

DNR revised this plan in 1999 and 2002, and then in 2007, it completed a modeling exercise to 

revise focus areas for acquisition (figure 2-3). 

Between 2000 and 2010, the Service’s Habitat and Population Evaluation Team (HAPET) also 

developed and completed three revisions of thunderstorm maps utilizing the National Wetlands 

Inventory (NWI) data to help identify priority sites for acquisition and restoration. Most recently, 

in 2010, the Plains and Prairie Potholes Landscape Conservation Cooperative (LCC) began a 

wetland assessment and restorable wetland inventory to help refine priority acquisition areas. 

This project used Light Detection and Ranging (LiDAR) data to find depressions and substituted 

the NWI wherever available for existing water and wetlands to produce a layer of depressions 

where, if flooded, wetlands may be established (figure 2-4). Currently, the Iowa WMD consists 

of 75 WPAs totaling just over 25,000 acres (including fee title and both wetland and habitat

easements) in 18 counties. Finally, a revision to the MOU was completed in 2012 during the 

Comprehensive Conservation Plan (CCP, Plan) planning process (appendix I).
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Figure 2-1: Significant Events in the Establishment of the Iowa WMD
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Figure 2-2: WMDs Established Under the Small Wetlands Program

District Purposes

Iowa WMD is part of a national network of lands administered by the Service as the Refuge 

System. Each unit of the Refuge System has one or more purposes specified in or derived from 

the legal instrument that established, authorized, or expanded it. The first obligation is to fulfill 

and carry out the purposes of each refuge (or district) (FWS, 2006). The purposes for Iowa 

WMD are based upon its land acquisition authority, which is, the Migratory Bird Hunting and 

Conservation Stamp Act of 1934:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act 

[Migratory Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . 

. . ” 16 U.S.C. § 718(c) “ . . . for any other management purpose, for migratory birds." 16 

U.S.C. § 715d
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Figure 2-3: Priority Wetland Complexes for Acquisition and Restoration in the Iowa WMD
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Figure 2-4: Existing Basins in the Iowa WMD for Potential Wetland Restoration (Example)

*Restorable Wetlands Layer Courtesy Iowa DNR
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District Vision Statement

The vision provides a concise statement of what the district is, or what it is desired to be, based 

primarily upon the Refuge System mission and specific district purposes and other mandates. 

The Iowa WMD vision is: 

Waterfowl and other winged wildlife herald the richness of resilient, productive wetlands 

and tallgrass prairies, bringing appreciation and satisfaction to visitors, the rewards of 

enduring commitments across ownerships throughout the Prairie Pothole Region of 

Iowa.

District Goals

The goals are broad statements that describe the desired future conditions of the district.

Goal 1: Wildlife

In partnership with the Iowa DNR and others, restore a natural diversity and abundance 

of waterfowl, migratory birds, and other native fauna within the Iowa WMD.

Goal 2: Habitat

In partnership with the Iowa DNR and others, conserve, restore, and expand grassland 

and wetland habitat managing for a natural diversity of native flora within the Iowa WMD.

Goal 3: People

In partnership with the Iowa DNR and others, promote understanding, appreciation, and 

support for the Iowa WMD as well as stewardship and understanding of the southern 

Prairie Pothole Region and its native ecosystems to visitors and local residents.

Relationship to Other Conservation Initiatives

Migratory Bird Conservation Initiatives

Several migratory bird conservation plans have been published over the last decade that can be 

used to help guide management decisions for the district. Bird conservation planning efforts 

have evolved from a largely local, site-based orientation to a regional, even intercontinental, 

landscape-oriented perspective. Several transnational migratory bird conservation initiatives 

have emerged to help guide the planning and implementation process. The one regional plan 

most relevant to the majority of the district is the Prairie Pothole Joint Venture Implementation 

Plan (http://www.ppjv.org/) (figure 2-5). This plan is a product of stepping-down and 

incorporating all other larger-scale (North American, United States, international, etc.) species 

and other management plans, in particular the North American Waterfowl Management Plan. 

The PPJV of the North American Waterfowl Management Plan is an effort by government 

agencies and conservation organizations to protect and restore waterfowl habitat within the PPR 

of the United States and Canada. Although initially targeted at waterfowl species, emphasis 

within the PPJV has been extended to nongame species as well. Research sponsored by Iowa
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DNR and Iowa State University has demonstrated that a variety of birds and other species of 

greatest conservation need have successfully re-colonized the restored habitats (Zohrer, 2005).

More specifically, the district lies primarily within the Prairie Potholes Bird Conservation Region 

(Bird Conservation Region [BCR] 11) (figure 2-5). This BCR is a glaciated area of mixed-grass 

prairie in the west and tallgrass prairie in the east. This is the most important waterfowl 

production area on the North American continent, despite extensive wetland drainage and 

tillage of native grasslands. Breeding dabbling duck density may exceed 100 pairs per square 

mile in some areas during years with favorable wetland conditions. The region comprises the 

core of the breeding range of most dabbling duck and several diving duck species, as well as 

providing critical breeding and migration habitat for over 200 other bird species, including such 

priority species as Franklin’s Gull (Leucophaeus pipixcan), Yellow Rail (Coturnicops 

noveboracensis), and Piping Plover (Charadrius melodus). Baird’s Sparrow (Ammodramus 

bairdii), Sprague’s Pipit (Anthus spragueii), Chestnut-collared Longspur (Calcarius ornatus), 

Wilson’s Phalarope (Phalaropus tricolor), Marbled Godwit (Limosa fedoa), and American Avocet 

(Recurvirostra americana) are among the many priority non-waterfowl species breeding in this 

region. Wetland areas also provide key spring migration sites for Hudsonian Godwit (Limosa 

haemastica), American Golden-Plover (Pluvialis dominica), White-rumped Sandpiper (Calidris 

fuscicollis), and Buff-breasted Sandpiper (Tryngites subruficollis). Continued wetland 

degradation and fragmentation of remaining grasslands threaten future suitability of the PPR for 

all of these birds. 

BCR 11 contains 27 bird species listed as “Of Conservation Concern” by the Service (FWS,

2008a). This list identifies species, subspecies, and populations of all migratory nongame birds 

that, without additional conservation actions, are likely to become candidates for listing under 

the Endangered Species Act. The overall goal of this report is to identify the migratory and nonmigratory bird species (beyond those already designated as federally threatened or 

endangered) that represent the Service’s highest conservation priorities. The Service based its 

2008 list of Birds of Conservation Concern primarily on the land bird, shorebird, and water bird 

status assessment scores. Some of the species on this list include Horned Grebe (Podiceps 

auritus), Least Bittern (Ixobrychus exilis), Swainson’s Hawk (Buteo swainsoni), Mountain Plover 

(Charadrius montanus), Long-billed Curlew (Numenius americanus), Short-billed Dowitcher 

(Limnodromus griseus), Short-eared Owl (Asio flammeus), Grasshopper Sparrow 

(Ammodramus savannarum) and Dickcissel (Spiza americana).

Strategic Habitat Conservation

Strategic habitat conservation (SHC) is a science-based approach to conservation focused on 

providing landscapes capable of sustaining trust species populations at objective levels. This 

approach is founded on an adaptive, iterative process of biological planning, conservation 

design, conservation delivery, monitoring, and research. SHC is an application of the scientific 

method and adaptive management to conservation at multiple spatial scales. This strategic 

conservation approach will include all Service programs and address both habitat and nonhabitat factors limiting fish and wildlife populations.
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Figure 2-5: Conservation Initiatives Relevant to the Iowa WMD
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As a leader in fish and wildlife and habitat conservation and management, the Service is 

embracing a framework designed to maximize agency efficiency and increase on the ground 

conservation impacts. SHC enables the Service to:

• Respond to new environmental challenges;

• Advance opportunities with new and existing partners;

• Utilize science-based tools and resources to plan and evaluate conservation efforts; 

and

• Continue to ensure conservation successes locally, while advancing landscape 

objectives.

The Service mission can be met at a landscape scale, especially in the face of climate change, 

by:

• Fully utilizing existing technology such as Geographic Information System (GIS);

• Becoming trained in better decision making through the Structured Decision Making 

process;

• Reaching out to even more partners that have the necessary expertise to advance

knowledge of the resource and its needs at multiple spatial and temporal scales; and 

• Being diligent and transparent in planning and decision making processes. 

SHC Guiding Principles

• Habitat conservation is simply a means to attain the Service’s true goal—the 

conservation of populations and ecological functions that sustain them.

• Defining measurable population objectives is a key component of SHC, at any scale.

• Biological Planning must use the best scientific information available, both as a body 

of knowledge and a method of learning. Service understanding of ecological 

conditions is never perfect. An essential element of SHC is managing uncertainty 

through an iterative cycle of planning, doing, and evaluating.

• Management actions, decisions, and recommendations must be defensible and 

explicit about the nature and magnitude of potential errors.

• Conservation strategies consist of dynamic suites of objectives, tactics, and tools 

that change as new information enters the SHC cycle.

• Partnerships are essential, both for management and for developing conservation 

strategies. 

Plains and Prairie Pothole Landscape Conservation Cooperative

The Service, with support and cooperation from the U.S. Geological Survey, has developed a 

national geographic framework for “putting science in the right places” to conserve our Nation’s 

fish and wildlife resources. Just as flyways provided an effective spatial frame of reference to 

build capacity and partnerships for international, national, state, and local waterfowl 

conservation, the national geographic framework provides a continental platform upon which the 
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Service can work with state and other partners to connect project- and site-specific efforts to 

larger biological goals and outcomes. By providing visual context for conservation at 

“landscape” scales—the entire range of a priority species or suite of species—the framework 

helps ensure that resource managers have the information and decision making tools they need 

to conserve fish, wildlife, plants, and their habitats in the most efficient and effective way 

possible.

The Service is using the framework as a basis for locating LCCs. Facilitated by DOI as part of 

its collaborative, science-based response to climate change, LCCs complement and build upon 

existing science and conservation efforts—such as fish habitat partnerships and migratory bird 

joint ventures—as well as water resources, land, and cultural partnerships. Iowa WMD is 

primarily within the boundary of the Plains and Prairie Pothole LCC, which is one of a network of 

partnerships working in unison to ensure the sustainability of America’s land, water, wildlife, and 

cultural resources.

The Plains and Prairie Potholes LCC is dedicated to the conservation of a landscape 

unparalleled in importance to a vast array of unique species whose populations are in steep 

decline. The LCC boundary transcends existing Service regional boundaries and the 

international border with Canada (figure 2-5). Currently, the Service and its partners are 

working to develop and apply the scientific tools necessary to determine how climate change, 

coupled with existing stressors such as the conversion of native prairie for agricultural purposes 

may affect the health and productivity of shared natural resources in this landscape. The actions 

of the Plains and Prairie Pothole LCC will support and supplement state wildlife action plans and 

enhance protection for fish and wildlife resources in the region.

Region 3 Fish and Wildlife Conservation Priorities

Every species is important; however, the number of species in need of attention exceeds the 

resources of the Service. To focus effort effectively, Region 3 of the Service compiled a list of 

Resource Conservation Priorities in 2002. The list includes: 

• All federally listed threatened and endangered species and proposed and candidate 

species that occur in the region;

• Migratory bird species derived from Service-wide and international conservation 

planning efforts; and 

• Rare and declining terrestrial and aquatic plants and animals that represent an 

abbreviation of the Endangered Species Program’s preliminary draft “Species of 

Concern” list for the region. 

Climate Change Planning

U.S. Fish and Wildlife Service

The Service’s Rising to the Urgent Challenge: Strategic Plan for Responding to Accelerating 

Climate Change (FWS, 2010) establishes a basic framework within which the Service will work 

as part of the larger conservation community to help ensure the sustainability of fish, wildlife, 

plants, and habitats in the face of accelerating climate change. It was developed in an effort to 

rise up and respond to, as well as in recognition of, what is perhaps the 21st century’s largest 

stressor on fish, wildlife, and plants: climate change. Part of the plan’s primary purpose is to lay 
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out a vision for accomplishing the Service mission to “work with others to conserve, protect, and 

enhance fish, wildlife, and plants and their habitats for the continuing benefit of the American 

people” in the face of accelerating climate change. In this plan, a commitment to the Service’s 

vision is expressed through strategic goals and objectives that must be accomplished to sustain 

fish and wildlife nationally and internationally. A 5-Year Action Plan for Implementing the 

Climate Change Strategic Plan identifies specific actions that will lead to the accomplishment of 

these goals and objectives. The goals and objectives most relevant to this planning effort 

include the following: 

• Goal 2: Develop long-term capacity for biological planning and conservation design 

and apply it to drive conservation at broad, landscape scales.

• Objective 2.1: Access regional climate science and modeling expertise through 

regional climate science partnerships.

• Objective 2.2: Develop landscape conservation cooperatives to acquire biological 

planning and conservation design expertise.

• Objective 2.3: Develop expertise in and conduct adaptation planning for key species 

and habitats.

• Objective 2.4: Incorporate climate change in service activities and decisions.

• Objective 2.5: Provide requested support to state and tribal managers to address 

climate change issues that affect fish and wildlife service trust resources.

• Objective 2.6: Evaluate fish and wildlife service laws, regulations, and policies to 

identify barriers to and opportunities for successful implementation of climate change 

actions.

The Conserving the Future: Wildlife Refuges and the Next Generation (FWS, 2011b) document 

is the Service’s bold, new vision for the Refuge System. This 21st-century strategic vision for 

the Refuge System acknowledges the broad social, political, and economic changes that have 

made habitat conservation more challenging since the agency last set comprehensive goals in 

1999. In the intervening 12 years, the new vision states the Nation’s population has grown 

“larger and more diverse . . . and the landscape for conservation has changed—there is less 

undeveloped land, more invasive species, and we are experiencing the impacts of a changing 

climate.” The document includes 24 recommendations to guide the future of the Refuge 

System. The recommendation most relevant to this planning effort concerning climate change 

is:

Recommendation 2: Develop a climate change implementation plan for the Refuge 

System that dovetails with other conservation partners’ climate change action plans and 

specifically provides guidance for conducting vulnerability assessments of climate 

change impacts to refuge/district habitats and species as well as direction for innovation 

in the reduction of emissions and improved energy efficiency on federal lands.

State of Iowa

The Iowa General Assembly enacted legislation in 2007 and 2008 to create the Iowa Climate 

Change Advisory Council (ICCAC). The ICCAC conducted most of its business from late 2007 

through the end of 2008, concluding with a final report (ICCAC, 2008) to the governor and 

legislature. The focus of that report was the need to reduce greenhouse gas (GHG) emissions 
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in the state. Some progress has been made, but much work remains to be done to reverse the 

general trend of increasing Iowa GHG emissions during the past two decades.

Following this report, the Iowa Legislature requested additional information on the ramifications 

of climate change for Iowans, and it enacted a new bill in 2009 (amendment). The amendment 

set in motion a review of climate change impacts and policies for the State of Iowa. The final 

product was another report of findings and recommendations to the governor and general 

assembly by the Iowa Climate Change Impacts Committee (ICCIC). The major requirements of 

the study included the following:

• An initial review of available climate change impacts studies relevant to Iowa

• A summary of available data on recent changes in relevant climate conditions

• Identification of climate change impacts issues, which require further research and 

an estimate of their cost

• Identification of important public policy issues relevant to climate change impacts

Therefore, the Climate Change Impacts on Iowa 2010 report was released in 2010 (ICCIC,

2010). One of the major recommendations from this report was to, “Increase investments in 

state programs that enhance wildlife habitat and management and restore public and private 

lands.” The report stated, “Changes in climate will have a direct impact on both game and nongame species.” In general, this report sought to highlight the latest literature documenting 

impacts in Iowa caused by a changing climate. In doing so, several key themes emerged 

including:

• The world is interconnected; changes in climate can easily reverberate across the 

globe.

• Iowans cannot reverse global climate change alone.

• Climate extremes cause the greatest impacts on people and the planet.

• Water: Too little limits drinking water and causes disease; too much generates 

floods, soil erosion, and other disease; changes in precipitation may prove to be one 

of the greatest impacts to such an agricultural region.

While this report relates most to how Iowans might adapt to climate change, ultimately 

mitigation efforts will be needed worldwide to reverse the trends discussed within.

Furthermore, the Iowa Smart Planning Act was signed into law in 2010, which articulates ten 

Iowa Smart Planning Principles. Smart Planning Principle 8: Natural Resources and Agricultural 

Protection includes three relevant adaptation planning strategies:

• Identify and protect wetland areas that are critical to slow the release of water into 

streams during times of extreme rain events;

• Establish strategies to promote redevelopment and compact new development that 

will minimize the conversion of farmland and woodland for urban use, to reduce the 

amount of impervious surface coverage in watersheds; and

• Develop state plans and programs to help farmers incorporate environmental 

protection practices, such as wetland protection, wetland restoration, buffer strips,
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and natural ground cover (grasses) that have been shown to lessen the “flashiness” 

of stream flow. Promote federal, state, and local funding for preservation of open 

space, farm, and forest land.

Iowa’s State Wildlife Action Plan

The Iowa DNR and over 100 public and private partners developed the Iowa state wildlife action 

plan with a 25-year vision for addressing concerns regarding 999 of Iowa’s birds, mammals, 

fish, amphibians, reptiles, mussels, land snails, dragonflies, and damselflies. Of the species 

considered, 147 are game species, and 297 are considered species of greatest conservation 

need (SGCN); nearly one third of all Iowa species are in need of conservation effort to prevent 

eventual candidacy for threatened or endangered status. Fish and birds have the greatest total 

number of species listed as SGCN, but aquatic and semi-aquatic wildlife have the highest 

percentages of their total number of species listed. Riverine habitats have the greatest number 

of SGCN among aquatic habitats, and woodlands have the most among the terrestrial habitats 

(Zohrer, 2005). 

The vision elements and conservation actions in the plan are not specifically designed to be 

implemented by Iowa DNR. They are designed to provide a broad framework of actions that can 

be undertaken by conservationists at all levels of government, by private conservation 

organizations, and by private citizens. Extensive coordination will be necessary between 

stakeholders to make the vision a reality.

Partners for Fish and Wildlife Program

It is estimated that 73 percent of land in the United States and 98 percent of the land in Iowa is 

privately owned, and that the majority of fish and wildlife resources occur on those lands. 

Consequently, the conservation lands held by federal and state agencies and other 

conservation groups cannot completely provide for fish and wildlife needs. Because the habitat 

needs of all species of interest to the Service cannot be met solely on public lands, public funds 

are also expended on private lands to accomplish habitat improvements through programs such 

as the Partners for Fish and Wildlife Program (Partners Program).

The Partners Program provides technical and financial assistance to private landowners and 

tribes who are willing to, on a voluntary basis, help meet the habitat needs of the Service’s 

federal trust species. The Partners Program assists with projects in a diversity of habitat types, 

which conserve or restore native vegetation, hydrology, and soils associated with imperiled 

ecosystems. Locally based field biologists work one-on-one with private landowners and other 

partners to plan, implement, and monitor their projects. The Partners Program field staff help 

landowners find other sources of funding and help them through the permitting process. This 

personal attention and follow-through is a strength of the program and has led to national 

recognition and wide support.

The Partners Program is guided by a national policy (FWS, 2003) with the following objectives:

• Promote and implement habitat improvement projects that benefit federal trust 

species; 

• Provide conservation leadership, and promote partnerships; 

• Encourage public understanding and participation; and 
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• Work with U.S. Department of Agriculture (USDA) to implement conservation 

programs.

The Partners Program works in a diversity of habitat types throughout the State of Iowa. 

Designated as a Partners Program focus area, the Des Moines Lobe lies within the boundaries 

of the district. Typical Partners Program efforts within this focus area strive to restore wetlands 

and surrounding upland habitats to form complexes of habitat for maximum benefit to grassland 

and wetland migratory birds. Most of the original tallgrass prairie and wetlands within this focus 

area are now row crop agriculture, primarily corn and soybeans. 

Over the past fifteen years, the Partners Program at Iowa WMD and Union Slough NWR has 

assisted with restoring nearly 3,600 acres of upland and wetland habitat in over 185 projects 

(tables 2-2 and 2-3). The program has a five-year target for habitat restoration of 250 wetland 

acres and 500 upland acres as well as a five-year target for habitat enhancement of 150 

wetland acres and 250 upland acres. Primary partners in this effort include the USDA, Iowa

DNR, County Conservation Boards (CCBs), Pheasants Forever, The Nature Conservancy, 

Ducks Unlimited, and private landowners.

This work has the potential to affect a variety of wildlife species. For example, the endangered 

Topeka shiner will benefit directly from wetland restoration of riverine oxbows and secondarily 

from both tallgrass prairie and oak savanna restoration through improved water quality. In 

addition, this type of restoration project will help improve habitat conditions for numerous other 

species such as the federally threatened western prairie fringed orchid and prairie bush clover 

as well as additional species of special concern to the state and other conservation agencies. 

Many of these species are listed as SGCN by the Iowa DNR including Buff-breasted Sandpiper 

(Tryngites subruficollis), American Bittern (Botaurus lentiginosus), Bobolink (Dolichonyx 

oryzivorus), and Dickcissel (Spiza americana).

The result of a century and a half of change on Iowa’s landscape has been a huge shift in the 

composition of Iowa’s plant communities and the wildlife that inhabits them. With fertile soils and 

a favorable climate, it is likely that much of Iowa will remain in agriculture and private ownership 

in the near future. Large tracts of land for biodiversity management are seldom available; 

therefore, utilizing a private lands approach is a critical part of overall conservation in Iowa. 

Table 2-2: Past Partners for Fish and Wildlife Program Projects within the Iowa WMD

Year Wetland Riparian Upland

Acres Number* Acres Number* Acres Number*

1997 650.9 31 0 0 649.4 24

1998 185.8 25 0 0 97.5 10

1999 130.9 25 0 0 119.6 10

2000 44.9 13 0 1 229.1 17

2001 66 11 225 ft. 0 112.9 14

2002 32.7 5 225 ft. 1 80 12

*Refers to individual projects. 
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Iowa DNR Private Lands Program 

The Iowa DNR’s Private Lands Program has also completed substantial habitat work within the 

district. Since the program began, over 148,000 acres of habitat restoration or improvement 

have been planned and nearly 70,000 acres have been implemented (figure 2-6). This includes 

activities such as converting cropland to grassland, interseeding, prescribed burning, woody 

invasion removal, wetland restoration, and edge feathering. 

Table 2-3: Partners for Fish and Wildlife Program Projects within the Iowa WMD

Recorded in HabITS*

Year Wetland Upland Invasive Species Wood Duck Box/

Nesting Structure

Acres Number** Acres Number** Acres Number** Boxes

2001 1 1 1 1 0 0 0

2002 37.2 6 76.5 11 0 0 0

2003 23.5 4 37.1 6 0 0 5

2004 10 3 283.25 11 0 0 5

2005 13 3 40 5 0 0 1

2006 10.48 4 0.66 1 0 0 0

2007 4.5 1 132.34 3 342.77 6 0

2008 61.1 5 5.33 3 150.48 4 0

2009 0 0 0 0 0 0 0

2010 0 0 0 0 103 3 0

*Current tracking database for Partners Program Projects, Habitat Information Tracking System.

**Refers to individual projects. 

Bird Conservation Areas

Bird Conservation Areas (BCAs) have been designated by Iowa DNR as significant habitat 

complexes for birds generally following guidelines established by Partners in Flight. They are 

areas of 10,000 acres or more made up of a core area of permanently protected natural habitat 

surrounded by a matrix of public and private natural lands. While targeted specifically at birds, 

large tracts of natural habitat such as these have been identified as providing significant habitat 

protection and restoration potential for SGCN. Seven BCAs occur within the district: Spring Run 

in Dickinson County, Eagle Lake Wetlands in Winnebago and Hancock Counties, Dewey’s 

Pasture in Emmet, Palo Alto, and Clay Counties, Union Hills in Cerro Gordo County, Lower 

Morse Lake in Wright County, Raccoon River Savanna in Guthrie County, and Chichaqua-Neal 

Smith in Polk and Jasper Counties (figure 2-5). 

Important Bird Areas

Iowa Audubon's Important Bird Areas (IBAs) Program is a citizen-led, science-based and datadriven bird conservation initiative. The district contains nine IBAs with joint BCA designation 

and 18 other IBAs scattered across its counties (figure 2-5). The intent of the program is to:

• Identify, recognize, and prioritize habitats that support the most seriously declining 

species of birds;
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• Monitor bird populations and habitat conditions, and organize education programs at 

designated IBA sites where appropriate; and

• Work with landowners and land managers to develop and implement long-term 

conservation plans to protect, restore, enhance and manage IBAs according to their 

environmental threats and conservation needs. 

Wetland Reserve Program

The Wetland Reserve Program (WRP) was established with the 1990 Farm Bill. Major flooding 

that covered Iowa and the Midwest in 1993 led to an effort designed to get development and 

agriculture out of areas prone to flood and return them to their original wetland condition. Iowa

DNR in cooperation with USDA Natural Resources Conservation Service (NRCS) and other 

partners have been able to acquire permanent easements in nearly every county within the 

district (figure 2-6). Iowa DNR is working with landowners to enroll lands in the WRP and 

acquire their residual value so that these lands will be managed for wildlife.

According to the NRCS, the cumulative acres enrolled in WRP in the State of Iowa in 2008 

totaled just over 80,000. In 2010, an additional 3,548 acres were enrolled in WRP across the 

state, down from 4,184 acres enrolled in 2009. Cumulatively then, in 2010, nearly 88,000 acres 

were enrolled in WRP across the state.

Furthermore, the Wetlands Reserve Enhancement Program, which is a component of WRP and 

is administered through NRCS, is and will continue to be an important habitat protection tool 

used in the district. This program has been instrumental in stretching the funding of the Small 

Wetlands Program in Iowa by enrolling private lands in WRP. In this program, willing 

landowners in priority complex areas work with Iowa DNR biologists to enroll their properties in 

WRP. Once the properties are accepted by NRCS, Iowa DNR completes and carries out 

restoration plans. The Service, as a partner in the program, then targets this property for 

acquisition in either a permanent WPA easement or purchase as a WPA through fee title. 

Throughout this process both acquisition and restoration costs are greatly reduced. 

Conservation Reserve Program

The USDA's Conservation Reserve Program (CRP) protects millions of acres of American 

topsoil from erosion and safeguards the Nation's natural resources. By reducing water runoff 

and sedimentation, CRP protects ground water and helps improve the condition of lakes, rivers, 

ponds, and streams. More recently, an emphasis has been placed on wetland and native prairie 

restoration as a condition of enrollment so the program has also become a major contributor to 

increased wildlife populations in many parts of the country. 

In Iowa, new participants are making their lands available for wildlife habitat restoration. This 

presents an important role for the district to lend its restoration experience and expertise to 

make these CRP restorations as high quality as possible. According to the USDA Farm Service 

Agency, the total acres enrolled in CRP within the 35 counties of the district were 375,867 in 

2010. This was the fourth year in a row for a decrease following an eight-year increase. This is 

likely due to recently high commodity prices, which are causing some producers to terminate 

their CRP contracts early to get the land back into row crop as soon as possible. Peak years for 

the district with just over 450,000 acres enrolled were 1993 and 1994. Guthrie County had the 

most acres (nearly 28,000) enrolled in 2010 while Cherokee had the least (just over 3,000). 
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Figure 2-6: Protected* Land in Iowa

*Protected land does not necessarily imply permanency. Conservation Reserve Program as well as the Service’s Partners for Fish and Wildlife 

Program project locations were unavailable.
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Other Conservation Lands in the Area

The district is administered by the staff of the Union Slough NWR, which was established in 

1938 to provide refuge and breeding ground for waterfowl and other migratory birds. The refuge

proper is 2,916 acres including 70 acres of easement (FWS, 2011a). The refuge also manages 

160 acres of the Tallgrass Prairie NWR that were purchased near the Prairie Smoke WPA 

(FWS, 2011a). 

The Northern Tallgrass Prairie NWR overlaps the majority of the district in Iowa and continues 

up into northern Minnesota along its western border. The refuge was established in 1999 with a 

primary goal of preserving 77,000 acres of native prairie and buffer lands at widespread 

locations within the historic range of the northern tallgrass region of Minnesota and northwest 

Iowa. Currently, the refuge includes over 5,200 acres in fee title, easement, and under lease or 

agreement (FWS, 2011a). 

Neal Smith NWR is in the far south central part of the district. It was established in 1990 to recreate a large expanse of tallgrass prairie and oak savanna. Currently, the refuge is 5,387 

acres (of the 8,645 acres approved for acquisition) (FWS, 2011a). However, an expansion was 

recently approved, which added 3,207 acres to the existing acquisition boundary of the refuge.

Nearly 190,000 acres of state land exist within the district including 27 state parks, 32 state 

preserves, over 160 Wildlife Management Areas (WMAs) and eight recreation areas. Nearly 

2,000 acres of county parks and preserves exist within the district as well. The Nature 

Conservancy also owns several preserves within the district and continues work in two major 

project areas: Boone River Watershed and Little Sioux Valley (figure 2-5). Finally, the 

Department of Defense and Department of Energy maintain the Red Rock and Saylorville 

Reservoirs, both of which contain recreational land around them (figure 2-6).

The Planning Process

Public Involvement

Initial conversations about 

comprehensive planning for the Iowa 

WMD began mid-year of 2009, 

however the official kick-off was in 

December of 2011. In addition to 

identifying information essential to the 

planning process, district staff also 

developed a communication plan and a 

preliminary list of issues to be 

addressed in the CCP. Both Iowa DNR 

and Tribal representatives from the Sac 

and Fox Tribe of the Mississippi were 

invited to join the core planning team. 

The public scoping period began on 

January 30, 2012 and lasted for 30 

days. Approximately 400 letters were mailed to stakeholders announcing the public scoping 

period, inviting them to the open houses, and explaining how to comment. The comment period 

Dickinson County Public Open House
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was also announced through a press release sent to a wide variety of media in Iowa and 

Minnesota. A series of open houses was held in Clear Lake, Algona, Spirit Lake, and Jefferson 

in February of 2012. The open houses gave the public an opportunity to discuss issues with 

district and state staff and regional planners. Thirty-nine people attended the open houses and 

25 written comments were received during the public scoping period.

On April 10, 2012, an internal scoping review took place at the FWS Regional Office in 

Bloomington, Minnesota to further develop and refine the list of issues to focus the CCP around. 

Finally, during the first week of June 

2012, the district hosted a planning 

workshop, which included nearly 40 

invitees from the Service (regional 

office, district, HAPET, Partners 

Program and Neal Smith NWR staff), 

Iowa DNR, Iowa State University, 

University of Minnesota, University of 

Northern Iowa, and the Kossuth 

County Conservation Board. The 

workshop included a variety of 

exercises to review the issues and 

begin to develop the alternative ways 

of managing the district over the next 

15 years.

Planning Issues

An issue is any unsettled matter that requires a management decision, such as an initiative, 

opportunity, resource management problem, threat to the resources of the unit, conflict in uses, 

public concern, or the presence of an undesirable resource condition (FWS, 2000). Issues arise 

from both within and outside of the Service. Public scoping as well as scoping of district and 

regional Service staff and other agencies produced ten issues that suggest alternative ways of 

managing the district and several others that did not.

Issues that Drive an Alternative 

Wildlife 

• What species group and life cycle is the focus of district management?

The primary purposes of the district are to serve as production areas for waterfowl and to 

provide habitat for migratory birds. However, WPAs provide habitat for a variety of other wildlife 

as well. Therefore, management of WPAs should primarily be for waterfowl production and 

other migratory birds. Resident wildlife or other species should be a secondary focus. Focusing 

management on all species can lead to not managing for any one species or group very well.

Habitat

• How should the district address the decrease in populations of grassland-dependent

birds due to the decline of grassland habitat?

Partner Planning Workshop
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• How can the district improve/maintain upland habitat quality?

• What wetland type is the focus of district management?

• How can the district improve/maintain wetland quality?

• How can the district manage food plot use?

While much of the surrounding landscape is agricultural row crop, the district provides a real 

opportunity to build larger grassland/wetland habitats. However, the use of cooperative farming 

as a management tool has kept even the district habitat relatively small and somewhat 

fragmented. Agricultural row crop is not ideal habitat for grassland-nesting birds, in decline 

across much of their native range. Furthermore, many grassland-nesting birds have differing 

habitat structure requirements. Some species prefer thick, dense, tall cover; others need 

shorter, thinner cover. Meeting all of these needs is challenging in a landscape with limited 

habitat. 

The large size of the district makes restoration of complete plant communities in both the upland 

and wetland (primarily the wetland) difficult. Other challenges such as how to best manage the 

invasive woody vegetation across the district, the expense and limit of local ecotype seeds, and 

the time and size of crop conversion to natives are also present. Furthermore, the Iowa DNR 

has numerous shallow lake (water quality) improvement projects underway on state land with 

many more planned. Restorations include in-lake management strategies as well as on-going 

efforts to implement best management practices on public and private land in the watersheds. 

Since 2006, the amount of land under cooperative farming leases across the district has 

decreased while the total number of acres in WPAs has increased. Currently, the Iowa DNR 

manages approximately 21,200 acres of WPAs of which approximately 17 percent is under a 

cooperative farming lease. The Iowa DNR has a goal of seeding at least 500 acres of row crop 

agriculture in WPAs to native tallgrass prairie species during the 2013 season. This is also an 

annual target for the district over the next 15 years as described in chapter 4 as an objective. 

This is the result of recent collaborations between the Service and Iowa DNR to make it a 

district priority to convert cooperative farmed land to perennial cover at a more rapid rate. 

Currently, the district manages complexes that contain a variety of wetland types often within 

the watershed of a shallow lake owned by the State of Iowa. However, the wetland type the 

district will focus on in the future will be determined primarily by the habitat needs of the focal 

species group and life cycle. This is also true for the use of food plots. Currently, they account 

for approximately three percent of the total upland WPA acres and are used to discourage 

depredation on private land, provide winter food, and improve recreational opportunities. 

However, there is a desire for future use to be eliminated or reduced in number and more 

strategically located. 

Strategic Land Protection

• How will the district address the decreasing purchasing power of existing funds? 

• What are the district’s priority areas for acquisition? 

In general, the public supports growing the district both for wildlife-dependent recreational 

opportunities as well as to improve/protect water quality. However, much of the land within the 

district is privately owned, and much of that land is in row crop agriculture. High commodity 
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41

prices in recent years have driven land values within the district to an all-time high, therefore 

decreasing the amount of land that can be acquired with existing traditional funding. 

Current acquisition is based on priority complexes established by the state in conjunction with 

the Service many years ago. Recently, however, a project was completed that could aid in 

determining the restorable wetlands left within the State of Iowa. This and other new 

information could help refocus priority areas for acquisition. 

People

• How can the district promote awareness and understanding of WPAs as well as 

educate the public on the importance of their management?

• What public uses can the district allow that are appropriate and compatible with the 

Service and Refuge System mission and meet the public demand for more 

recreational opportunities? 

The purpose of and reason for managing WPAs is not well known by some adjacent 

landowners, local communities, and larger cities within the district (especially by nonconsumptive users). Therefore, the support and appreciation of these sites is lacking and better 

stewardship on adjacent private land (minimize overspraying and loss of wetland/grassland 

marginal areas) is desired. Marketing and utilization of the private lands and easement 

programs for the Service as well as the state could be improved across the district.

While WPAs are generally open to hunting (unless deemed a “waterfowl refuge” by the state), 

fishing, trapping by law, and other public uses have not yet been determined appropriate and/or 

compatible for the district. In general, there is demand from the public for more recreation 

(hiking, environmental education, etc.), wildlife observation opportunities (bird watching, etc.), 

public access, and hunting opportunities. Some of the specific public use requests for the 

district include the following: 

• Ride horses

• Ride bikes

• Train dogs

• Operate motorboats

• Geocache

• Creatively write, paint, and photograph

Alternative Development

Four management alternatives (including the no action alternative) were developed based on 

the issues determined during scoping. The primary drivers for each alternative were focal 

species group and lifecycle. Alternative D, the preferred alternative, constitutes this CCP and is 

mostly a combination of the other alternatives (including parts of the no action alternative). 

Breeding waterfowl, primarily represented by Mallard and Blue-winged Teal, is the focus for 

management activities. The dominant activity is restoring cropland to perennial grassland. 

Other “elements common to all alternatives” that are also a part of the preferred alternative 

include the following:
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• The general management direction in this plan will apply to all district properties in 

which the Service has acquired an interest across the 35 counties.

• Existing WPAs or other district properties will be inventoried as necessary; any new 

techniques implemented will be monitored as necessary to allow for adaptive 

management; and research will be designed when and where it was needed to 

support and/or guide management.

• Since one of the goals of refuge/district planning is “to provide a basis for adaptive 

management by monitoring progress, evaluating plan implementation, and updating 

refuge plans accordingly” (FWS, 2000), the adaptive management process will be 

utilized in the district.

• The portions of three WPAs—Jemmerson Slough (Dickinson County), Elk Creek 

Marsh (Worth County), and Rice Lake (Winnebago and Worth Counties)— currently 

closed by state regulation as waterfowl refuges will remain closed.

• Within two years of CCP approval, it will be proposed through the federal rulemaking 

process to implement the following regulation on the Service’s fee title property 

within the Iowa WMD: “You may only use or possess approved nontoxic shot shells 

while in the field, including shot shells used for hunting wild turkey.” This 

requirement would be in line with current regulations at 50 CFR 32.2(k).

• The district will attempt to reduce its contribution to climate change as well as 

monitor the effects of climate change in the district.

Prepare NEPA Document and Draft Plan 

All of the internal and public input was used to write an EA and Draft CCP, which was released

for public review and comment. The 30 day review and comment period began on Monday 

August 19th, 2013 and was announced through postcards, news releases, and two open house 

meetings in Algona and Spirit Lake. Two hard copies of the document were made available for 

public review at the Algona and Spirit Lake libraries, a digital copy was available on the project’s 

website, and CDs were available at the open house meetings. Ten people attended the open 

houses, and five comments were received from four different commenters. Three comments 

were received from the same individual, one comment was from another federal agency, and 

one comment was on behalf of two different non-profit public interest and environmental 

advocacy organizations.

Prepare and Adopt Final Plan

Each of the comments received were considered in finalizing the CCP and responded to in 

appendix J. This CCP will guide management on the district over a 15-year period providing 

general direction for managing habitat, wildlife, and visitor services at Iowa WMD. It will also 

guide preparation of more detailed step-down management plans for specific resource areas.

Inventory, Monitoring, and Research

Following approval of the CCP and public notification of the decision, implementation will begin. 

Funding and staff time will be allocated to implementation of the CCP as appropriations and 

budgets allow. Development of a stepped down Habitat Management Plan (HMP) and other 

plans (i.e., Visitor Services Plan) will begin and serve to guide habitat management, restoration 
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43

and reconstruction priorities, and public use. A companion Inventory and Monitoring Plan or 

additional chapters on inventory and monitoring appended to the HMP will be written to guide 

the district's priorities for monitoring. Information gained via inventories, monitoring, or research 

activities will allow the station to evaluate its progress in achieving the planning unit purposes, 

vision, and goals. The associated step-down plans will address habitat and/or population 

objectives and provide a means for evaluating the effects of management activities and public 

use. Through adaptive management, evaluation of monitoring, and research results may 

indicate the need to modify district objectives or strategies.

Step-Down Management Plans

The CCP is a plan that provides general concepts and specific wildlife, habitat, and peoplerelated objectives. Step-down management plans provide detail to managers and employees 

who will carry out the strategies described in the CCP. The district staff will develop the stepdown plans listed in table 2-4 after completion of this CCP.

Table 2-4: Step-Down Management Plan Completion Schedule for the Iowa WMD

Step-Down Management Plan Amount of Time for Completion after CCP Approval

Habitat Management Plan 3 years

Inventory and Monitoring Plan 3 years

Visitor Services Plan 4 years

Plan Review and Revision

The CCP is meant to provide guidance to the district manager and staff over the next 15 years. 

However, the CCP is also a dynamic and flexible document, and several of the strategies 

contained in this plan are subject to uncontrollable events of nature. Likewise, many of the 

strategies are dependent upon Service funding for staff and projects. For these reasons, the 

recommendations in the CCP will be reviewed annually and revised if necessary (FWS, 2000). 

The annual plan review process will include an evaluation of changing information and 

ecological conditions related to climate change. If significant changes are identified that 

compromise the district’s purpose, vision, or goals, then the CCP will be revised. The CCP will 

be revised every 15 years or sooner when significant new information becomes available, 

ecological conditions change, major district expansion occurs, or when determined necessary 

by the periodic review (FWS, 2000). All plan revisions will follow the Service’s planning process 

and will be compliant with NEPA. Minor plan revisions that meet the criteria of a categorical 

exclusion will be handled in that manner; however, if the plan requires a major revision, then the 

CCP process starts anew at the preplanning step (FWS, 2000).
Chapter 3: District Environment and Current Management

Iowa WMD / Final Comprehensive Conservation Plan

44

Chapter 3: District Environment and Current 

Management

In this chapter:

Physical Environment

Habitat

Wildlife

People

This chapter describes the existing physical, biological and social environment of the Iowa 

Wetland Management District (WMD, district) and its surroundings. It also described the current 

management activities that are occurring on district land. 

Physical Environment

Geographic Setting

The Iowa WMD is part of the larger Prairie Pothole Region (PPR) (figure 1-2). This geographic 

area of central North America, mostly the Midwestern Great Plains, consists primarily of 

midgrass and tallgrass prairies interspersed with wetlands. Stretching northwest from northern 

Iowa through southwest Minnesota, eastern South Dakota, eastern and northern North Dakota, 

southwest Manitoba, and southern Saskatchewan to southeast and east-central Alberta (and 

even a little of northern Montana), the region is covered with thousands of shallow, sometimes 

seasonal ponds known as potholes or sloughs. The area is the summer home and breeding 

grounds of some 45 million mallard, pintail, gadwall, and teal ducks as well as many other 

shorebirds, songbirds, and gamebirds. 

More specifically, the Iowa WMD acquisition boundary includes a 35-county area in northcentral and northwest Iowa (figure 1-1). The district spans from the Minnesota border to Des 

Moines, from Cherokee to Grundy Center, and from Guthrie Center to Newton. The district

includes the cities of Fort Dodge, Spencer, Mason City, Clear Lake, Marshalltown, Webster City, 

and Charles City. The acquisition boundary encompasses over one-third of the State of Iowa 

including both the largest county by size (Kossuth) and the largest county by population (Polk). 

Current Management

The geographic setting of the district and its surroundings cannot be managed. 

Ecosystem Setting

At the time of the periodic advance and retreat of glaciers, the district was a mix of grasslands 

and forests of spruce, aspen, and oak. Stretching north of Des Moines—in areas where the ice 

had melted—marshes, wetlands, and bogs were common. This environment supported a 

variety of herbivores, revealed today in fossils, including mammoth, mastodon, giant ground 

sloth, musk ox, a variety of bison, and elk. However, within a few centuries, temperatures 

warmed and the ice melted for the last time. New forests filled the river valleys, and prairies 

stretched west and south with marshlands to the north (State Historical Society of Iowa, 2010). 
Chapter 3: District Environment and Current Management 

Iowa WMD / Final Comprehensive Conservation Plan

45

Two ecoregional provinces are represented in the district: Eastern Broadleaf Forest and Prairie 

Parkland (Bailey, 1995). Within the Eastern Broadleaf Forest Province the district lies within the 

Minnesota and Northeast Iowa Morainal Oak Savanna section. Within the Prairie Parkland 

Province the district lies primarily within the North-Central Glaciated Plains section with a small 

portion in the Central Dissected Till Plains. Furthermore, the district lies primarily within the 

Southern Des Moines Lobe and Upper Minnesota River-Des Moines Lobe subsections with 

much smaller portions reaching into seven other subsections (figure 3-1). The Des Moines 

Lobe is also recognized as a landform of Iowa (figure 3-2) and is described in the Topography 

and Geology section below. A smaller portion of the district also stretches into the Northwest 

Iowa Plains, Iowan Surface, and the Southern Iowa Drift Plain landforms; however, these are 

most prevalent farther to the northwest, northeast, and south, respectively (Prior, 1991). 

Current Management

The district manages the ecosystem setting primarily through activities designed to restore 

cropland to perennial grassland in the uplands and to wetlands in the lowlands. Wetland 

restoration is directly linked to generally improved hydrology.

Topography and Geology

The landscape of the district is considered geologically young, as it was affected by the most 

recent glacial advance in Iowa. The Pre-Illinoian (over two million years ago) and Illinoian 

(300,000 to 130,000 years ago) glacial deposits are buried under the Wisconsinan deposits 

from about 50,000 years ago. As the environment cooled, a large ice sheet formed in the 

Hudson's Bay region and began to spread south. One lobe entered central Iowa and moved as 

far south as Greene County. Then, as the climate warmed about 30,000 years ago, this lobe 

retreated. 

As temperatures cooled again, another glacier known as the Des Moines Lobe, entered Iowa 

and moved down through its center to the modern-day city of Des Moines about 17,000 years 

ago. By 15,000 to 12,000 years ago, the ice sheet was gone, leaving behind a flat to undulating 

terrain. The landscape was poorly drained and filled with pebbly deposits from the stagnant 

decaying ice; sand and gravel from swift meltwater streams; as well as clay and peat from 

glacial lakes. The landscape was also left devoid of any loess deposits since the ice sheet was 

still covering it while those deposits were occurring elsewhere in the state. Today, glacial 

moraines form prominent features in the area including Ocheyedan Mound in Osceola County, 

Pilot Knob in Hancock County, and Pilot Mound in Boone County. 

Current Management

The topography and geology of the district and its surroundings cannot be managed. 
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Figure 3-1: Bailey’s Ecoregional Provinces, Sections, and Subsections for the Iowa WMD
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Figure 3-2: The Landforms of Iowa

Climate

The district climate is characterized as extreme mid-continental or humid continental with warm, 

usually hot, and humid summers and cold, snowy winters. The average summer temperature is 

76 oF, and the average winter temperature is 33 oF. The July high averages 85 oF while the 

January low averages 8 oF. The average annual daytime relative humidity is around 72 percent, 

increasing across the district from southwest to northeast. Prevailing winds are from the 

northwest with average wind speeds of 11 miles per hour. 

Total annual precipitation increases across the district from the northwest to the southeast with 

an average of 30 inches. About two-thirds of this precipitation falls between April and 

September with a peak in late spring/early summer. Average annual snowfall is around 31 

inches. The length of the growing season varies from 135 days in the northwest portion of the 

district to 155 days in the southeast portion. An approximate twenty-year drought cycle occurs 

in Iowa, which may be important in limiting the occurrence of some prairie species and certain 

northern wetland species and is critical in restricting woody species (Eilers and Roosa, 1994).

Predicted Change

Iowa is no exception to the well-documented changing climate across the globe (ICCIC, 2010). 

Geologic records of Iowa show that the state’s climate has always been changing, although at a 

slower rate than today. Statistically significant changes in Iowa’s precipitation, streamflow, 
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nighttime minimum temperatures, winter average temperatures, and dewpoint humidity readings 

have occurred during the past few decades. Iowa has already been experiencing warmer 

winters, longer growing seasons, warmer nights, higher dewpoint temperatures, increased 

humidity, greater annual streamflows, and more frequent severe precipitation events than were 

prevalent during the past 50 years (ICCIC, 2010). 

Regardless if the impacts from such changes seem positive or negative; it is likely that these 

trends will continue, especially with increased global release of greenhouse gas (GHG) 

emissions. Unfortunately, Iowa is among the states with the largest GHG emissions per capita. 

However, Iowa is also among the states that could benefit the most economically by mitigating 

climate change using energy efficiency and renewable sources of energy (ICCIC, 2010).

More specifically, the PPR of Iowa appears to be particularly vulnerable to impacts from climate 

change. Even though much of the land in this area is in row crop agriculture, most of what is left 

of the state’s wetlands also occur here. Since climate, precipitation, and temperature heavily 

influence the functionality of wetlands, these systems are expected to change dramatically with 

the changing climate. The most recent literature (Johnson et al., 2010) predicts the Iowa portion 

of the PPR will become the most dynamic and therefore productive when compared to the 

western portion of the PPR that is expected to dry significantly. However, the literature also 

suggests that the area will have “too few functional wetlands and nesting habitat to support 

historic levels of waterfowl and other wetland-dependent species.”

According to the Iowa Climate Change Adaptation & Resilience Report (EPA, 2011), Iowa’s 

climate has changed in the following ways:

• Precipitation in Iowa has increased since the 1940s: Total annual precipitation has 

increased about 10 percent; more rain falls during spring and early summer with 

more heavy downpours.

• Stream and river flow have increased about 20 to 50 percent since the 1940s: More 

days have high stream flow in central Iowa, and spring soil moisture is close to 

saturation more frequently.

• Statewide winter temperatures have increased: On average, there are about five 

more frost-free days than in 1950; thaw-freeze cycles are more frequent.

• Wind speeds have declined over the last 30 years, potentially worsening air quality.

These increases are predicted to continue well into the future. Floods, heat waves, and severe 

weather events are all also predicted to increase with these changes in Iowa’s climate. 

In general, these trends are similar to those found throughout the PPR from 1906 through 2000 

(Millet et al., 2009). More specifically, the western portion of the PPR, which includes the 

Dakotas and portions of Montana and Canada, has been getting drier while the eastern portion, 

which includes Iowa and southwestern Minnesota is becoming wetter. As this gradient 

steepens, the productive wetland ecosystems of the PPR will shift and shrink. 

Historically, the climate of the western (portions of Montana, Saskatchewan, and Alberta) and 

eastern (Iowa and southwestern Minnesota) portions of the PPR would have limited wetland 

productivity due to either insufficient moisture and very long time between vegetation cover 

change or slow vegetation cover change, prolonged lake-marsh conditions, and too much water, 

respectively (Johnson et al., 2010). The most dynamic and therefore most productive wetlands 
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would have occurred in the middle of these two extremes, across the Dakotas and parts of 

Canada. 

Three climate change scenarios, (temperature increase by 2 oC, 4 oC, and 4 oC plus a 10

percent increase in precipitation) suggest that in the future, the eastern portion of the PPR could 

see improvements in wetland productivity (Johnson et al., 2010). A dryer climate could create a 

more balanced water/vegetation cycle, more dynamic wetlands, and therefore more productive 

wetlands. This both highlights the importance of the Iowa WMD within a changing climate but 

also poses a potential conservation challenge since much of the area has been drained and 

plowed for agriculture. It seems likely that this area will “have too few functional wetlands and 

nesting habitat to support historic levels of waterfowl and other wetland-dependent species” 

(Johnson et al., 2010). The challenge is further compounded by the high cost of wetland and 

grassland restoration in Iowa, high commodity prices, increased agricultural desires, and in turn 

high land values. Restoration of drained wetlands in Iowa, although expensive, could help 

diminish the effects of climatic drying and droughts in the western portion of the PPR (Millett et 

al., 2009). If any of these scenarios hold true, climate change would strongly reduce the 

contribution of the western PPR to overall wetland-associated biodiversity and would make the 

eastern PPR much more important. However, significant wetland restoration would have to 

occur in the eastern PPR to offset less productive conditions in the western PPR (Millett et al.,

2009). Furthermore, adaptation of farming practices in wetland watersheds may buffer the 

effects of climate change on wetlands (Johnson et al., 2010). 

Overall, a decrease in water supply to wetlands in the western PPR will likely cause significant 

shifts in plant communities either as direct responses to water level changes or indirectly 

through altered soil chemistry, decomposition, and disturbance regimes. For example in 

Minnesota, calcareous fens, providing habitat for a relatively large portion of rare plant species, 

may have reduced flow from lower hydraulic head in the ground water recharge favoring noncalciphitic vegetation (Galatowitsch et al., 2009). Unfortunately, several invasive species, 

including reed canarygrass, will also be favored. A shortened hydroperiod for wetlands will also 

severely affect vertebrates because of their longer life cycle requirements. These changes 

(based on a doubling of carbon dioxide output) could cut the U.S. mid-continent breeding duck 

population in half (Johnson et al., 2010). 

The Soil Resource

The parent material of the district is all sedimentary rock including shales, sandstones, 

limestones, and dolomites. The western one-half is from the Cretaceous Era, the eastern onehalf is from the Middle Paleozoic Era featuring Silurian, Devonian, and Mississippian Periods. 

The southern portion is from the Upper Paleozoic Era featuring Pennsylvanian and Permian

Periods. The soils of the district are those typical of much of the Midwest, primarily mollisols 

with some alfisols. Mollisols naturally form under grassland cover with deep organic matter and 

are prime farmland especially if drained. Alfisols naturally form under hardwood forest cover 

with clay-enriched subsoil and high native fertility and are also prime farmland (figure 3-3). 
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Figure 3-3: Soils of the Iowa WMD
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Changes to the soil resource, such as erosion, are common occurrences in Iowa. It is well 

known that land use has a large influence on soil erosion rates and that soil erosion has a 

negative influence on soil fertility and its overall production potential (farmers often have to add 

fertilizer to maintain crop production). In the 1950s, after recognizing the increased potential for 

soil erosion under modern agriculture, the USDA developed soil-loss tolerance values, also 

known as “T-value.” This represents the amount of erosion loss the soil can withstand without 

sacrificing long-term productivity. The T-value for most soils in Iowa is 5 tons/acre/year. While 

the T-value is a useful concept for maintaining long-term sustainability of the site, there are 

conditions where those values could result in excessive sediment delivery to receiving waters to 

the detriment of fish and other aquatic organisms. In fact, Montgomery (2007) compiled studies 

from across the globe and confirmed that erosion rates from conventionally plowed agricultural 

fields average 1–2 orders of magnitude greater than rates of erosion under native vegetation 

and rates of soil production. Many of the erosion rates from fields in this study were at or above 

T-value, while most rates from native vegetation were less than T-value. 

The Science-based Trials of Rowcrops Integrated with Prairies (STRIPs) project through Iowa 

State University at Neal Smith National Wildlife Refuge (NWR, refuge) has had similar results. 

The project is looking at the impacts of integrating small strips of prairie within row-cropped 

agricultural landscapes. Treatments consist of varying proportions of perennial vegetation within 

a row crop system. The 10 percent perennial vegetation treatments either have the perennial 

vegetation all at the bottom of the watershed or in contour strips distributed from the lower to the 

upper portions of the watershed. The 20 percent perennial vegetation treatment has contour 

strips distributed across the watershed. Two additional watersheds located adjacent to the study 

area with 100 percent reconstructed native prairie are also included for comparison. Preliminary 

data shows that from 2008 to 2012 soil lost from watersheds that contain 100 percent

agricultural fields ranged from over 19,000 lbs./acre/year to over 1,000 lbs./acre/year. Soil lost 

from watersheds with the 20 percent perennial vegetation treatment ranged from 960 

lbs./acre/year to 32 lbs./acre/year. Soil lost from watersheds with 100 percent reconstructed 

native prairie ranged from 300 lbs./acre in 2010 to 118 lbs./acre in 2011. Therefore, wetland 

and grassland cover types like those in the district are not only contributing less to soil erosion 

but are also trapping runoff water, soil, and nutrients from adjacent agricultural land. 

Furthermore, as this positive effect ripples across the landscape, downstream infrastructure 

including roads, culverts, and bridges are protected from the force of sedimentation and water 

as well.

Current Management

The soil resource is currently managed indirectly through habitat and vegetation management. 

Conversion from agricultural row crops to perennial grassland and wetland cover, permanent 

protection of remnant prairie, restoration of existing non-native grassland, restoration of pothole 

hydrology, and the use of prescribed fire all affect the soil resource.

Water Resources

Iowa's Des Moines Lobe forms the southernmost extent of the PPR of central North America. It 

terminates at the confluence of the Des Moines and Raccoon Rivers of which the Raccoon 

forms the southern and western border of the lobe. Small potholes and large, open water lakes 

are scattered throughout the landscape.
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Prairie Potholes

Prior to agricultural drainage, this region 

contained abundant wetlands, many 

associated with "prairie potholes" or 

"kettles” evident from the General Land 

Office (GLO) surveyors’ maps and notes 

(figure 3-4). Recent geologic studies of 

the Des Moines Lobe have changed 

ideas concerning the origin and hydrology 

of these wetlands and their relationship to 

other aspects of the landscape. 

Geologists previously thought that Iowa's 

potholes and kettles formed when chunks 

of buried glacial ice melted to create 

isolated, bowl-shaped depressions on the 

freshly exposed land surface between 

14,000 and 11,500 years ago. These 

depressions were thought to be "closed," 

having no drainage outlets. More recently, detailed examination of aerial photographs and 

subsurface earth materials has revealed that many of these depressions are only partially 

closed; they actually join with neighboring depressions to form linked systems. 

While subtle features on the ground, the linked depression systems stand out as dark web-like 

patterns when viewed from the air. The links outline the routes of former meltwater channels, 

and some of these actually connect drainage ways that today lie in two separate surface 

drainage basins. The linked-depressions originated as part of a glacial karst system that 

developed in a stagnant glacier loaded with sediment. As the glacier's surface melted, water 

entered cracks in the ice and began to widen and deepen. These eventually formed drainage 

tunnels within the stagnant glacier that joined with other drainage ways near the base of the ice. 

As water flowed through the system, sediment within the ice also entered the tunnels. Over 

time, fine-grained silt and clay were flushed from the tunnels, but more coarse sand and gravel 

settled along the routes. When all the ice was melted, the former branching passages, with their 

permeable sand and gravel deposits, were preserved as linked systems set into and 

intermingling with other surrounding glacial materials.

The real importance of this finding is in ground water quality. Rather than the sluggish ground 

water system previously envisioned for large parts of the Des Moines Lobe, the linked

depressions actually act as a system of "natural drainage tiles" that join poorly drained upland 

areas with surface waters. This linkage provides a previously unrecognized pathway for 

dissolved contaminants, such as crop nutrients, to enter the region's waters (Iowa DNR, 1997).

Historically, these depressions provided an infiltrative hydrology, allowing surface water to be 

collected, stored, and gradually released to larger streams and underground aquifers. However, 

for nearly a century and a half, farmers drained, dredged, and tiled the wetlands and small 

streams on the Des Moines Lobe until approximately 99 percent were gone (figure 3-4). Larger 

streams and rivers were dredged and straightened for faster removal of surface water. Today, 

the landscape looks much different, dominated by agriculture that consists primarily of corn and 

soybeans. This alteration has led to an imbalanced hydrological regime. In the upstream or 

headwater portion of small streams, water moves off the land much faster, allowing greater 

stream bank and bed erosion, creating increased transport and deposition of materials 

Prairie Pothole
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(including soil and agricultural chemicals), along with more severe flooding downstream. 

Draining of wetlands has lowered the water table, causing natural underground springs and 

small streams to stop flowing. Most of these hydrological changes have occurred within a 

human lifetime (Anderson, 2001). 

Watersheds and Rivers

Historically, small prairie streams, meandering through the tall grasses, subtly linked the 

marshes, sloughs, and wetlands to larger streams and rivers, making it difficult to determine 

exact watershed boundaries. Today, after improved drainage from both natural and 

anthropogenic causes, the watersheds of the district are more easily defined. The western most 

portion (about one-third) of the district drains to the Missouri River, while the rest of the district 

drains to the Mississippi River. The primary watersheds, from west to east include the MissouriLittle Sioux, Des Moines, and Upper Mississippi-Iowa-Skunk-Wapsipinicon. Major rivers that 

run through the district include the Little Sioux, Des Moines, Raccoon, Iowa, Cedar, Shell Rock, 

Upper Iowa, Boone, Winnebago, and Skunk (figure 3-5). 

Many of these rivers have been environmentally degraded since they have been dammed, 

deepened, straightened, and rerouted to better regulate flood control and allow for development. 

Only the Boone and Upper Iowa do not have stretches within the district listed as impaired on 

the Iowa Impaired Waters List for 2010. However, several stretches of the Upper Iowa outside 

the district are listed as impaired. Reasons for listing include concerns for human health (fish 

consumption), aquatic life, and primary contact—recreation due to high levels of bacteria, 

mercury, and unknown impacts on freshwater mussels (Iowa DNR, 2010).
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Figure 3-4: Historic and Existing Wetland Comparison of the Iowa WMD
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Figure 3-5: Watersheds, Rivers, and Lakes of the Iowa WMD
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Lakes

The district includes many lakes, large 

and small, shallow and deep (figure 3-

5). Saylorville Lake near Des Moines 

is a large man-made lake completed in 

1977 as interest in flood protection for 

the city of Des Moines peaked after 

several major floods of the Des Moines 

River. Spirit Lake, East Okoboji Lake,

and West Okoboji Lake near Spencer 

are Iowa’s largest natural (glacial) 

lakes and have become known as the 

Iowa Great Lakes. Storm Lake near 

the City of Storm Lake is Iowa’s fourth 

largest natural lake, while Lake 

Panorama near Guthrie Center is 

Iowa’s largest private lake. Clear Lake 

near Mason City is another large natural lake of Iowa. Saylorville, West Okoboji, Spirit, and 

Clear lakes are all listed as impaired waters for the state due to high levels of bacteria (Iowa

DNR, 2010). 

Drainage and Pesticides

The PPR of Iowa has been drastically 

altered since settlement. The 

glaciation that created this area left a 

landscape that was flat to rolling with 

few well defined drainage networks. 

Wetlands were connected by small, 

subtle prairie streams. Dense, deeprooted vegetation and poorly 

developed drainage resulted in an 

infiltrative hydrology. Water was 

collected, stored, and slowly released 

to larger rivers and underground 

aquifers. This is in stark contrast to the 

present conditions in Iowa’s PPR. 

Streams and drainage ways have been 

deepened and straightened. 

Thousands of miles of drainage tile have been installed. The once vast prairie has been 

replaced with corn and beans. The result is a landscape that removes water quickly and 

increases soil erosion, nutrient and pesticide transport, and downstream flooding. Hydrologic 

changes in the landscape go far beyond the loss of the vast majority of the wetland basins. The 

water table has been lowered significantly, and both surface and subsurface drainage patterns 

have been drastically altered.

Since Waterfowl Production Areas (WPAs) are only islands in this sea of intensive agriculture 

with highly altered drainage patterns, the frequency, intensity, and duration of water flowing into 

many units is abnormally high. Siltation, nutrient loading, and contamination from point and 

Shallow Lake

Drainage Tile Installation
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non-point sources of pollution are a serious problem on many WPAs. WPAs are also 

threatened by farming trespass, dumping, wildfires, and pesticide applications on adjacent 

agricultural land. A study in Ontario, Canada examined the effects of habitat and agricultural 

practices on birds breeding on farmland and determined that the most important variable 

decreasing total bird species abundance was pesticide use (Freemark and Csizy, 1993).

Recent changes in agriculture have accelerated the impact of pesticides on surrounding land. 

Genetically altered Roundup® ready corn, soybeans, cotton, and sugar beets have expanded 

the window of opportunity for pesticide applications and promises to kill everything green on 

fields except the genetically altered crops. Another altered crop, Bt. Corn, contains a genetically 

engineered insecticide. Even the pollen from this plant can kill certain insects, such as monarch 

butterflies. 

Research has shown that insecticides commonly used for sunflowers, soybeans, and corn can 

kill wildlife directly and indirectly by decreasing the amount of food available. For example, 

ducks feed on grain much of the year, but in the spring they shift to aquatic invertebrates such 

as insect larvae, amphipods, and snails and depend on this food source for reproduction and 

survival. Even when aerial insecticide applications are completed carefully and wetlands are 

avoided, the chemicals drift into wetlands in measurable amounts and kill aquatic invertebrates 

(Tome et al., 1991 and Grue et al., 1986).

Insecticides have a direct effect by killing aquatic invertebrates, but herbicides also have an 

indirect effect on food available to waterfowl. The U.S. Fish and Wildlife Service (FWS, Service)

conducted a study of the impact of agricultural chemicals on selected wetlands in four WMDs in 

Minnesota (Ensor and Smith, 1994). Herbicides from surrounding agricultural land enter 

wetlands and disrupt the functional interaction between vegetation structure and aquatic 

invertebrate life. The changing dynamic reduces food available to breeding waterfowl. 

Seasonal and semi-permanent wetlands, which are the majority of WPA wetlands, are the most 

exposed to agricultural chemicals. These wetlands are small and interspersed with croplands, 

which increases the probability of pesticides from overspray and aerial drift. Most pesticides are 

applied to crops in the spring and early summer, coincident with maximum runoff and waterfowl 

breeding. Therefore, prairie pothole wetlands may involve interactions of multiple herbicides 

and possibly insecticides creating a unique “chemical soup" in each individual wetland (Ensor 

and Smith, 1994). Ensor and Smith’s study showed that "typical agricultural use" of pesticides 

on surrounding land had a significant impact in reducing the biological quality of WPA wetlands. 

The extensive open ditches and drainage tile also play a critical role as conduit for the 

transmission of exotic species into wetlands. Rough non-native fish species such as carp can 

reside in ditches and drainage tile surviving even low dissolved oxygen levels. These fish travel 

upstream through ditches and tile reaching wetlands, where they cause turbidity in the water, 

disturbing wetland soils, and preventing aquatic plant growth.

Current Management

At the district level, water resources are primarily managed indirectly through habitat and 

vegetation management. For example, the planting of perennial grassland cover around district

wetlands provides a protective buffer that reduces silt and nutrient loading of the wetlands. 

However, some district wetlands use water control structures to allow the manipulation of water 

levels for management purposes such as rough fish control, wetland revegetation, or the 

prevention of negative impacts to adjacent private cropland. In fact, agricultural drainage 
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activities are the biggest challenge for the district when implementing management actions. 

Wetland restoration in the district must be carefully orchestrated as not to interrupt drainage on 

adjacent private land. In many cases, drainage must be maintained across WPAs so 

neighboring fields continue to drain. This often involves outletting tile into district wetlands, 

rerouting tile and/or replacing tile with nonperforated pipe, and/or installing water control 

structures. As mentioned above, this water brings excessive soil and nutrient runoff from 

adjacent crop fields into the wetlands in the district. Restoring wetlands in this landscape have 

foreseen consequences. If a restorable wetland is connected to a surface ditch, the restored 

wetland may act as a sediment retention basin and not function as a true wetland. This effects 

the vegetation in the wetlands and ultimately waterfowl production in those wetlands.

Air Quality

Iowa’s rural setting tends to promote better air quality than some other states in the Nation. 

However, Iowa’s tradition as a working lands state, especially agriculturally, actually exposes its 

air to numerous potential sources of pollution. Existing air quality within the district is subject to 

air pollutants from the following:

• Internal combustion engines, including vehicles, tractors, outboard motors, and 

chainsaws

• Agricultural sources, including livestock confinements and field dust

• Private sources, including burning brush piles

• Industrial sources, including factory and other large industry output in larger cities

Current Management

While several district management activities, such as using chainsaws, seeding cropland to 

native prairie, and driving trucks and tractors, release pollutants into the air, perhaps the activity 

of most concern regarding air quality is prescribed fire. Prescribed fire is one of the basic tools 

used to achieve a variety of management objectives in the fire dependent tallgrass prairie 

ecosystem within the district. Tallgrass prairie evolved with recurring fire and is therefore 

dependent on recurring fire for maintenance.

While prescribed fire affects air quality by releasing particulates and pollutant gases, it is only a 

sporadic and temporary source of air pollution. Air quality impacts are short-lived since a 

specific burn plan is written, indicating, among other variables, particular wind requirements 

(direction and speed) for igniting any given fire. Wind typically dissipates smoke rapidly. 

Approximately 5,000–7,000 acres of habitat are burned in the district each year either for 

restoration or maintenance of grasslands. This acreage will likely increase if the district

continues acquisition. Presently, the vast majority of prescribed fire occurs in the spring with 

little accomplished in the fall. There is a desire for more autumn and summer prescribed fires; 

however, a variety of factors makes this challenging. Overall careful planning and good 

communication has reduced negative impacts to neighbors and sensitive facilities in the area. 

Habitat

Often called the Prairie Pothole Region, the Des Moines Lobe was glaciated up until 12,000 

years ago. As the glaciers receded, the lobe that extended into north-central Iowa left behind 
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7.6 million acres of grasslands, with the tallgrass prairie biome as a prime example, and two to 

three million acres of wetlands and small interconnected swamps. This prairie/wetland complex 

evolved under the influence of climate and processes such as fire and grazing. After the 

glaciers receded, the climate became much warmer and drier. This change led to a dramatic 

expansion of prairie over a period of several thousand years. About 3,000 years ago, the 

climate turned cooler and wetter. This should have favored the expansion of trees, but the 

prairie in Iowa was maintained by regular fires and grazing by large herbivores. However, in the 

late 1800s, Iowa suffered significant losses in wetland and grasslands as settlers began 

converting the rich soils of these habitats to cropland. Nonetheless, this region contains some 

of Iowa's finest remnants of the tallgrass prairie (figure 3-6). Prairie bush clover (Lespedeza 

leptostachya), a plant endemic to the upper Midwest, is found on some of these remnants 

(Eilers and Roosa, 1994). 

Figure 3-6: Iowa’s Remaining Tallgrass Prairie Remnants

Based on the Potential Natural Vegetation data derived from the USDA Natural Resources 

Conservation Service, Soil Survey Geographic database soil descriptions, historically over 90 

percent of the district was prairie; over six percent was savanna and just over one percent was 

forest (figure 3-7). Pothole wetlands were not uniquely identified as a habitat type; however 

marsh, bog, muck/peat, and water were identified (figure 3-7). Since not much of these 

categories show up in the district, it is likely that the pothole wetland habitat is included in 

prairie, considered “wet prairie.” Currently, over 80 percent of the district is in row crop 

agriculture while nearly eight percent is developed. Surprisingly, seven percent remains in 
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grassland agriculture or herbaceous cover. Finally, two percent is forested and just over one 

percent is wetlands (figure 3-8). 

During the Comprehensive Conservation Plan (CCP, Plan) planning process, a vegetative cover 

type Geographic Information System (GIS) layer was created. Aerial photography interpretation 

was used to classify the vegetation covering the district into several general categories including 

agriculture, developed, disturbed, grassland, open water, trees, and wetland. This layer was 

compared to a similar layer created by the Iowa DNR a couple of years ago; however, that layer 

did not include WPAs managed by Union Slough NWR (within the district) or the district’s 

newest acquisitions. Table 3-1 summarizes the number of acres per cover type category. 

Figure 3-9 displays one WPA as an example showing the layer that was created during the CCP 

planning process. 

Table 3-1: Iowa WMD Vegetative Cover Type Classifications as of Summer 2011

Cover Type DNR Managed 

(acres)*

Union Slough 

NWR Managed 

(acres)*

Acquired After 

DNR 

Classification 

(acres)*

Total (acres)*

Agriculture 3,385 0 342 3,727

Developed 143 23 0.4 166.4

Disturbed 34 8 1 43

Grassland 13,262 2,839 86 16,187

Open Water 850 54 0 904

Trees 311 93 3 407

Wetland 3,235 276 6 3,517

Total 21,220 3,293 438.4 24,951.4

*Acres are based on GIS polygons and calculations, not on legal survey documents. 
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Figure 3-7: Potential Natural Vegetation of the Iowa WMD
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Figure 3-8: National Land Cover (2006) of the Iowa WMD
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Figure 3-9: Vegetative Cover for Spring Run Waterfowl Production Area in the Iowa WMD
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Wetlands

Prairie wetlands and prairie streams are an important part of the prairie ecosystem. The PPR is 

characterized by numerous, shallow wetlands known as potholes. These wetlands provide 

essential fish and wildlife habitat, permit ground water recharge, and act as filters of sediment 

and pollutants. They reduce floods by storing water and delaying runoff. The PPR of more than 

300,000 square miles once included about 20 million acres of wetlands; today, only about 5.3 

million acres remain in 2.7 million basins within five pothole area states, including Iowa. More 

than 78 percent of these wetland basins are smaller than one acre in size. They were poorly 

drained, and in the spring they retained water, acting like a great landscape sponge. Over the 

course of the season, water drained slowly.

Settlers found the shallow wetlands difficult to farm as the high water table kept the ground 

saturated for extended periods in wet years. Therefore, the vast prairie pothole wetlands of 

north central and northwest Iowa took longer to impact. Through the first 20 years of settlement 

there was plenty of good land available without trying to farm around wet acres. However, in 

1850, Congress passed the Swamp Land Act. It directed each county to survey all wetlands and 

sell them at auction for five cents per acre. County drainage commissions and drainage districts 

were soon organized. Eventually pothole soils were discovered to be some of the most 

productive when dry, further accelerating the demand for drainage. When the land was 

converted to farms, the new owners built drainage ditches, straightened streams, and drained 

shallow wetlands off their land. Now, in the spring, water rushes off the land and floods the 

streams and rivers. Drainage has been so extensive that in many areas the water table has 

been lowered and the hydrology of the entire region has been transformed. In Iowa, 99 percent 

of pre-settlement wetlands have been lost (from 2.3 million to 26,470 acres), primarily between 

the 1780s and the 1980s (Noss et al., 1995).

The fluctuating water levels in the shallow wetlands are natural to the dynamic pattern of 

precipitation in the prairie. The changing water level results in circular bands of vegetation 

around each basin, because different plant species have different tolerances for saturated soils. 

The depth of the basin also affects the kind of vegetation that grows. The drying pattern is one 

of the features used to classify wetland basins. Deeper basins have perennial emergent 

vegetation such as cattails and dry up every five to 10 years. Wetlands that dry up every other 

year or on a several year cycle are called semi-permanent or permanent wetlands. Basins that 

dry up every year are temporary or seasonal wetlands. Some very shallow basins, called 

ephemeral wetlands, dry up early in the spring after the frost leaves the ground.

Freshwater wetlands like those in the PPR are among the most productive in the world (Weller,

1981). The dynamic water cycle creates a rich environment for many waterfowl and other 

marsh birds. Cycling water accelerates decomposition of marsh vegetation, resulting in a 

natural fertilizer. When the basins recharge in the spring, the water becomes a soup of 

nutrients and supports a diverse and healthy population of aquatic invertebrates, which feed 

reproducing waterfowl and marsh birds throughout the spring and summer. In the larger basins, 

the vegetation changes from densely closed cattail (Typha sp.) or bulrush (Scirpus sp.) cover to 

open with little cover over a period of years. In the process of transition, the cover vegetation 

moves through a phase, known as hemi-marsh, when clumps of emergent vegetation are 

interspersed with open water (Weller, 1981). In this phase, the structure of the vegetation itself 

creates habitat and stimulates the production of aquatic invertebrates, which in turn hosts the 

maximum number of marsh birds. Unfortunately, this phase is only temporary and most 

wetlands cycle out of it in one to three years.
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Unfortunately, large-bodied fish appear to be critical determinants of wetland condition. 

Common carp (Cyprinus carpio), bullhead (Ameiurus sp.) and other large fish were not 

historically abundant in Iowa prairie pothole wetlands but now occur in many of these 

ecosystems and are causing significant problems. Large fish stir up wetland sediment while 

foraging, which reduces water clarity. Fish foraging activities also increase nitrogen and 

phosphorus in the water, which stimulates noxious algae blooms. Fish can also physically 

uproot plants and reduce the number of invertebrates by eliminating their habitat and consuming 

them. Large fish may be introduced to wetlands when nearby streams and rivers flood. When 

the flood water recedes, many fish are stranded in the ponds where they often thrive. Fish can 

also invade wetlands from streams and rivers via constructed drainage ditches (Galatowitsch 

and van der Valk, 1994).

According to the National Wetlands Inventory, updated over the past several years, the district

contains approximately 372,722 wet acres. Those wet acres are either associated with rivers 

(riverine: 35,498 acres), lakes (lacustrine: 55,065 acres), or marshes, swamps or ponds 

(palustrine: 282,159 acres). However, nearly 40 percent (107,893 acres) of the palustrine acres 

are temporarily wet areas that have been farmed through, usually having very little or no 

wetland emergent vegetation (figure 3-10). The various water regimes for the wet acres in the 

district are presented in table 3-2.

Figure 3-10: National Wetlands Inventory of the Iowa WMD
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Table 3-2: National Wetlands Inventory Water Regime for the Iowa WMD’s Wet Acres

National Wetlands Inventory Water Regime Acres

None 470

Temporarily Flooded including "ditched and farmed" 194,960

Saturated 1,107

Seasonally Flooded 54,438

Semi-permanently Flooded 19,504

Intermittently Exposed 24,586

Permanently Flooded 75,014

Artificially Flooded 2,642

Current Management

The goal of wetland management in the district is to provide diverse wetland complexes that 

provide high quality nesting and migratory habitat for waterfowl and other water birds. Most new 

lands acquired for the district have been crop fields for many decades. This has resulted in the 

draining of all wetlands on the property. After acquisition, one of the first management actions 

taken on these lands is to restore the drained wetlands. Wetland restoration is accomplished in 

a variety of ways including the removal and/or alteration of underground drainage tile, the 

plugging of drainage ditches, the construction of dikes or the installation of water control 

structures. After restoring the hydrology, most wetlands are allowed to naturally revegetate. 

Seeding appropriate wetland plants into the various zones of the wetland can increase plant 

diversity. This is rarely completed due to a lack of appropriate seed source, high cost, and 

extensive time commitment. The few attempts that have been made to increase plant diversity 

by seeding wetland areas have been met with mixed results at best. Once restored, the 

manipulation of vegetation is the primary management action that is being used more often with 

Iowa DNR zone seedings. Prescribed fire and water level manipulation are the most common 

tools used to manage wetland vegetation.

Native Grasslands

The natural prairie of Iowa was more than just a monolithic sea of grass, with some containing 

200 plant species. Prairie plants are adapted to subtle changes in moisture and soils that occur 

along a gradient from lowlands to drier prairie ridges. Poorly drained wetlands and wetland 

margins supported rank growths of sedges (Carex sp.), sloughgrass (Beckmannia sp.), 

cordgrass (Spartina pectinata), bluejoint (Calamagrostis canadensis), and various panicgrasses. 

Common forbs (constituting 80 percent of the plant species in some areas) included such 

species as gayfeather (Liatris pycnostachya), cup plant (Silphium perfoliatum), turk’s-cap lily 

(Lilium superbum), prairie clover (Dalea sp.), various coneflowers, and New England aster 

(Symphyotrichum novae-angliae). Better-drained loamy soils on slopes and broad ridges were 

covered with more moderate stands of switchgrass (Panicum virgatum), big bluestem 

(Andropogon gerardii), Indiangrass (Sorghastrum nutans), and forbs like compass plant 

(Silphium laciniatum), rattlesnake master (Eryngium yuccifolium), smooth blue aster 

(Symphyotrichum laeve), wild indigo (Baptisia sp.) and goldenrod (Solidago sp.). Drier sites on 

gravel and sand ridges or steep slopes supported shorter and more open stands of little 

bluestem (Schizachyrium scoparium), sideoats grama (Bouteloua curtipendula), and 

needlegrass (Stipa sp.), with forbs like pasqueflower (Pulsatilla patens), ground plum 
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(Astragalus crassicarpus), pucoon (Lithospermum sp.) and downy gentian (Gentiana 

puberulenta). 

Today, remnants of prairie and their 

associated wetlands are scattered and 

rare across their historic range, 

especially in Iowa. In fact, all types of 

tallgrass prairie are considered 

endangered ecosystems (85–98

percent decline), but tallgrass prairie 

east of the Missouri River and on 

mesic sites across its range is critically 

endangered (>98 percent decline). In 

Iowa, 99.9 percent of the natural 

tallgrass prairie has been lost. 

Remnants totaling approximately 

30,000 acres remain mostly on dry 

and dry-mesic sites too rocky, sandy, 

dry, or inaccessible to plow (Noss et 

al., 1995). These remnants form the last refuge for many species of prairie plants and wildlife 

(Zohrer, 2005). 

As is often the case when something reaches levels so low that it is in danger of disappearing 

completely, tallgrass prairie has enjoyed a resurgence of interest over the last several decades. 

This has led to more plantings using native species. At first, monotypic stands of switchgrass 

were planted. Then mixes of three to five species of native grasses were used. Today, many 

prairie plantings include diverse mixes of native grasses and forbs, often up to 70 species of 

forbs and grasses. Although they still fall short, these diverse plantings do more closely 

resemble remnant prairie.

Savannas are areas of scattered, open canopy trees surrounded by tallgrass prairie. The 

dominant savanna tree species is burr oak (Quercus macrocarpa). Historically, pockets of 

savanna were found in portions of the Des Moines Lobe landform in Iowa. Notably, Winnebago 

and Worth Counties contained significant tracts of savanna. Savanna is important to bird 

species such as red-headed woodpecker (Melanerpes erythrocephalus), Eastern bluebird 

(Sialia sialis), loggerhead shrike (Lanius ludovicianus,) and orchard oriole (Icterus spurius).

Current Management

Remnant prairie in the district is managed to provide high quality habitat for migratory birds. It is 

also important to preserve the remnant prairie for its intrinsic value. Some remnant prairie 

provides habitat for threatened and endangered species, and in fact, tallgrass prairie is itself an 

endangered ecosystem. All management activities on these lands occur only after considering 

the long-term effects they will have on the prairie community, especially effects on any known 

threatened or endangered species. Common management activities on these lands include 

prescribed fire, tree and brush removal, invasive species control, haying, and grazing.

The majority of district lands were crop fields when they were purchased. Therefore, most of 

the upland in the district was seeded with a goal of planting vegetation attractive as nesting 

cover to waterfowl and other migratory grassland birds. Currently, most new seedings planted 

Purple Prairie Clover
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in the district are diverse mixes of local 

ecotype native grasses and forbs. 

These diverse mixes often contain 50 

to over 130 species. Some of the 

oldest native seedings in the district

contain a single species such as 

switchgrass or big bluestem. There 

are also intermediate diversity 

seedings that contain anywhere from a 

mix of three to seven native grasses to 

a mix of ten to twenty native grasses 

and forbs. As the seed mixes evolved 

from low diversity to high diversity, it 

became clear that the geographic 

origin of the seed used was important. 

Southern ecotype seed will grow in 

northern Iowa but frequently does not produce viable seed. Varieties from too far north of Iowa 

tend to be susceptible to disease. Therefore, great care is taken to ensure that all native 

seedings use appropriate ecotype seed. Once established, planted native grasslands are 

managed with prescribed fire, tree and brush removal, invasive species control, haying and 

grazing. 

Savanna is not a habitat type that is targeted for purchase by the district. Restoring and 

managing savanna has little, if any, benefit to ground nesting waterfowl. In fact, savanna 

habitat is likely to attract avian and mammalian predators that will be a detriment to ground 

nesting waterfowl. However, some past acquisitions have contained a few small areas that may 

be degraded savanna. Savanna is an important habitat type; however, it is not currently the 

district’s highest priority. Therefore, the current strategy to manage these savanna areas is 

passive—to leave them as they are for now. 

Non-Native Grasslands

Prior to settlement, most of Iowa was covered with tallgrass prairie. As the state was settled 

and the prairie was broken up, introduced species gained a foothold. Europeans brought 

familiar plant species with them as they settled Iowa. Some of these new species were 

introduced intentionally as pasture “improvement.” Other species were introduced by accident 

from hay that was imported from overseas to feed livestock. Regardless of how they got here, 

many of these species have flourished since their introduction to Iowa. Grasses like smooth 

brome (Bromus inermis), timothy (Phleum pretense), orchardgrass (Dactylis glomerata), and 

Kentucky bluegrass (Poa pratensis) are now common grasses throughout Iowa. Broad-leaved 

plants such as crownvetch (Coronilla varia), birdsfoot trefoil (Lotus corniculatus), alfalfa 

(Medicago sativa), and Canada thistle (Cirsium arvense) are also commonly found in Iowa’s 

grasslands today.

Current Management

There are many acres of non-native grassland in the district. In some cases, the land was 

purchased with existing stands of the non-native grassland. Hayfields, old pasture or land that 

had been enrolled by the previous landowner in CRP are frequently covered with non-native 

species such as smooth brome.

Tallgrass Prairie
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Non-native grasslands are, at times, planted on old crop fields in the district, because they are 

attractive as dense nesting cover for ducks and other migratory birds. Haying after July 15 is 

the primary tool used to manage these areas. Waiting until July 15 to mow the grass allows 

nesting birds a chance to hatch and fledge before the field is cut. Haying controls invasive 

woody vegetation and invigorates the alfalfa in the stand. Cool season introduced species are 

also planted at times as firebreaks around building sites or other sensitive areas.

Prescribed fire is also used to manage non-native grasslands. If the fire is conducted in the 

early spring, it will also invigorate the stand. Fire also works well as a first step in converting the 

non-native stand to native grassland. The fire removes all the vegetation from a site, and then 

as the plants resprout, the area is sprayed with a non-selective herbicide, killing the non-native 

plants and preparing a clean seedbed for the native seeding.

Other Habitats

In the northern part of the lobe, glacial knobs and ridges were partially or wholly surrounded by 

shallow marshes. The wetlands protected the ridges from frequent prairie fires and promoted 

the establishment of savannas. These are especially noticeable near Pilot Knob State Preserve. 

Some of these glacial knobs are known as “dry knobs” and contain such species as sideoats 

grama, hairy grama (Bouteloua hirsuta), prairie junegrass (Koeleria macrantha), cutleaf 

anemone (Pulsatilla patens), and little bluestem. Unfortunately, many of these knobs are being 

highly modified by land use; especially gravel mining (Eilers and Roosa 1994). Conversely, the 

shallow marshes or wet depressions in the area contain an array of plants most of which are at 

or near the southern terminus of their ranges. Some of these include watershield (Brasenia 

schreberi), water horsetail (Equisetum fluviatile), tall cottongrass (Eriophorum angustifolium), 

common mare’s-tail (Hippuris vulgaris), tufted loosestrife (Lysimachia thyrsiflora), buckbean 

(Menyanthes trifoliata), cosmopolitan bulrush (Schoenoplectus maritimus), and common 

rivergrass (Scolochloa festucacea) (Eilers and Roosa, 1994). 

The Des Moines Lobe contained many peatlands and sedge swales as well. The peatlands 

contained drepanocladus moss, unlike those of the more northern parts of the United States, 

which are largely composed of sphagnum. However, in this part of the lobe is found the state's 

only example of a sphagnum bog (called by some researchers a "nutrient-poor fen" or "poor 

fen"), existing in Pilot Knob State Preserve. Recent palynological evidence indicates that this 

bog has been present since before Euro-American settlement and is probably a relic from 

conditions that prevailed at the end of the Pleistocene. A number of rare taxa, such as the 

following, are found on the floating mat: star sedge (Carex echinata), creeping sedge (C. 

chordorrhiza), mud sedge (Carex limosa), roundleaf sundew (Drosera rotundifolia), slender 

cottongrass (Eriophorum gracile), and bog willow (Salix pedicellaris) (Eilers and Roosa, 1994). 

The Des Moines Lobe was also known to contain fen habitat. In fact, the northwestern portion 

of the lobe was thought, until recently, to be the only part of Iowa where fens existed. Today, 

fens are known to exist on the Iowa surface as well yet exhibit different characteristics. Des 

Moines Lobe fens are more likely to have a deposit of tufa (calcareous or siliceous rock deposits 

of springs or ground water) at the surface; are divided into distinctive vegetative zones; lack 

ferns and are less likely than Iowa surface fens to have trees and shrubs. Plants unique to Des 

Moines Lobe fens include: cutleaf waterparsnip (Berula erecta), tall cottongrass (Eriophorum 

angustifolium), lesser fringed gentian (Gentianopsis virgata), Ontario lobelia (Lobelia kalmia), 

Huron green orchid (Platanthera huronensis), needle beaksedge (Rhynchospora capillacea), 
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low nutrush (Scleria verticillata), hooded lady’s tresses (Spiranthes romanzoffiana), seaside 

arrowgrass (Triglochin maritima), marsh arrowgrass (T. palustris), and lesser bladderwort 

(Utricularia minor) (Eilers and Roosa 1994). In Iowa, 40 percent of potential fen sites and 65–77

percent of actual fens have been destroyed by cultivation or drainage. Most of the remaining 

fens have been altered or threatened by grazing, cropland edge effects, woody plant invasion, 

drainage, excavation, or mining (Pearson and Leoschke, 1992).

Historically, forest in Iowa was concentrated in the eastern half of the state along the Iowa, 

Skunk and Des Moines Rivers and their major tributaries (Thompson, 1992). Today, Iowa’s 

forest is widely scattered as woodlots and wooded margins of streams and rivers. The majority 

of the forest in the district is found along the middle section of the Des Moines River in Webster 

and Boone Counties. The Little Sioux River in the western part of the district also contains a fair 

amount of forest. Guthrie, Jasper, and Dallas Counties contain measurable amounts of forest 

as well. 

Current Management

Currently, glacial knobs and ridges, sedge swales, fens, and peatlands in the district are not 

generally sought out for specific management. Prescribed fire as well as invasive species 

control, including tree and brush removal, are the primary management tools used on all these 

habitat types.

Forest is not a habitat type that is targeted for purchase by the district. Restoring and managing 

forest has little, if any, benefit to ground nesting waterfowl. Currently, district lands are not 

restored to or managed as forest.

Wildlife

Resident Wildlife

Plants

Plant species found within the district

are numerous as 157 species alone 

are state listed (Iowa National Areas 

Inventory). Two, prairie bush clover

and western prairie fringed orchid 

(Platanthera praeclara) are federal and 

state threatened; they are discussed in 

more detail under the Threatened and 

Endangered Species section below. 

Forty-eight other species are also 

state threatened, 18 species are state

endangered, and 89 species are 

considered to be of special concern in 

the state (appendix A). 

Swamp Milkweed
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Mammals

Iowa has 40 species of mammals that are considered common in the state. Appendix B 

contains a list of 50 mammals known or likely to occur within the district (Iowa Gap Analysis 

Program [GAP]). The Indiana bat (Myotis sodalist) is both federal and state endangered, while 

the spotted skunk (Spilogale putorius) is state endangered. The southern bog lemming 

(Synaptomys cooperi) is considered state threatened, and the flying squirrel (Glaucomys 

volans) is considered of special concern. Mammals extirpated from the state include pygmy 

shrew (Sorex hoyi), eastern woodrat (Neotoma floridana), porcupine (Erethizon dorsatum), gray 

wolf (Canus lupus), swift fox (Vulpes velox), black bear (Ursus americanus), marten (Martes 

americana), fisher (M. pennant), wolverine (Gulo gulo), mountain lion (Puma concolor), Canada 

lynx (Lynx canadensis), moose (Alces alces), and pronghorn (Antilocapra americana).

Fish and Mussels

The water bodies within the district are home to many species of fish and mussels. Historically, 

Iowa waters were home to approximately 55 species of freshwater mussels; today only about 

half of those species can be found. Appendix B contains a list of fish species known to occur 

within the district (Iowa GAP) and mussel species primarily listed as species of greatest 

conservation need (SGCN) in Iowa (Zohrer, 2005). The Topeka shiner (Notropis topeka) is 

federally and state listed and is discussed in more detail under the Threatened and Endangered

section below. Twenty other species are also state listed as threatened or endangered; they 

are noted in appendix A. 

Reptiles and Amphibians

Iowa is home to 66 known species of reptiles and amphibians. Appendix B contains a list of the 

species known to occur within the district (HerpNet). The wood turtle (Clemmys insculpta) is 

state endangered, while the ornate box turtle (Terrapene ornata), Blanding’s turtle (Emydoidea 

blandingii) and mudpuppy (Necturus maculosus) are state threatened. The smooth green 

snake (Opheodrys vernalis) and bullsnake (Pituophis catenifer sayi) are considered of special 

concern in the state. The eastern garter snake (Thamnophis sirtalis) is the only snake species 

to occur within the district that is not considered “protected”—that is, it is legal to kill or collect 

them in Iowa.

Insects

The habitats of the Des Moines Lobe 

contain a great variety of insects, 

although likely fewer species exist 

today than in the past. In the prairie, 

insects are important pollinators and 

food sources, especially for birds. 

Moths, butterflies, bees, and wasps 

are attracted to showy prairie flowers. 

The great mass of grasses, leaves,

and stems provides an abundance of 

habitat for grasshoppers and other 

insects. Spittlebugs are responsible for 

the wet, saliva-like liquid that is found Bee Pollinating Purple Prairie Clover
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at the base of many grass leaves. Their young cover themselves with a frothy, bubbly liquid 

after they hatch that protects them from predators, parasites, and the drying wind and sun. 

Multitudes of ants aerate and mix the rich prairie soil. Insects are literally at the center of life on 

the prairie as prairie mammals, birds, reptiles, and amphibians need an abundance of insects in 

their food chains. 

In the wetlands, insects were also important food sources for birds, mammals, reptiles, and 

amphibians as they outnumbered all other animals. In open waters, insects such as the water 

boatman (Corixa sp.) and backswimmer (Notonecta sp.) feed on plants, carrying bubbles of air 

with them as they make their dives. Water scorpions (Nepidae family), predacious diving beetles 

(Thermonectus sp.), and giant water bugs (Belostomatidae family) are predators that search 

wetland waters for zooplankton, other insects, and even tadpoles and larger crustaceans. Even 

the surface film of wetland waters contains insects, mosquito larvae, water striders (Gerridae 

family), whirligig beetles (Gyrinus sp.), and fishing spiders (Dolomedes sp.). Above the water, 

dragonflies and damselflies eat swarms of gnats, flies, and mosquitos; mayflies flutter after a 

hatch in spring and summer; and butterflies feed on the nectar of wetland flowers.

Threatened and Endangered Species

The district contains seven federally listed species. Three (Least Tern, Topeka shiner, and 

Indiana bat) are endangered, two (prairie bush clover and western prairie fringed orchid) are 

threatened. The Dakota skipper and Poweshiek skipperling are listed as candidate species. 

The district also contains numerous state listed species. Most of these are discussed in their 

relevant subsections above. The following provides more information on the federally protected 

species: 

Least Tern – Endangered (Sterna antillarum)

Least Terns nest along large rivers of the Colorado, Red, Mississippi, and Missouri River 

systems on barren to sparsely vegetated sandbars, sand and gravel pits, and lake or reservoir 

shorelines. They winter in coastal Central and South America. Threats to Least Terns include 

unusable nesting habitat due to human disturbance and alteration of river systems and pesticide 

use that reduces food availability such as small fish.

Current Management

The Least Tern is currently only in one county of the district, Polk. Its recovery plan calls for 

protecting, enhancing, and restoring breeding habitat to increase the population to 7,000 birds. 

However, most of the district does not contain suitable habitat currently, nor is it targeted for 

future acquisition. The focus for the district is prairie potholes and surrounding uplands that are 

generally heavily vegetated. Therefore, management of the district has virtually no impact on 

Least Terns.

Topeka Shiner – Endangered (Notropis topeka)

Topeka shiners were historically common in small to mid-sized prairie streams, oxbows, and offchannel pools, in the central United States. Currently, Topeka shiners are found primarily in 

small, isolated populations in Iowa, Minnesota and portions of South Dakota in small streams 

that run continually with good water quality and cool to moderate temperatures. Threats to the 

Topeka shiner include habitat destruction, sedimentation, and changes in water quality. Stream 
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segments in the Raccoon River, Boone River, and Rock River watersheds in Iowa have been 

designated as critical habitat for Topeka shiners (figure 3-11). Critical habitat is a specific 

geographic area(s) that is essential for the conservation of a threatened or endangered species 

and that may require special management and protection. Critical habitat may include an area 

that is not currently occupied by the species but that will be needed for its recovery. 

Figure 3-11: Topeka Shiner Critical Habitat in Iowa
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Current Management

Although the district does not target stream habitat for purchase, the Topeka shiner may receive 

benefits from habitat management within the district. Wetland and grassland restoration on 

former crop fields can have dramatic impacts on downstream water quality. Most land 

purchased in the district is cropland. The restoration of grassland/wetland complexes in the 

district acts to slow the movement of water across the land. This results in a slower release of 

water to area streams and a corresponding reduction in sediment and other pollutants entering 

the streams. The Topeka shiner does not currently have a recovery plan. 

Indiana Bat – Endangered (Myotis sodalis)

Indiana bats can be found hibernating during winter in caves or, occasionally, in abandoned 

mines and in summer roosting in forest gaps, fencelines, or edges of wooded areas under the 

peeling bark of dead and dying trees. Indiana bats eat a variety of flying insects found along 

rivers or lakes and in uplands. Threats to the Indiana bat include human disturbance, 

commercialization of caves, loss of summer habitat, pesticides and other contaminants, and 

most recently, the disease white-nose syndrome.

Current Management

Currently within the district, the Indiana bat only utilizes summer habitat in Jasper County. 

However, this location is not in one of the four priority recovery units; therefore, the recovery 

plan calls for enhancing and improving habitat on private lands and protecting foraging habitat, 

water sources, and travel corridors. The recovery plan does not include a specific population 

objective. The district is primarily managed for waterfowl and other migratory grassland birds; 

thus, forested land is not targeted for acquisition. In fact, many district resources are expended 

to prevent and/or remove woody species. Therefore, the majority of the district does not provide 

roosting sites for Indiana bats. However, the restoration of grassland/wetland complexes does 

provide areas that produce insects, which can be important to foraging Indiana bats. 

Prairie Bush Clover – Threatened (Lespedeza leptostachya)

Prairie bush clover is found in midwestern hill prairies that are dry and gravelly and in thin soil 

prairies containing big bluestem and Indiangrass—especially in the Little Sioux River and Des 

Moines River valleys. Prairie bush clover is apparently able to grow in disturbed areas so its 

population may be stable or, if declining, declining slowly.

Threats to the prairie bush clover include conversion of pasture to cropland, overgrazing, 

agricultural expansion, herbicide application, urban expansion, rock quarrying, and 

transportation right-of-way maintenance and rerouting. Hybridization with the more common 

round-headed bush clover has also been identified as a potential threat in some areas.

Current Management

Prairie bush clover is only in remnant prairie vegetation on a few sites throughout the district. 

The recovery plan calls for protecting and managing 20 populations in the core area and 15 

outside the core area. Five counties within the district are completely within the core area 

including Dickinson, Clay, Emmet, Kossuth, and Palo Alto; four other counties (Humboldt, 

Pocahontas, Osceola and O’Brien) are partially within the core area. Management activities 
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occurring in the district that could affect prairie bush clover include prescribed fire, haying, 

grazing, and invasive plant treatments. Fire promotes healthy prairie plant communities and 

helps control invasive woody plants that may shade out prairie bush clover. However, fire 

during the growing season may kill prairie bush clover seedlings. Therefore, most district burns 

are conducted early enough in the spring that seedlings have not yet emerged. Fire and any 

other district management action that may affect prairie bush clover are carefully planned to 

avoid negative impacts to the plant. 

Western Prairie Fringed Orchid – Threatened (Platanthera praeclara)

Western prairie fringed orchid occurs in moist, calcareous subsaline prairies and prairie sedge 

meadows and swales. The species may be stable, but loss of tallgrass prairie habitat has 

markedly reduced its original range. Present sites are threatened by human activities, land use 

changes, competition by invasive plants, indiscriminate grazing, annual mid-summer haying, 

and poorly timed prescribed fire.

Current Management

Currently, there are no known populations of western prairie fringed orchid in the district. The 

recovery plan calls for protectively managing sites harboring 257 more additional plants. 

Although prescribed fire is the main management tool used in the district grazing, haying, and 

invasive plant removal may also be used. Depending on timing and duration, all of these 

management tools can have either positive or negative impacts on western prairie fringed 

orchid. If a new acquisition contains orchids or a new population is discovered on existing 

property, the use of all of these tools will be carefully planned and implemented to avoid 

negative impacts.

Poweshiek Skipperling – Candidate Species (Oarisma poweshiek)

Poweshiek skipperlings are small, moth-like butterflies that are obligate residents of high, dry 

and low, wet tallgrass prairies. They are most often found in native prairie remnants in Iowa, 

Minnesota, North Dakota, South Dakota, and Wisconsin and in fens in Michigan. During 

preparation of a status assessment in 2005, there was evidence that populations were declining 

throughout its range, particularly in Iowa and Minnesota. Data since then confirms sharp 

population declines in most of its range. Of particular concern is its apparent disappearance 

from the majority of sites in the heart of it range in Iowa, Minnesota, and South Dakota. 

Population numbers in Iowa have likely dropped dramatically due to the huge losses of prairie 

across the landscape. In fact, the Service may propose critical habitat by the end of 2013 for 

the Poweshiek skipperling. 

One important larval host plant is slender spike rush (Eleocharis elliptica), although there is 

good evidence from Minnesota and Wisconsin to indicate that prairie grasses, especially prairie 

dropseed (Sporobolis heterolepis) and little bluestem (Schizachyrium scoparium), are also 

important larval host plants (Shepherd, 2005). Adult Poweshiek skipperlings depend on nectar 

from a variety of flowers including blackeyed Susan (Rudbeckia hirta) and pale purple 

coneflower (Echinacea pallida). Threats to the Poweshiek skipperling include widespread 

conversion of native prairie for agriculture and other uses, woody and non-native plant invasion 

of prairie, over use of prescribed fire and overgrazing.
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Current Management

The district is managed primarily to provide healthy, vigorous vegetation for the benefit of 

waterfowl and other migratory birds. Prescribed fire is the primary management tool used. Fire, 

if used too aggressively, however, can be a serious detriment to the Poweshiek skipperling. Fall 

and spring prescribed burns are likely to expose Poweshiek skipperling larvae and pupae to 

lethal temperatures. However, lack of fire can allow invasion of woody and non-native plants 

that threaten the long-term viability of the prairie. Losing the prairie plants will threaten the longterm viability of the Poweshiek skipperling and undermine the primary management goal of 

providing healthy, vigorous vegetation for use by migratory birds. 

Currently, it is unknown if any Poweshiek skipperling populations occur in the district. There is a 

need to inventory all remnant prairie across the district to determine any presence. The 

Poweshiek skipperling does not currently have a recovery plan; however, protecting existing 

habitat, managing in a “butterfly friendly” manner, which includes mowing, burning, grazing, 

haying, and tree removal, and connecting fragments of native prairie are recommended. If the 

skipperling is found, management practices can be adjusted. Units could be subdivided and 

then burned on a rotational basis to leave some unburned refuge areas. Alternatively, haying 

could be used in place of fire, as long as cutting occurs after late July once skipperling eggs 

have hatched. 

Dakota Skipper – Candidate Species (Hesperia dacotae)

The Dakota skipper is a small butterfly that is found on relatively flat and moist native bluestem 

prairie in which three species of wildflowers are usually present and in flower when in their adult 

(flight) stage: wood lily (Lilium philadelphicum), harebell (Campanula rotundifolia), and smooth 

camas (Zigadenus elegans). The Dakota skipper also is found on dry upland prairie that is often 

on ridges and hillsides dominated by bluestem grasses and needlegrasses where three 

wildflowers are typically present: pale purple coneflower (Echinacea pallida), upright coneflower 

(Ratibida columnifera), and blanketflower (Gaillardia aristata). Its only known location in Iowa 

was in the Little Sioux River valley; however, as of 2013, the Dakota skipper is believed to be 

extirpated from the state. Threats to the skipper include widespread conversion of native prairie 

for agriculture and other uses, over use of prescribed fire, and overgrazing. 

Current Management

The district is managed primarily to provide healthy, vigorous vegetation for the benefit of 

waterfowl and other migratory birds. Prescribed fire is the primary management tool used. 

Dakota skippers are vulnerable to fire at virtually all life stages and likely depend on 

repopulation from unburned areas to persist. This strategy worked well when the prairie was a 

large, continuous, intact ecosystem. However it does not work well with the district’s present 

situation of small, isolated remnant prairie tracts. Healthy prairie tracts are essential for the 

long-term survival of the Dakota skipper. However, most management tools used to maintain 

small, isolated tracts of prairie can be detrimental to the Dakota skipper. Fire, haying, and 

intensive grazing can all eliminate Dakota skippers from a site. The challenge then, is 

managing remnant prairie in a high quality condition with the appropriate tools and timing as to 

not eliminate the Dakota skipper from the site.

The Dakota skipper is presumed extirpated from Iowa, so it is unlikely that any Dakota skipper 

populations occur in the district. There is, however, a need to inventory all remnant prairie 

across the district to determine any presence. There is no recovery plan for the Dakota skipper 
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at present, but protecting existing habitat, managing in a “butterfly friendly” manner, which 

includes mowing, burning, grazing, haying, and tree removal, and maintaining or creating tracts 

that are at least 1,000 acres in size are recommended. If the skipper is found, management 

practices can be adjusted. Units could be subdivided and then burned on a rotational basis to 

leave some unburned refuge areas. Alternatively, haying could be used in place of fire, as long 

as cutting is delayed until at least mid-August to reduce adverse effects to any life stage.

Migratory Birds

Approximately 270 species of birds are known or likely to occur within the district (appendix A). 

Seventy-eight of those species are listed as SGCN in the Iowa state wildlife action plan. 

Thirteen of those SGCN are state listed as threatened, endangered, or of special concern. The 

Least Tern (Sterna antillarum) is the only federally listed (endangered) bird species in the 

district. 

Waterfowl

The largest group of birds to utilize the district is waterfowl since the PPR is considered the 

largest breeding ground for waterfowl in the continental United States. National wildlife refuges 

account for less than two percent of the landscape, yet they are responsible for producing 

nearly 23 percent of the region's waterfowl. Surveys have shown that although the PPR 

represents only 10 percent of the breeding habitat, it averages 50 to 75 percent of the duck 

recruitment each year in North America (North American Bird Conservation Initiative, U.S. 

Committee, 2011). Waterfowl species that use the prairie wetlands of Iowa include: Mallard 

(Anas platyrhynchos), Blue-winged Teal (Anas discors), Northern Shoveler (Anas clypeata), 

Northern Pintail (Anas acuta), American Wigeon (Anas americana), Gadwall (Anas strepera), 

Wood Duck (Aix sponsa), Ruddy Duck (Oxyura jamaicensis), Redhead (Aythya americana), 

Lesser Scaup (Aythya affinis), Canvasback (Aythya valisineria), Ring-necked Duck (Aythya 

collaris), and Canada Goose (Branta canadensis). 

The Service’s Habitat and Population Evaluation Team office receives survey data from the 

Iowa DNR for waterfowl populations within the nine most north and central counties of the 

district. In 2012, the survey resulted in 19.5 breeding pairs of all 13 species combined (Mallard, 

Gadwall, Blue-winged Teal, Northern Shoveler, Northern Pintail, American Wigeon, Greenwinged Teal [A. carolinensis], Wood Duck, Redhead, Canvasback, Lesser Scaup, Ring-necked 

Duck, and Ruddy Duck). This was up from 16.0 in 2011, but down from 23.1 in 2010. The 

average duck pair density (pairs per square mile) in 2012 was 4.3, up from 3.6 in 2011 but down 

from 5.1 in 2010 (FWS, 2012a). 

Rich soils and prairie wetlands make the region ideal for waterfowl but also highly productive for 

agriculture. The corn and soybean belt overlaps extensively with the southern PPR. Massive 

conversion of wetlands and prairie to agricultural fields has dramatically altered the landscape, 

the hydrology, and the region's carrying capacity for waterfowl. Some waterfowl species are 

more susceptible than others are to the transformation of prairie into agriculture. Mallards, Bluewinged Teal, and Canada geese have been successful in agricultural landscapes while species 

such as Northern Pintail, Gadwall, Canvasback, Redhead, and Lesser Scaup have not. 
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Current Management

The district is managed to produce a 

mosaic of wetland and upland habitats 

that are attractive to waterfowl and 

other migratory birds. Wetlands are 

restored and managed to provide 

diverse wetland complexes that support 

the various life requirements of 

migrating and nesting waterfowl. Once 

the wetland basins have been restored, 

manipulation of vegetation becomes 

the primary management action. 

Prescribed fire, mowing during dry 

periods, and water level manipulation 

are the tools used to manage wetland 

vegetation. Most prescribed fire in the 

district occurs in the spring, although 

some fall burning has been used in recent years with good success. In the late summer or fall, 

mowing and/or prescribed fire have been used to remove dense wetland vegetation from some 

shallow wetlands. This effectively opens up the wetland and makes it more attractive to 

waterfowl the following spring. Fish barriers have been installed on some wetlands in the 

district to reduce water quality problems caused by rough fish populations. Water quality 

improvements lead to improved plant and invertebrate resources that directly benefit waterfowl.

Most upland in the district is converted from row crop fields to permanent grass cover. In 

addition to reducing erosion by slowing water’s movement across the land, grass cover also 

provides important nesting cover for waterfowl. 

Shorebirds

The PPR occurs within one of the 

major migration routes for shorebirds in 

North America. The U.S. PPR provides 

breeding habitat for 13 of 20 species of 

shorebirds that breed in the contiguous 

United States and offers important 

stopover habitat for 30 species of arctic 

breeders. The long distance migrations 

made by shorebirds are energetically 

expensive and require stopover sites to 

rest and refuel. During migration, 

shorebirds find protein rich food 

available in abundance in small, 

shallow wetlands scattered across the 

PPR. Some of the shorebird species 

that use the PPR of Iowa include: 

Killdeer (Charadrius vociferous), Upland Sandpiper (Bartramia longicauda), Greater Yellowlegs 

(Tringa melanoleuca), Lesser Yellowlegs (Tringa flavipes), Stilt Sandpiper (Calidris 

himantopus), Hudsonian Godwit (Limosa haemastica), American Golden-Plover (Pluvialis 

dominica), Pectoral Sandpiper (Calidris melanotos), Spotted Sandpiper (Actitis macularia), 

Shorebirds Feeding in Shallow Water

Mallard Brood
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Wilson’s Phalarope (Phalaropus tricolor), Long-billed Dowitcher (Limnodromus scolopaceus),

and Dunlin (Calidris alpina).

Shorebirds are a morphologically diverse group that use a wide range of habitat types within the 

PPR, including dry grasslands, riverine beaches and sandbars, natural wetlands, lake margins,

and flooded agricultural fields. During migration, shorebirds are generally associated with 

shallow water and moist mudflats. More than 70 percent of the species require water depths of 

less than 10 centimeters, and many are less than five centimeters (Skagen and Thompson,

2000). Many species prefer vegetation height to be less than half their body height, and most 

species prefer foraging sites with less than 25 percent vegetative cover (Skagen and 

Thompson, 2000). Due to the dynamic nature of prairie pothole wetlands, shorebird use of 

these potholes varies dramatically through time and space and is closely related to current 

wetland conditions. 

The PPR has been dramatically altered since settlement. Agricultural fields have replaced the 

once vast grassland/wetland complexes that supported huge flocks of shorebirds. This is 

especially true in Iowa. As the landscape was transformed to agriculture, wetlands, especially 

seasonal and ephemeral wetlands, and grasslands have been reduced to the point where the 

Iowa PPR struggles to consistently provide for the needs of shorebirds.

Current Management

The district is managed primarily to produce a mosaic of wetland and upland habitats that are 

attractive to waterfowl and other migratory birds. Shorebirds are directly impacted by these 

management actions. Most of the district properties are managed as part of a bigger complex 

of habitat with various ownerships. Managing the district within a bigger complex of wildlife 

habitat increases the potential to provide a variety of wetland types in one area. This allows a 

greater diversity of shorebird species to find suitable habitat to meet their current life 

requirements. 

Wetland drawdowns, prescribed fire, haying, and grazing are all management tools used to 

manipulate water levels and/or vegetation. Wetland drawdowns produce shallow water and 

exposed mudflats that are critical to many species of shorebirds. Prescribed fire, haying, and 

grazing are all used to manipulate vegetation with the goal of altering the current habitat in a 

way that will be beneficial to one or more groups of migratory birds. 

Water Birds

Water birds are a diverse group of birds that are closely tied to water bodies for a large portion 

of their life history. The group includes loons, grebes, pelicans, cormorants, herons, nightherons, bitterns, egrets, ibises, rails, coots, moorhens, cranes, gulls, and terns. This diverse 

group uses nearly every type of wetland habitat available, from large deep lakes to ephemeral, 

shallow marshes (Beyersbergen et al., 2004). Some of the more common water birds found 

throughout the district include; Great Blue Heron (Ardea hoerodias), Least Bittern (Ixobrychus 

exilis), Pied-billed Grebe (Podilymbus podiceps), Virginia Rail (Rallus limicola), Sora (Porzana 

Carolina), American Coot (Fulica americana), Double-crested Cormorant (Phalacrocorax 

auritus), and American White Pelican (Pelecanus erythrorhynchos). 

As previously mentioned, Iowa has lost 99 percent of its pre-settlement wetlands (Noss et al., 

1995). Wetland loss of this magnitude has greatly hampered the ability to provide sufficient 

wetland habitat for water birds in the district. The remaining wetlands are frequently influenced 
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by adjacent agricultural practices. Water clarity, vegetation characteristics, and prey base can 

all be impacted in wetlands located in an agricultural landscape. Water birds benefit from 

preservation and restoration of wetlands and uplands. Grassland preservation and restoration 

in uplands directly maintains or improves water quality in the wetlands and provides sites for 

foraging and nesting. 

Current Management

The district is managed primarily to produce a mosaic of wetland and upland habitats that are 

attractive to waterfowl and other migratory birds. Most of the district properties are managed as 

part of a bigger complex of habitat with various ownerships. Managing the district within a 

bigger complex of wildlife habitat increases the potential to provide a variety of wetland types in 

one area. Larger blocks of habitat also help mitigate the influences from adjacent agricultural 

lands. 

Generally, management actions in the district are intended to improve the habitat for migratory 

birds. The water birds mentioned above are considered migratory birds and are directly 

impacted by these management actions. Restoring wetlands and grasslands provides vital 

habitat. After restoration, the goal of management is to maintain high quality habitat conditions 

that can help sustain healthy populations of migratory birds. Management tools used to 

accomplish this include water level management, prescribed fire, haying, mowing, and grazing. 

Grassland Birds

Although agriculture has been an important feature in this area for over 100 years, it has been 

particularly intensive during the last several decades. Conversion from small, diverse, family 

farms to large agricultural operations specializing in monocultures of small grain and row crops 

has greatly reduced habitat on private lands such as pasture, hayed areas, and wetlands. 

Grassland birds are forced to nest in ever-dwindling fragments of remaining cover. Often the 

only nesting sites available are small isolated areas such as roadside ditches, abandoned 

farmsteads, rock piles, or other isolated patches of habitat. In North America, grassland birds 

have exhibited steeper declines than any other avian group. Their decline has a number of 

causes including loss of breeding and wintering habitat from agriculture, urbanization, habitat 

degradation from fire suppression, inappropriate grazing regimes, woody plantings, pesticides, 

nest predation, and Brown-headed Cowbird (Molothrus ater) parasitism. 

Within the category of "grassland birds," individual species show a variety of habitat preferences 

based on vegetation height, cover density, grass/forb ratio, soil moisture, litter depth, degree of 

woody vegetation, and plant species composition. A mosaic of grassland habitats is needed to 

meet the varying needs of grassland birds. Some of the species of concern found in the district

are area-sensitive, which means they require large, contiguous blocks of habitat to reproduce 

successfully. Area-sensitive species include the Short-eared Owl (Asio flammeus), Northern 

Harrier (Circus cyaneus), Upland Sandpiper (Bartramia longicauda), Bobolink (Dolichonyx 

oryzivorus), Henslow's Sparrow (Ammodramus henslowii), and Savannah Sparrow 

(Passerculus sandwichensis).

Current Management

The district is managed primarily to produce a mosaic of wetland and upland habitats that are 

attractive to waterfowl and other migratory birds. Most of the district properties are managed as 

part of a bigger complex of habitat with various ownerships. Managing the district within a 
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bigger complex of wildlife habitat increases the potential to provide a variety of wetland and 

grassland types in one area. Larger blocks of habitat also help mitigate the influences from 

adjacent agricultural lands. 

District grasslands are managed to produce vigorous stands that will be attractive nesting sites 

for waterfowl and other migratory birds. Generally, new seedings are diverse mixes of native 

grasses and forbs that provide enough structural diversity to be attractive to a wide variety of 

birds. Since natural processes such as wildfire and grazing by free roaming ungulates have 

been virtually eliminated from the landscape, grasslands require management to keep them 

healthy and free from woody and other invasive plants. Prescribed fire is the primary 

management tool used on district grasslands. Haying, grazing, and invasive plant 

control/removal are also used to maintain healthy grasslands throughout the district.

Invasive Species

Noxious weeds are a continuing problem both ecologically and socially/politically. Invasive 

species present a daunting challenge to land managers. Canada thistle (Cirsium arvense), 

musk thistle (Carduus nutans), crown vetch (Coronilla varia), sweet clover (Melilotus sp.), leafy 

spurge (Euphorbia esula), sericea lespedeza (Lespedeza cuneata), and spotted knapweed 

(Centaurea biebersteinii) can displace native vegetation over large areas and are a serious 

concern to neighboring farmers and county officials. Purple loosestrife (Lythrum salicaria) can 

effectively displace cattails and other native wetland vegetation and turn productive marshes 

into a sea of purple flowers. Carp can destroy native submergent vegetation, which provides 

the base for invertebrates. Minnows, often from past stockings by bait dealers, can cause 

serious damage to wetland food chains by reducing invertebrate populations needed by 

breeding waterfowl and ducklings. 

Control of these problem species is often costly, both in terms of chemicals, equipment, and 

staff time. Managers strive to use a balanced approach in controlling these species. Direct 

control, such as chemical application or mowing, is often needed on serious problem areas. 

Once healthy native plant communities are reestablished, they can often compete successfully 

against non-native and invasive species. Water level control, including complete drawdowns, 

can eliminate carp and minnow populations on wetlands where this capability is present. 

Current Management

Many district resources in the form of time and money are spent attempting to control invasive 

species. Mowing, applying chemicals, and properly timed prescribed burning are all methods 

used to control invasive species. In cases where diverse prairie mixes are planted, frequently 

the best management tool is patience. As the seeding develops and matures during the first 

five to ten years, it will often crowd out mild infestations of Canada thistle with only a few well 

timed prescribed fires. Heavy infestations of Canada thistle and more persistent weeds like 

crown vetch, leafy spurge and sericea lespedeza often require more active management like 

mowing or chemical treatment. At times, chemical treatment is the only practical way to get 

control of some invasive species. Although carefully directed chemical use can be effective in 

controlling invasive plants, care needs to be taken to avoid killing the desirable plants that 

provide the long-term competition for the invasive plants. Killing non-target plants may create 

openings in the seeding that are susceptible to reinvasion by more invasive plants. Invasive 

species management is a balancing act of minimizing collateral damage while achieving 

effective control. 
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People

According to the 2010 U.S. Census (U.S. Census Bureau, 2010), the population of all 35 

counties in the district is estimated to be 1.1 million while the population base of the largest 

cities combined is nearly 800,000. Few counties had population growth in the last two decades, 

and few are projected to have growth in the next five years. Pocahontas County has the biggest 

declines for the past and future while Dallas County has the biggest increases for the past and 

future. Changes in population from 1990–2000 varied across the district ranging from a 

decrease of 1 percent to an increase of 3.2 percent with an average 0.04 percent increase for 

the decade. The change in population from 2000–2010 ranged from a decrease of 1.18 percent 

to an increase of 4.34 percent with an average 0.2 percent decrease for the decade. The 

predicted change in population from 2010–2015 ranges from a 1.13 percent decrease to a 3.51 

percent increase with an average 0.25 percent decrease for the five years. 

Socioeconomic Setting

Current Situation

Demographics

The average household size across the district ranges from two to three people with a median 

age of 40–46 years old. Buena Vista, Webster, Dallas, and Polk Counties have median ages of 

36–39 while Story County has a median age of 28, likely due to it being home to Iowa State 

University. The majority of the district has a median household income between 41,000 and 

70,000 dollars per year with Palo Alto, Pocahontas, and Sac Counties at 40,000 dollars per 

year. However, the unemployment rate across most of the district in 2010 was between four 

and eight percent, with six counties between eight and 15 percent (U.S. Census Bureau, 2010). 

In general most employment across the district is in manufacturing, educational, health or social 

services, and retail trade. Agriculture employment is higher in some counties while finance, real 

estate, and insurance are higher in others. Thirty-two to 40 percent of the population has a high 

school diploma while 11–20 percent of the population has a bachelor’s degree (U.S. Census 

Bureau, 2010).

Agriculture, Commodity Prices and Land Valuation

According to Iowa State University’s 2011 Farmland Value Survey, 2011 was “one of the most 

remarkable years in Iowa land value history” (Duffy, 2011). The percentage increase reported 

for 2011 (32.5 percent) was the highest ever recorded by the survey. The previous high was 

31.7 percent increase recorded in 1973. In addition, the 2011 survey value ($6,708/acre), when 

adjusted for inflation, was at an all-time high. The previous inflation adjusted high was in 1979. 

The average land value per acre in 2011 for the four reporting districts that encompass the Iowa 

WMD: north central, northwest, west central, and central Iowa was $7,356, $8,338, $7,419, and 

$7781 respectively. These were the four highest values across the entire state.

High commodity prices were the most frequently mentioned positive factor influencing the 

agricultural real estate market, mentioned by 86 percent of survey respondents. According to 

Duffy, 
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“Farmland values are highly correlated with gross farm income. As gross farm income 

increases so will land values. In 2005, corn prices averaged $1.94 per bushel in Iowa. 

The preliminary estimated price for November 2011 is $6.05. Soybean prices changed 

from $5.54 to $11.40 over the same time period.” 

Even though there has been “considerable variation” in commodity prices over the past few 

years, net farm income has increased substantially and is expected to continue. This increased 

income has been the primary cause for the increased farmland values along with historic low 

interest rates for loans to purchase farmland and a dismally performing stock market, where 

investing in land appears safer and wiser than investing in traditional stocks (Duffy, 2011).

These trends pose a challenge to management of existing and continued acquisition of new 

public land in Iowa. Available funds will not buy as much land, desirable land may not be for 

sale, and even marginal land will likely be farmed. Increased agriculture in the PPR of Iowa 

may lead to increased drainage and decreased habitat for many grassland and wetlanddependent species. 

Land Use Patterns

Croplands

The majority of the land in the district is farmed. Corn and soybeans are major crops grown in 

the area. Iowa had a record corn crop in 2010 and once again led the Nation in soybean 

production. Over the past fifty years, the state has seen a steady reduction in the overall land in 

farms and net income from farming, while farm size and crop yields have grown (USDA, 2011). 

With farm size expanding and commodity prices rising, agriculture threatens remaining wetlands 

and prairie now more than ever.

Grasslands

In Iowa, less than one-tenth of one percent of the remaining prairie is permanently protected. 

Much of this land is in public ownership. Recreational access is different for different sites, and 

there are varying degrees of protection and management on native prairie tracts. Natural prairie 

diversity is dependent upon intermittent grazing and burning. Prescribed burns are often used 

by government and private conservation organizations, but some protected tracts, such as 

those in easements, may not receive as much attention. 

Hay fields, pastures, and fields in CRP are also grasslands. More quantifiable and less diverse, 

these areas may be restorable to some extent, but these areas cannot be restored to virgin 

prairie. Monoculture stands of alfalfa are obviously less diverse than the prairie they have 

displaced. Fenced pastures grazed by cattle are quite different from the prairie once grazed by 

wandering bison. Cattle are often permitted to overgraze, weakening native grasses, 

eliminating native flowers, and encouraging colonization by non-native weedy forbs and trees.

Wetlands

In Iowa, nearly 99 percent of all natural wetlands have disappeared from the landscape. Most 

have been tiled, drained, and converted to agriculture. Across the district, some wetlands have 

been preserved or restored and are primarily in public ownership while others have been 

enrolled in the Wetlands Reserves Program, remaining in private ownership but protected by 

permanent easement. Recreational access to these sites varies. 
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Urban Development

The largest urban center within the district is Des Moines, Iowa, with over one-half of a million 

people residing in the five-county metropolitan area. Other cities include Fort Dodge, Spencer, 

Mason City, Boone, Ames, Ankeny, and Marshalltown. All of these areas require 

manufacturing, retail services, government, education services, transportation, utilities, and 

other commercial services. Urban spread into rural areas is resulting in the conversion of 

additional agricultural lands and prairie and grassland areas. According to the 2010 U.S.

Census, the major area of anticipated growth within the district is around the Des Moines 

metropolitan area. The Waterloo-Cedar Falls metropolitan area just outside of the district is 

expected to grow as well, which would affect the eastern edge of the district. 

Aggregate Resources

Nearly every county within the district contains underlying materials that could be utilized for 

crushed stone or construction sand and gravel. Concentrated operations of these minerals exist 

in Cerro Gordo and Polk Counties, while Webster County contains a gypsum deposit with an 

active gypsum plant. Numerous rock quarries exist throughout the district providing materials 

for building and maintaining roads, construction, and concrete. In 2008, the production of such 

operations across the entire state was valued at $680 million. This was nearly a two percent 

decrease from 2007 and an additional nearly two percent decrease from 2006 (U.S. Geological

Survey, 2008). 

Rural Development

Rural development also threatens district lands in counties with growing populations. Lands 

adjoining WPAs are often seen as highly desirable rural building lots that are purchased as 

small hobby farms or rural homesites. This can result in the WPA being "ringed" by homes, with 

a series of negative impacts on the WPA. This development can limit the use of prescribed fire 

for future management and can lead to the following:

• Increased trespass on district lands by neighbors using ATVs, horses, or vehicles

• Increased threats to wildlife from stray pets such as cats and dogs

• Increased use of district land by neighbors for illegal uses such as dumping, 

gardening, equipment storage, etc.

• Hunter and neighbor discrepancies about safety during the hunting seasons; 

• Increased noise

• Increased storm water runoff
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Alternative Energy Developments

Iowa is the leading state in wind power 

generation of electricity. The north and 

west portion of the state has, on 

average, stronger winds, making that 

area best suited for wind turbines. 

Numerous wind farms exist within or 

near the district, and other new ones 

are planned. While finding alternatives 

to fossil fuel consumption is important, 

turbines are potential threats to wildlife. 

Collision mortality, negative visual 

stimulus (similar to trees) and 

construction and access disturbance 

are all problematic. The Service, 

working with the Wind Turbine 

Guidelines Advisory Committee, 

developed voluntary land-based wind energy guidelines in 2012 to provide a structured, 

scientific process for addressing wildlife conservation concerns at all stages of land-based wind 

energy development. They also promote effective communication among wind energy 

developers and federal, state, and local conservation agencies and tribes. When used in 

concert with appropriate regulatory tools, the guidelines form the best practical approach for 

conserving species of concern (FWS, 2012b).

Visitor Services

The main office for the Iowa WMD is located at Union Slough NWR, located approximately two 

and one-half hours southwest of Minneapolis, MN and northwest of Des Moines. Driving from 

Algona, Iowa take Highway 169 north to Bancroft; turn right (east) on A-42, and proceed six 

miles to the office. From Interstate 90, take the Blue Earth, MN exit, and follow Rt. 169 south 

into Iowa. At Lakota, follow P60 south to A-42, then west 0.25 miles on A-42 to the office. 

Interpretive displays, wetland district public use regulations, and other information are available 

7:30 a.m.–4:00 p.m., Monday–Friday (excluding federal holidays). The Iowa DNR has six 

wildlife field offices that serve as points of contact for district visitors as well.

The Union Slough NWR office provides a visitor contact station for the Iowa WMD. The office is 

staffed with an administrative technician that also serves as a visitor contact liaison. The refuge

office maintains a wildlife display interpreting both the district and the refuge. Both indoor and 

outdoor kiosks orient visitors to the area. District public use information and regulations are 

current and available both indoors and outdoors at the office. 

Current Management

Waterfowl Production Areas differ from NWRs in that they are open to hunting, fishing, and 

trapping in accordance with state law. Therefore, WPAs are "open until closed” by state or 

federal law for hunting, fishing, and trapping. National Wildlife Refuges on the other hand are 

“closed until opened” to these uses. However, WPAs can be opened to other uses if 

determined to be appropriate and compatible with the mission of the National Wildlife Refuge 

System and the purposes of the district. 

Waterfowl and Wind Turbines
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Hunting, in particular, has a long history with WPAs. When Congress amended the Duck Stamp 

Act (formally known as the Migratory Bird Hunting Stamp Act) in 1958, it authorized the 

acquisition of wetlands and uplands as WPAs and waived the usual "inviolate sanctuary" 

provisions. Thus, WPAs were intended to be open to waterfowl hunting, in part because 

waterfowl hunters, through the purchase of federal Duck Stamps and support for price increases 

of the stamp, played a major role in acquisition of these areas. Hunting, for both waterfowl and 

resident game species accounts for more than half of the visits to WPAs.

However, state regulations classify some WPAs as “waterfowl refuges.” According to Iowa 

Code 52.1(3):

“Waterfowl refuges: The following areas under the jurisdiction of the department of 

natural resources are established as waterfowl refuges where posted. It shall be 

unlawful to hunt ducks and geese on the following areas, where posted, at any time 

during the year. It shall be unlawful to trespass in any manner on the following areas, 

where posted, during the dates posted, both dates inclusive . . . “ 

For Iowa WMD these regulations apply to at least some portion of the following WPAs: 

Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and Rice Lake 

(Winnebago and Worth Counties). The Service’s Memorandum of Understanding (MOU) with 

the Iowa DNR states, “. . . other wildlife-dependent uses (wildlife observation, wildlife 

photography, environmental education, and interpretation) are generally allowed." 

Since the district is overseen by staff 

from Union Slough NWR, 

environmental education and 

interpretation programs are nearly 

always hosted at the refuge rather than 

the district. A recently rekindled 

partnership with the Kossuth County 

Conservation Board (KCCB) has also 

led to KCCB naturalists conducting 

environmental education and 

interpretation programs at the refuge

particularly on prairie/wetland habitats 

and their dependent wildlife. However, 

other education, interpretation and 

outreach happens through the 

partnership. The Iowa DNR provides 

these services at the county and WPA level via the staff at each wildlife unit (biologist and 

technicians) as well as through their private lands program. 

Historic and Cultural Resources

Native American History and Early Settlement

Archeological evidence in northwestern Iowa indicates people have occupied this area for 

approximately the past 12,000 years. As the glaciers retreated to the north in the warming 

period known as the Holocene, small bands of hunters moved into the tundra and boreal forest 

Upland Interpretation for Children
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and hunted Pleistocene megafauna. The Clovis and Folsom fluted lanceolate spear points and 

other tools of these PaleoIndians have been found in several locations near the district in 

Minnesota and Iowa. Folsom materials seem to be found in diverse settings, often associated 

with kill-sites although none of these sites have been identified in the district. 

By 7,000 B.C. the glacial ice was north of Iowa, even north of Minnesota. Glacial Lake Agassiz 

in northwest Minnesota drained for the final time around 7,600 B.C. An oak and pine forest and 

early prairie replaced the boreal forest in western Iowa and Minnesota. The megafauna were 

extinct, and late PaleoIndian people adapted to reliance upon hunting bison and smaller game. 

Their representative artifact is the unfluted lanceolate spear point. Plano materials have been 

found in Iowa and across Minnesota except in Lake Agassiz. Dalton materials have been found 

in Iowa and southern Minnesota.

The long Archaic Period commenced just prior to the hot and dry Altithermal that peaked at 

approximately 6,000–4,000 B.C. Apparently the prairie-forest line moved east of the Mississippi 

River, surface waters reduced in size or disappeared, and many water courses changed their 

locations. Bison herds were much reduced in size, and the archeological record would indicate 

a decrease in human populations as well. The people developed a diverse array of stone tools, 

also bone and copper tools, and broadened their hunting and gathering to include many plant 

and animal species in addition to bison. Archeological sites indicate that after the Altithermal 

Period the human population expanded significantly. Due to the changing climate, Archaic sites 

are situated in areas that might appear to be unlikely based on modern topography, including 

within wetland basins. They would also be expected in alluvial fan deposits and other burial 

conditions.

Human populations continued to expand in the Woodland (or Ceramic/Mound) Period. With 

some exceptions, climate and vegetation patterns were similar to the modern era. The people 

adopted pottery and mound building from the Woodland cultures to the east but not horticulture 

to the same extent. Plains Woodland peoples continued reliance upon bison hunting. Sites are 

found on the margins of lakes, rivers, and streams.

Increasingly complex human cultures of the Late Prehistoric Period, beginning about A.D. 900,

in western Iowa contended with fluctuating climatic conditions and shifting vegetation patterns. 

Initially during this period temperatures were warm. Agriculture became a large component of 

subsistence, although bison remained important when available. The bow and arrow came into 

use. Some groups lived in large, often fortified, villages composed of earth lodges. Exotic items 

indicate trade and some influence by the Mississippian culture from the southeast. 

Arrival of Europeans and their Western civilization had a greater impact on Native American 

cultures. During the Proto-historic Period, tribes migrated from their prehistoric locations and 

gave up their prehistoric material culture. This change was so momentous that modern Native 

American tribes often cannot be identified with prehistoric antecedents. In the district, however, 

archeologists have identified some continuity from the Late Prehistoric through the contact 

period to modern tribes. The Late Prehistoric Oneota culture of northwestern Iowa was likely 

the antecedent for the Ioway, Oto, and perhaps Omaha tribes. 

First the French, then the British, and last the Americans entered Iowa. Fur trading and early 

exploration had little apparent impact on the prairie. Fur traders built their fur trade posts at the 

confluence of rivers or on the shores of larger lakes, usually near a Native American village. In 

the second half of the 19th century during the Historical Period, American and European 

immigrants settled the prairie and started to transform Iowa into an agricultural state. The 
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Native Americans were largely removed through treaty and war. Frontier trails and government 

roads, followed by railroads, improved accessibility and markets. Homesteader dugouts and 

sod houses were replaced with frame houses and larger farmsteads. Highway construction and 

farm consolidation marked the 20th century.

A review of the National Register of Historic Places showed that, as of August 1, 1996, the 35

Iowa WMD counties contained 397 properties listed on the National Register. The vast majority 

of these properties are buildings in towns and cities. However, a number of the properties are 

located in rural areas and are indicative of the kinds of historic properties that could be found in 

the district: farmsteads and farm buildings, especially barns; bridges, segments of the Red River 

Oxcart trail, mill sites, battle sites, and prehistoric archeological sites such as mounds, villages, 

camps, and rock art.

Cultural Resource Management

Cultural resources—such as archaeological sites, historic structures, and Native American 

traditional cultural properties—are important parts of the Nation’s heritage. The Service strives 

to preserve evidence of these human occupations, which can provide valuable information 

regarding not only human interactions with each other, but also with the natural environment. 

Protection of cultural resources is accomplished in conjunction with the Service’s mandate to 

protect fish, wildlife, and plant resources.

The Service is charged with the responsibility, under Section 106 of the National Historic 

Preservation Act of 1966, of identifying historic properties—cultural resources that are 

potentially eligible for listing on the National Register of Historic Places—that may be affected 

by our actions. The Service is also required to coordinate these actions with the State Historic 

Preservation Office, Native American tribal governments, local governments, and other 

interested parties. Cultural resource management in the Service is the responsibility of the 

regional director and is not delegated for the Section 106 process when historic properties could 

be affected by Service undertakings, for issuing archaeological permits, and for Indian tribal 

involvement. 

The Archaeological Resources Protection Act of 1979 (ARPA), Section 14 requires plans to 

survey lands and a schedule for surveying lands with “the most scientifically valuable 

archaeological resources.” This act also affords protection to all archeological and historic sites 

more than 100 years old on federal land, not just sites meeting the criteria for the National 

Register. It requires archeological investigations on federal land be performed in the public 

interest by qualified persons. 

The Regional Historic Preservation Officer (RHPO) advises the regional director (RD) about 

procedures, compliance, and implementation of these and other cultural resource laws. The 

actual determinations relating to cultural resources are to be made by the RHPO for the RD for 

undertakings on Service fee title lands and for undertakings funded in whole or in part under the 

direct or indirect jurisdiction of the Service. This includes those carried out by or on behalf of 

the Service, those carried out with federal financial assistance, and those requiring a federal

permit, license, or approval.

The responsibility of the refuge/district manager is to identify undertakings that could affect 

cultural resources and coordinate the subsequent review process as early as possible with the 

RHPO and state, tribal, and local officials. In addition, the refuge/district manager assists the 

RHPO by protecting archeological sites and historic properties on Service managed and 
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administered lands, by monitoring archaeological investigations by contractors and permittees 

and by reporting ARPA violations.

District Administration

Current Situation

An MOU with the Iowa DNR establishes the working relationship and how staffs are shared in 

the district. Through this partnership, the vast majority of the WPAs are maintained and 

managed by six Iowa DNR offices: Prairie Lakes, Clear Lake, Black Hawk, Great Lakes, 

Saylorville, and Red Rock. Current staffing at most of these units include a wildlife biologist, 

wildlife technician II and wildlife technician I. Some of these units also staff seasonal employees 

at times. These positions are not reflected in the current district budget, because they are 

funded by the state.

 

The Service does not currently pay any staff member’s salary out of district funds; however, all 

Union Slough NWR staff as well as zoned fire and law enforcement resources are utilized and 

available to work in the district. Current Service staff, funded through Union Slough NWR and

performing work in the district, includes project leader, deputy project leader, wildlife biologist, 

prescribed fire specialist, administrative technician, maintenance worker, and private lands 

biologist. Zone fire resources are also utilized almost entirely in the district including a Wildland 

Urban Interface Coordinator and Prescribed Fire Technician, located in Milford, Iowa. This staff 

plans and implements prescribed fire on all the WMD properties and also coordinates with 

partners to accomplish management goals. Funding for the fire program for both the refuge and 

WMD is administered through the refuge. Currently, the district receives $250,000 to fund 

restoration projects on district land managed by the Iowa DNR. In addition, the district receives 

$15,000 for management capability. Union Slough NWR funds are also regularly used for 

projects in the district.

Currently the MOU describes law enforcement as a shared responsibility of the Iowa DNR and 

the Service. According to the MOU, the Iowa DNR assumes primary law enforcement 

responsibility on WPAs necessary to protect the resource. The Service has the responsibility to 

control use for the protection of the resource and prosecute all possible violations in federal 

court. The Service also assumes the responsibility for enforcing Service conservation/wetland 

easements. The Iowa WMD currently does not have a law enforcement officer; however, the 

zoned law enforcement officer located in Prairie City, Iowa and others have provided assistance 

as available. Therefore, the district often has difficulty dealing with easement violations in a 

timely manner as required by the Region 3 Easement Manual. 

District Support

Current Situation

The Service and the Iowa DNR have a long developed partnership in the district. This 

partnership was established in 1978 and has been effective in facilitating goals outlined in the 

Prairie Pothole Joint Venture. Currently, an MOU between the two agencies codifies the 

partnership. In this agreement, the Service requests two million dollars annually from the 

Migratory Bird Commission for land acquisition and the Iowa DNR finds properties for sale, 

negotiates with landowners, and completes inspections. Iowa DNR also provides on the ground 

restoration and day-to-day management of most WPAs within the district. Properties in Kossuth 
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County, one in Pocahontas County, and the WPA and FSA easements are managed by Union 

Slough NWR staff. All other district properties are managed by the Iowa DNR. Wildlife 

management biologists from six different Iowa DNR units manage these WPAs in their 

respective areas similar to state WMAs. One of the many advantages to this partnership is that 

properties can be targeted within priority complexes, providing excellent opportunities for public 

hunting and recreation. 

While the Iowa WMD does not have its own Friends group, the Friends of Union Slough NWR 

also support the district. They support the district in many ways including financial assistance, 

volunteer labor, and educational outreach about the district. 
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Chapter 4: Management Direction and Implementation

This chapter presents the goals, objectives, and strategies that will guide management of the Iowa Wetland Management District 

(WMD, district) over the next 15 years. It also includes rationale for why these objectives are preferred and scientifically sound. This 

management direction represents the plan for the district and mirrors Alternative D in the EA/Draft CCP that was prepared as part of 

the planning process. 

Objectives and Strategies

Goal 1: Wildlife

In partnership with the Iowa Department of Natural Resources (DNR) and others, restore a natural diversity and abundance of 

waterfowl, migratory birds, and other native fauna within the Iowa WMD.

Issue 1-1: Focal species group and life cycle

Objective 1-1-1

Over the 15-year life of the comprehensive conservation plan (CCP), increase the breeding population of 

Mallard by 450 pairs and Blue-winged Teal by 450 pairs on protected wetlands (permanent state and federal 

ownership) in the Prairie Pothole Region (PPR) of Iowa, and develop strategies, as part of the district’s Inventory 

and Monitoring Plan, to set recruitment goals for these species in the PPR of Iowa. 

Measures

• Mallard breeding population increased by 900 individuals on protected wetlands (permanent state 

and federal ownership) in the Prairie Pothole Region of Iowa.

• Blue-winged Teal breeding population increased by 900 individuals on protected wetlands 

(permanent state and federal ownership) in the Prairie Pothole Region of Iowa.

• Recruitment goals established in the district’s Inventory and Monitoring Plan for Mallard and Bluewinged Teal within the PPR of Iowa.

Rationale

Many species of wildlife use Waterfowl Production Areas (WPAs) in the district; however, its main purpose is for 

waterfowl production and to provide habitat for migratory birds, especially those that are grassland-/wetlanddependent. With limited staff and budgets it would be difficult to manage for all these species individually. 

Therefore, it is more practical to focus on a few species that represent a guild or group of other species. Mallard 

and Blue-winged Teal were chosen as focal species for the district, because their habitat and life cycle 

requirements are representative of a wide scale of other wetland and grassland-dependent migratory birds. 

A measure that is often used to determine nesting site suitability for ground nesting birds is a visual obscurity 
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rating (VOR) (Robel et al., 1970). After looking at VOR readings for various species of both waterfowl and other 

grassland-dependent birds, it was clear that both Mallard and Blue-Winged Teal encompass most of the other 

ground nesting birds using the PPR (Laubhan et al., 2006). These focal species also require the various 

wetland types represented in the PPR of Iowa, such as temporary and seasonal wetlands for pair bonding and 

semi-permanent to permanent wetlands for brood rearing and molting. Thus, managing the district to provide 

the habitat requirements of these focal species will in turn provide for the needs of many other migratory birds 

and resident wildlife. 

According to conversations with retired Iowa DNR waterfowl biologist Guy Zenner in 2012 and 2013 and other 

supporting literature, Mallard, Blue-winged Teal, and Wood Ducks are the most common nesting waterfowl 

species in the district (Bishop et al., 1979; Fleskes, 1986; Ohde et al., 1983; Weller, 1979). Mallard pairs 

represented 36 percent and Blue-winged Teal pairs represented 35 percent of the breeding ducks surveyed 

during the four-square mile pair counts across nine counties of the district from 2006 through 2011. Wetlands 

surveyed during the pair count are 69 percent privately owned and 31 percent publicly owned and therefore, 

protected or managed by the state or federal agency (U.S. Fish and wildlife Service [FWS, Service], 2012a). 

Although breeding pair density varies from newly restored to existing wetlands, Iowa has an average of 0.9 pairs 

per wetland acre (FWS, 2012a). Since the district has an acquisition goal of 3,000–4,500 acres over the next 15 

years, with generally a 3:1 ratio of uplands to wetlands, new habitat could be provided for approximately 900 

new duck pairs. Based on the land acquisition and wetland restoration objectives in this CCP, increasing the 

populations from the current average from 2006 through 2011 breeding pair population of 6,406 Mallard pairs 

and 6,221 Blue-winged Teal pairs (state and federally protected wetland) by 450 pairs each, seems to be most 

realistic and achievable. This equates to an increase in the cumulative breeding population of Mallards and 

Blue-winged Teal by 1800. It is important to note that the wetlands restored in the district will be representative 

of the historic PPR of Iowa—that is, representing the area prior to Euro-American settlement. 

Currently, recruitment rates are available for both Mallard and Blue-winged Teal nesting in the PPR of Iowa;

however, many managers and biologists question the validity of these estimates due to the great variability in 

factors effecting recruitment. Studies such as nest dragging tend to be somewhat localized and difficult to 

extrapolate for the entire district. Brood count data is highly variable as well due to many factors such as 

vegetation cover on wetlands and survey methods. For these reasons, recruitment goals will not be used in this 

management plan but will be developed with partners in the Inventory and Monitoring Plan. 

Even though the district will be adding protected and restored wetlands to the landscape, agricultural drainage 

on private land will likely continue to remove them. However, this objective only addresses the land that the 

Service and its partners control under permanent protection. The FWS Partners Program will continue working 

with private landowners using various Farm Service Agency (FSA) programs such as the U.S. Department of 
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Agriculture’s Conservation Reserve Program (CRP), the Wetlands Reserves Program (WRP), and conservation 

agreements and easements to reduce the loss of wetlands on private land. 

Strategies

• Restore a minimum of 500 acres of existing cropland to native grassland annually as budget, staff,

and weather allow. 

• Continue to acquire land (approximately 350–400 acres per year) per the FWS Region 3 Strategic 

Growth of the Small Wetland Acquisition Program’s Guidelines for Fee and Easement Purchase and 

the Memorandum of Understanding (MOU) with Iowa DNR.

• Convert newly acquired cropland in the uplands to native grassland ideally within two years of 

acquisition. (Exceptions to the two year goal will be outlined in the individual unit plan.)

• Restore the wetland portion(s) of newly acquired property as soon after acquisition as funding and 

resources allow.

• Assess the status of Objective 1-1-1 annually per Iowa DNR four-square mile survey results. 

• Work with Cooperative Fish and Wildlife Research Unit (Iowa State University), Iowa DNR Waterfowl 

Biologist and the Service’s Habitat and Population Evaluation Team (HAPET) and secure funding to 

establish research to determine scientifically sound recruitment rates for Mallard and Blue-winged 

Teal populations in the PPR of Iowa as part of the development of the district’s Inventory and 

Monitoring Plan.
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Goal 2: Habitat

In partnership with the Iowa DNR and others, conserve, restore, and expand grassland and wetland habitat managing for a natural 

diversity of native flora within the Iowa WMD. 

Issue 2-1: Prolonged decline of grassland-dependent bird populations due to the decline of grassland habitat

Objective 2-1-1

Over the 15-year life of the CCP, increase native grassland habitat by 7,500 acres with a plant diversity of 100 

or more species, and provide more suitable habitat (in terms of vegetative structure as will be defined in the 

district’s Habitat Management Plan) in existing grassland for a wide variety of grassland-dependent birds within 

the Iowa WMD.

Measures

• The district contains 23,687 acres of grassland habitat after the 15-year life of the plan.

• Twenty-five percent of existing grassland bird habitat is managed annually (e.g., hay, graze, burn, 

mow, tree removal) assuring that all lands are treated at least once every four years to improve 

vegetative structure and diversity.

Rationale

As Iowa was settled, the rich soils of the state were steadily converted from an almost endless sea of diverse 

prairie to a very orderly succession of row crop fields. Today, more than 99.9 percent of Iowa’s prairies have 

disappeared (Smith, 1992). The huge loss of habitat produced a corresponding reduction in grasslanddependent birds. Maintaining prairie remnants and reconstructing prairie on crop fields is a critical first step to 

providing essential habitat for grassland-dependent migratory birds in a landscape that has lost almost all of the 

historic grasslands. 

As a group, grassland birds have a wide range of habitat requirements that can be categorized based on their 

vegetation height and density preferences (Ribic et al., 2009). For example, Vesper Sparrows (Pooecetes 

gramineus) prefer short, sparse habitats maintained by disturbances such as grazing, while Sedge Wrens 

(Cistothorus platensis) prefer tall, rank cover on moist sites (Ryan, 1986). In addition, there is great variability in 

preference for factors other than vegetation height, including litter depth, woody vegetation tolerance, and tract 

size. Historically, the sheer size of the unbroken prairie provided numerous opportunities for the expression of 

many different habitat conditions. This allowed many different bird species to find their preferred habitat within 

the larger matrix of the tallgrass prairie. The fragmented nature of current grasslands is much less likely to 

provide that kind of habitat diversity. This is especially true if grasslands are not subjected to some kind of 

periodic disturbance. Annually treating a portion of fragmented grasslands with some form of disturbance like 

haying, grazing, mowing, or burning will increase the structural diversity across the district. A combination of all 

these disturbance tools applied strategically throughout the district will create a continuum from bare ground to 

tall, dense standing vegetation. Burning generally removes all standing vegetation and litter from the ground. 
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Mowing or haying generally remove most of the standing vegetation but frequently leave some amount of litter 

on the ground. Depending on stocking rates, timing and/or duration, grazing can remove virtually all standing 

vegetation and most of the litter, or it can be used to reach some predetermined vegetation condition that can 

vary across a wide spectrum of structural diversity. 

Prairie vegetative productivity declines and extensive invasion of woody and other invasive plant species occur 

in the absence of disturbances such as prescribed fire, grazing, haying, or mowing (Herkert, 1994). In addition, 

there is evidence that there is a positive relationship between plant species diversity and ecological stability in 

response to climatic stressors like drought, flooding, and climate change (Tillman and Downing, 1994). Various 

management tools must be used to manipulate grasslands to achieve the mosaic of habitat conditions needed 

to attract a diversity of grassland bird species. Management actions such as haying, mowing, burning, grazing, 

tree removal, and rest will all have positive influences for some bird species while simultaneously having 

negative influences for other bird species. The careful application of these management actions across the 

lands in the Iowa WMD will help to ensure that a wide variety of grassland-dependent bird species can find 

appropriate habitat throughout the Iowa prairie pothole landscape.

Strategies

• Restore a minimum of 500 acres of existing cropland to native grassland annually as budget, staff,

and weather allow. 

• Convert newly acquired cropland to native grassland ideally within two years of acquisition. 

Exceptions to the two year goal will be outlined in the individual unit plan.

• Annually treat a minimum of 25 percent of district grasslands with a combination of the following 

types of treatment: haying, prescribed grazing, prescribed fire, mowing, or tree removal. This 

strategy will be employed in such a way as to have all district grassland acres receiving a treatment 

at least once every four years.

• Develop an appropriate research and monitoring protocol to evaluate grassland bird use of WMD 

lands. Work with the Iowa DNR’s Multiple Species Inventory and Monitoring Program if possible.

• Complete the district’s Habitat Management Plan that details the desired varying vegetative structure 

for the district’s grasslands.
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Issue 2-2: Upland habitat quality

Objective 2-2-1 At the end of the 15-year life of the CCP, perennial grassland, preferably native, is present on at least 97 

percent of the uplands of the Iowa WMD. 

Measure • Perennial grassland covers at least 97 percent of the district uplands.

Rationale

Grasslands can support greater abundance and diversity of birds than row crop fields (Rodenhouse and Best, 

1983). Grasslands also provide far superior nest cover for the vast majority of ground nesting waterfowl as 

compared to annually tilled fields (Higgins, 1977). The main purpose of the district is to benefit waterfowl and 

other grassland-dependent migratory birds. Currently, about 15 percent of district land is in row crop fields. 

Therefore, it is a top priority to convert the vast majority of these fields to grassland as quickly as is financially 

and logistically possible. Planting these areas to diverse native seed mixes will help to ensure the long-term 

maintenance and restoration of healthy populations of native fish, wildlife, and plants and their habitats as is 

required by the Service’s Biological Integrity, Diversity, and Environmental Health policy (FWS, 2001). 

The majority of new land acquisitions in the district are row crop fields. These row crop fields will be seeded to 

diverse prairie plantings ideally within two years of acquisition. After the crop ground in the district has been 

seeded to grassland, degraded remnant prairie and old, low diversity plantings, both native and non-native, will 

be evaluated to determine if conversion to diverse native plantings is warranted. The advantages of planting 

diverse native mixes include increased structural diversity with an appeal to a wide array of grasslanddependent wildlife, increased ability to deal with climatic stressors, increased ability to compete with invasive 

plants, and increased acreage of critically endangered tallgrass prairie habitat (see rationale for Objective 2-1-

1).

The district includes both food plots and fields of rotational cover that have been planted to non-native 

vegetation such as smooth brome and alfalfa. Food plots are discussed in Objective 2-5-1. The rotational cover 

exists for a variety of reasons. In some cases, these fields were enrolled in CRP and planted to non-native 

vegetation such as smooth brome. When the Service acquired the land, the non-native cover was already 

established. In other cases, smooth brome and alfalfa were planted after purchase by the Service to provide 

attractive cover for nesting waterfowl. Since district resources will be focused on planting the existing crop 

ground as well as all newly purchased crop ground to diverse native plantings, the status quo of these existing 

rotational cover plantings will be maintained until at least the backlog of crop ground has been planted. This will 

allow the district to evaluate and compare bird use and nest success in brome/alfalfa plantings versus diverse 

native plantings. The information gathered during the comparison will help determine the ultimate fate of the 

existing brome alfalfa plantings. Proposals for new rotational cover plantings will be evaluated for 

appropriateness and compliance with Service policies. 
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Woody encroachment into grasslands can happen rapidly without proper management (Herkert, 1994). 

Historically, the district was dominated by tallgrass prairie. Soil surveys and historic vegetation maps based on 

Iowa’s original land surveys from the mid-1800s indicate trees were generally restricted to the major rivers 

throughout most of the district. Large portions of the area were almost treeless. Today, native grasslands are 

extremely rare across the district. In fact, grasslands of any type are rare across the district. To provide the 

open grassland habitat needed by many bird and other wildlife species, district uplands will be managed to 

prevent the establishment and/or spread of woody vegetation. Management tools such as grazing, mowing, 

haying, prescribed fire, and tree removal will all be used to promote and maintain open grasslands.

District lands occur in a highly altered agricultural landscape. This has contributed to the introduction and 

spread of aggressive, invasive plants across the district (Solecki, 1997). Grasslands are subject to invasion by 

some of these plants. If left unchecked, invasive plants can form monotypic stands that suppress the native 

plants and associated diversity (Solecki, 1997). As a result, a great deal of effort goes into managing these 

invasive species. Control efforts use the least destructive method possible to control and discourage invasive 

species, including hand pulling, mowing, grazing, haying, and chemical treatment.

Multiple strategies and techniques are used to seed native grassland across the district. Purchasing seed mixes 

allows for the creation of an exact mix with desired percentages of cool and warm season grasses, sedges, and 

forbs. However, much of the time, there are variable yearly limitations in species, quantities, and budgets. 

Therefore, a combination of techniques to acquire seed mixes for the district must be utilized. Existing native 

grassland is harvested in bulk with a combine. This provides a base seed mix with some known species based 

on what is growing in the field but unknown amounts of those species. A seed test is usually completed to 

determine what species are in the mix, the relative proportion of each species, and the viability of each species. 

However, the sample sent in for testing is very small compared to the total seed lot harvested. Generally, the 

most abundant species present in the seed (usually big bluestem and/or Indiangrass) is fairly accurate, but there 

is much less certainty about the many other species present in the mix. 

As a result, a combination of purchased seed and hand harvested seed are added to the mix for more diversity. 

The purchased mix is usually more of what is available and affordable and not so much about what is desirable. 

Generally, the species most lacking in the seed harvested with the combine includes early growing plants (cool 

season), low growing plants (mostly cool season), and plants that grow in wet areas (sedges and others). Most 

cool season species have dropped their seeds by September when the harvest occurs and it is too difficult to 

combine in wet areas to get sedges and other wet-tolerant plants. These species can be hand collected, but 

getting large quantities is difficult without a large volunteer group. Furthermore, it is very difficult to find large 

quantities of local ecotype cool season species (grasses, forbs, sedges) to purchase. There is often reluctance 

by seed dealers to grow such species that are not generally in high demand especially when Service budgets 
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are unstable from year to year. In the end, the most diverse seed mix that is affordable and available is planted, 

but percentages of certain species or groups (cool season grasses, forbs, sedges, etc.) remain unknown.

Strategies

• Restore a minimum of 500 acres of existing cropland to native grassland annually as budget, staff,

and weather allow. 

• Convert newly acquired cropland to native grassland ideally within two years of acquisition. 

Exceptions to the two year goal will be outlined in the individual unit plan.

• Remove encroaching woody vegetation.

• Only after existing cropland is planted to native grassland, replace low diversity grasslands, both 

native and non-native, with higher diversity native species seed mixes including warm season 

grasses, cool season grasses and sedges, and forbs to increase species and structural diversity on 

district grasslands.

• Treat/remove aggressive, invasive species to minimize loss of species and structural diversity.

• Develop an appropriate research/monitoring project to compare use and nest success rates of 

waterfowl and other grassland-dependent birds in diverse native seedings versus brome/alfalfa 

seedings.

• Evaluate, before planting, any new rotational cover of brome/alfalfa on district land by considering 

factors such as budget, seed availability, purpose, location, and ecological integrity. 
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Issue 2-3: Focal wetland type

Objective 2-3-1

At the end of the 15-year life of the CCP a variety of wetland types (75 percent temporary and seasonal, 15 

percent semi-permanent, and 10 percent permanent) exist across the Iowa WMD as representative of the preEuro-American settlement landscape. 

Measure • District wetlands are 75 percent temporary and seasonal, 15 percent semi-permanent, and 10 

percent permanent.

Rationale

Wetland Complexes and Cycling: The Des Moines Lobe contains wetlands varying in size and water regime 

including temporary, seasonal, semi-permanent, and permanent (Stewart and Kantrud, 1971). The dynamic 

wet-dry precipitation cycles of the prairie region create corresponding water, nutrient, and vegetative cycles that 

maintain the productivity and ecological health of these wetlands (Euliss et al., 1999). These cycles historically 

maintained wetlands in a clear water state, which supports healthy wetland vegetation providing seeds, tubers, 

aquatic insects, and other foods used by waterfowl and other migratory birds. A cluster or “complex” of these 

varying wetland types is required for waterfowl to complete their life cycle including nesting, brood rearing, 

molting and migration (Swanson and Duebbert, 1989). This wetland variety increases the likelihood that 

productive and suitable habitat will be available at any given time as the water conditions vary both seasonally 

and from year to year. The quantity and quality of wetland habitat within Iowa not only affects the production of 

locally nesting birds but also affects the productivity of birds nesting farther north. These wetlands are critical in 

providing proper food resources to improve breeding condition of the birds when they arrive at their breeding 

grounds (Devries et al., 2008; Anteau and Afton, 2011).

Altered Wetland Systems: The intensive agricultural development currently dominating the Des Moines Lobe 

has had a dramatic effect on the quantity and quality of wetland habitat within the district. Due to extensive 

wetland drainage only three to four percent of the historic wetland acreage currently exists within the lobe (Miller 

et al., 2012). These drainage systems have lowered regional water tables creating dryer water regimes within 

the few remaining wetlands across broad landscapes. In many cases, these systems drain hundreds or even 

thousands of acres containing smaller basins into a larger basin lower on the landscape. This process is 

commonly called “consolidation drainage.” Consolidation drainage creates a more unchanging, permanent 

water regime in the receiving basin, which interrupts the wet-dry cycles critical to the productivity of the receiving 

wetlands (Weller and Fredrickson, 1974; Anteau, 2012). Because these drainage systems are interconnected, 

invasive and non-native fish are given a conduit to invade historically isolated wetlands leading to turbid 

conditions with low productivity and providing direct competition for aquatic food resources. Unchanging high 

water levels from consolidation drainage often prevent the fish from “freezing out” in winter as had occurred 

during historic wet-dry cycles (Anteau et al., 2011). Similarly, the more permanent water regime may interrupt 

natural predator cycles and, consequently, reduce duckling survival (Krapu et al., 2004). Surface and tile runoff 

from upstream cropland frequently carries excess nutrients, contaminants, and sediment into wetlands 
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exacerbating the turbid state of the wetlands. As a result of these impacts, the existing wetland base within the 

lobe is skewed toward deeper water regimes, many of which are in poor ecological condition (Miller et al., 2012; 

Anteau and Afton, 2011; Anteau, 2012). 

Temporary and Seasonal Wetlands: Smaller temporary and seasonal wetlands are preferred by nesting 

Mallards during pre-nesting and egg production (Krapu et al., 1997). As a result, these basins support more 

pairs of breeding waterfowl than larger, more permanent basins (Kantrud and Stewart, 1977; Cowardin et al., 

1995). Krapu et al., (2000) found that the survival rate of Mallard broods was substantially higher when 

seasonal wetlands contained water, underscoring the importance of seasonal wetlands as a major component of 

wetland complexes for breeding waterfowl. LaGrange and Dinsmore (1989) found that Mallards migrating 

through Iowa used “sheetwater” wetlands almost exclusively for feeding while using larger, more permanent 

basins for roosting at night. More recently, the restoration of temporary and seasonal wetlands upstream from 

larger basins and shallow lakes has been recognized as highly beneficial to restoring the hydrologic cycle 

needed to return the productive clear water state to these deeper basins (Anteau, 2012).

Semi-permanent Wetlands and Shallow Lakes: In most years seasonal wetlands are dry by mid-summer. 

Consequently, semi-permanent wetlands and shallow lakes are typically needed for brood rearing later in the 

growing season (Swanson, 1986). In mid- to late-summer, larger more permanent wetlands also provide 

important molting habitat for post-breeding waterfowl (Swanson and Duebbert, 1989). Naturally, semipermanent basins and shallow lakes also provide the only migratory habitat for fall migrating wetland-dependent 

species.

Priority Wetland Complexes: The identification and restoration of landscapes with high densities of temporary 

and seasonal basins in proximity to brood habitat is critical to meet the population objectives for the district. 

Beginning in the 1980s, the Iowa DNR collaborated with the Service and other partners to identify priority 

wetland complexes for restoration within the Des Moines Lobe as part of the Prairie Pothole Joint Venture 

(PPJV) of the North American Waterfowl Management Plan (Zohrer and Garner, 2002). Since that time, the 

Service has been working side by side with the Iowa DNR and a variety of other partners to restore large blocks 

of habitat that reestablish wetland complexes as well as the underlying water tables. Many of these complexes 

have targeted the watersheds upstream from existing larger wetlands and shallow lakes within these identified 

complexes. Because these existing larger basins are at the elevation of the water table, the true hydrology of 

the upstream wetlands can be established more effectively. Once restored, these complexes provide productive 

and ecologically healthy wetland habitats critical to meeting the life cycle needs of waterfowl. Due in large part 

to the PPJV initiative, the wetland acreage in the lobe has increased from an estimated 29,652 acres in the 

1970s to an estimated 124,367 acres in 2011 (Miller et al., 2012).

Strategies • Engage HAPET and/or other partners to inventory, categorize, and map wetlands on WPAs within 
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the district.

• Ensure restoration plans for new acquisitions address all restorable wetland basins within the 

acquired property.

• In acquisition planning, prioritize areas with high temporary and seasonal wetland densities, ideally 

within one-half mile of existing or restorable brood habitat (semi- to permanent wetlands).

• Review existing WPAs for small temporary or seasonal wetland basins that may have been 

overlooked during initial restoration.

• Remove, non-perforate and/or reroute drainage tile within WPAs to maximize water table restoration 

where financially, legally, and physically feasible. 

• Remove sediment from basins prior to restoration where soil samples document the sedimentation.
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Issue 2-4: Wetland quality

Objective 2-4-1 Over the 15-year life of the CCP, wetlands within the Iowa WMD are restored and managed to provide breeding 

waterfowl pair densities of at least 0.9 pairs per wetland acre.

Measure • Breeding waterfowl densities surveyed during the April and May four-square mile pair count in Iowa 

are at least 0.9 pairs per wetland acre.

Rationale

Restoration and Management Challenges: Lowered regional water tables, consolidation drainage, invasive fish, 

and agricultural runoff present challenges to wetland managers within the Des Moines Lobe. In addition, 

invasive plants, primarily reed canarygrass and hybrid cattail, commonly form dense monotypic stands in and 

around wetlands (Aronson and Galatowitsch, 2008), which limit the productivity and suitability of the habitat for 

waterfowl. Although native to the Des Moines Lobe, cottonwood and willow trees form dense monotypic stands 

in and around wetlands in areas where they were historically uncommon to non-existent based on records from 

the original land surveys and soil surveys. These dense stands of woody vegetation often shade out the desired 

marsh vegetation (Fredrickson and Reid, 1988) and interrupt the open landscape needed by many birds using 

the adjacent grasslands as discussed in the rationale for Objective 2-2-1. A wetland that contains a 50:50 mix of 

emergent vegetation in relation to open water (or “hemi-marsh”) provides the ideal habitat interspersion to 

maximize waterfowl pair densities and invertebrate food resources needed during breeding (Kaminski and 

Prince, 1981; Murkin et al., 1982). Nelson and Kadlec (1984) found that increased habitat interspersion among 

wetlands within a complex increases the suitability of the complex as a whole for breeding waterfowl. Left 

unmanaged, the current forces within the lobe tend to lock more permanent basins into a “lake phase” 

dominated by open water with little interspersed emergent vegetation while shallower wetlands become choked 

by reed canarygrass, hybrid cattail, and woody vegetation with little interspersed open water. In the end, the 

ultimate challenge is to restore and manage individual wetlands as well as wetland complexes to provide the 

interspersion needed to provide suitable habitat for nesting waterfowl.

Wetland Restoration: The vast majority of wetland restoration within the Des Moines Lobe has occurred within 

the past 30 years (Miller et al., 2012). Over that time a variety of guidelines and recommendations have been 

developed to improve the interspersion and overall ecological health of restored wetlands. Aronson and 

Galatowitsch (2008) tracked the floristic characteristics of 37 wetlands restored in the southern PPR over a 19-

year period. They recommended five guidelines to improve native vegetative colonization in wetland 

restorations, which serve as the basis for many of the strategies below. Furthermore, Galatowitsch and van der 

Valk (1994) stressed that restored basins need to be surrounded by a vegetative buffer to filter sediments from 

entering the wetland. They also recommended that all semi-permanent and permanent basins have water 

control structures to allow for water level manipulation. 

Water Management on Deeper Basins: Wet/dry cycles can be artificially simulated on deeper wetlands that 
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have water control structures installed on them. Because wetlands are dynamic systems that require cycling to 

maintain their productivity, it is unrealistic to maintain constant hemi-marsh conditions. Weller and Spatcher 

(1965) recommend targeting 30 to 70 percent interspersion on manipulated wetlands while recognizing that they 

will invariably fall outside this range in years of extreme drought or deluge. Deeper basins on WPAs commonly 

have water control structures that allow for water level manipulation. However, in many cases the large 

wetlands and shallow lakes within a complex are under the jurisdiction of another conservation entity, most often 

the Iowa DNR. In recent years, the Iowa DNR and other conservation organizations have been actively 

developing water control systems and fish barriers on these larger basins and shallow lakes to mimic wet-dry 

water regimes, control rough fish, and ultimately restore the basins’ ecological health (Brown et al., 2008). Many 

of these endeavors require infrastructure on WPAs and/or other cooperation from the Service. The Iowa DNR 

and Ducks Unlimited have acquired PPJV grant funding from the Service to evaluate these projects and 

establish thresholds for management actions on shallow lakes (Harland and Meyers, 2012). 

Vegetation Management in Wetlands: Temporary and seasonal wetlands are highly susceptible to invasion by 

reed canarygrass and hybrid cattail (Aronson and Galatowitsch, 2008) as well as cottonwood and willow. 

According to a conversation with Susan Galatowitsch in 2012, once these invasive species (particularly reed 

canarygrass) become dominant in these basins, the investment (labor and otherwise) required to establish a 

native plant community is impractical. However, management actions that create interspersion within dense 

vegetative stands have been successful including mowing, crushing, grazing, burning, disking, and chemical 

treatment (Solberg and Higgins, 1993; Sojda and Solberg, 1993; Murkin et al., 1982). Since these wetlands are 

essentially imbedded within the uplands, treatments will most often occur as part of an upland treatment regime 

(see Objective 2-1-1).

Strategies

• Prioritize restoration sites near remnant natural wetlands as source populations for recolonizing 

native species.

• Restore semi-permanent basins, which are more floristically stable in addition to seasonal and 

temporary basins.

• Promote natural hydrology by restoring temporary and seasonal basins, avoiding excavation of pits 

and the concentration of water.

• As resources permit, plant vegetative stock and seeds to establish sedge meadow and wet prairie 

species.

• Control invasive reed canarygrass, cattail, and woody vegetation early in the restoration process, if 

possible.

• Manage for an emergent vegetation to open water ratio between 30:70 and 70:30 on basins with 

water control structures.
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• Periodically open dense areas of cattails and reed canarygrass within existing wetlands through a 

variety of tools including mowing, crushing, grazing, burning, disking, and chemical treatment.

• Control dense stands of woody vegetation in existing wetlands through a variety of tools including 

mowing, cutting, grazing, burning, disking, dozing, and chemical treatment.

• Control invasive fish in wetland complexes using a variety of techniques including installing fish 

barriers, eliminating transport mechanisms (tile, ditches, etc.), water level management, chemical 

treatment, etc.

• Install water control structures on semi-permanent and permanent basins if feasible.

• Continue to partner with the Iowa DNR and other conservation entities to improve the ecological 

health of deeper wetlands and shallow lakes not under federal jurisdiction.
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Issue 2-5: Food plot use

Objective 2-5-1 During the 15-year life of the CCP, food plots are present on no greater than three percent of the upland acres 

within the Iowa WMD.

Measure • Food plots cover three percent or less of the upland acres in the district.

Rationale

Through the Service’s partnership with the Iowa DNR, food plots have been established as an acceptable 

practice to provide winter food resources and provide wildlife viewing and hunting opportunities. The MOU 

between the Service and the Iowa DNR states that permanent food plots are permitted at levels identified in this 

CCP, the Iowa WMD Habitat Management Plan (to be written), and the WPA unit plans. Collaborative goals in 

the North American Waterfowl Management Plan (2012) include the following:

• Goal #2: Wetlands and related habitats sufficient to sustain waterfowl populations at desired levels, 

while providing places to recreate and ecological services that benefit society

• Goal #3: Growing numbers of waterfowl hunters, other conservationists, and citizens who enjoy and 

actively support waterfowl and wetlands conservation

The goals in this plan focus on engaging people with nature and growing the number of hunters. Food plots in 

Iowa are thought of as a positive practice providing excellent viewing and hunting opportunities. Allowing food 

plots on WPAs within the district, albeit limited, will assist the Iowa DNR (a key Service partner) in providing 

hunting opportunities that will in turn gain public support for waterfowl and wetland protection. 

Food plots will not be necessary on all WPAs within the district. Service managers and Iowa DNR wildlife 

biologists will determine areas that are appropriate for food plot placement. Given the waterfowl 

production/migratory bird purposes of the district, creation of edge, size of habitat patch (Warner et al., 2012), 

timing of disturbance related to farming practices (Korschgen and Dahlgren, 1992), and herbicide treatments of 

crops will be considered in the determination. Although some species of both migratory and resident birds have 

been documented nesting in corn and soybean row crop this may create an ecological trap (Best, 1986). For 

this reason managers need to be cautious with locations of food plots within the district. 

It is not reasonable to have food plots on every WPA within the district and still maintain its waterfowl and 

migratory bird purpose. Preparing a data layer within the first year of this plan will facilitate discussions and 

strategic positioning of food plots on district properties. New management plans for individual units will involve 

evaluating the need for food plots on the tract and potential locations to lessen the impacts of disturbance, edge, 

chemical use, and soil erosion. Individual unit plans will also ensure that food plots are not located in wetland 

basins or remnant prairie sites. Many times food plots may be better situated on adjacent state WMAs, county 
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conservation areas or private land. Currently, approximately 15 percent of the district WPA properties are in row 

crop agriculture, mostly in reconstruction to prairie. It is reasonable to believe that Iowa DNR food plot 

objectives can be met with three percent of the district’s uplands in food plots without materially detracting from 

the waterfowl production purpose for the district. Three percent of the district uplands equates to approximately 

500 acres of the WPAs in food plots. This rate of food plot use in the district will be evaluated through the early 

stages of this CCP to determine the minimum acceptable level for food plots, especially given the partnership 

with the Iowa DNR and the district’s waterfowl production purpose. 

Wildlife food plots generally consist of plantings of corn, soybeans, sunflowers, wheat, barley, oats, rye, 

buckwheat, millet, milo, and sorghum. Cultivation of these crops is usually accomplished by cooperative farmers 

through an agreement with Iowa DNR. Food plots will not be manipulated in any way to constitute baiting of 

migratory game birds and waterfowl as defined in the Migratory Bird Treaty Act of 1918 (16 U.S.C. 703–712 P.L. 

105–312) and 50 CFR 20.11–21. Standard agricultural practices will be used in farming operations with the 

exception that insecticide use will not be permitted. Crops will be left standing in the field, and may be 

harvested in the early spring each year. 

Some food plots that are designed, in particular, for winter survival of Ring-necked Pheasant include planting 

shelterbelts of conifer trees and shrubs. WPAs will not be locations considered for shelterbelt placement in 

conjunction with food plots. Grassland bird research suggests that some birds experience reductions in nest 

success and higher predation rates in grasslands that have been fragmented by trees (Johnson and Temple, 

1990). Wetland vegetation can provide excellent winter cover for resident wildlife, therefore negating the need 

for shelterbelt plantings on WPAs. 

Strategies

• Within one year of CCP approval, create a database with a spatial component, for all existing food 

plots across the district.

• Determine criteria for proper location of food plots considering amount of edge created, size, timing 

of disturbance to plant, effects from pesticide application, etc.

• Maintain and update the food plot database at least annually.
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Strategic Land Protection

Issues 2-6 and 2-7: Decreasing purchasing power of existing funds and priority areas for acquisition

Objective 2-6-1

Over the 15-year life of the CCP, continue to pursue perpetual protection of wetland and grassland of up to 

112,000 acres in the Prairie Pothole Region of Iowa in collaboration with county, state, and other federal 

governments, conservation organizations, private businesses, and concerned citizens. Landscape level 

planning tools (i.e., four-square mile survey, restorable wetlands layer, etc.) utilized by Iowa DNR and the 

Service’s HAPET office will guide partners as to where strategic land acquisition should occur. 

Measures

• All partner accomplishments of wetland and grassland perpetual protection will be tracked through 

the Prairie Pothole Joint Venture.

• Wetland and grassland perpetual protection by the Service within the PPR of Iowa is at least 200–

300 acres annually.

Rationale

It is estimated that the PPR of Iowa has lost at least 96 percent of the once 3.4 million wetland acres in the area. 

(Miller et al., 2012). Recent increases in grain prices coupled with inexpensive drainage tile has led to the rapid 

conversion of once avoided and untilled wetland areas to row crops. The district currently manages just over 

25,000 acres of both fee title and both wetland and habitat easements. With the extensive agricultural drainage 

the district is experiencing on private lands it is imperative that the Service continue to acquire properties in fee 

title, easements, and work with partners to secure wetland habitat protection on private lands. 

Since 2006, the PPJV target for Iowa has been to increase breeding ducks by 25,000 pairs (extrapolated by Rex 

Johnson [FWS, HAPET] from U.S. Government Accountability Office, 2007). These 25,000 new pairs will need 

approximately 28,000 wetland acres of habitat. However, a 3:1 ratio of upland to wetland habitat is desired. 

Therefore, the wetland/grassland habitat target for Iowa is 112,000 acres in perpetual protection. 

The two million dollars requested annually by the FWS to acquire WPAs currently does not buy as much land as 

it once did due to ever increasing land values. However, the district still manages to grow by 200–300 acres 

annually, through purchase in fee title and supporting the WRP. One method the district has utilized to acquire 

WPA properties is to purchase the residual of WRP easement properties in the PPJV priority areas. Iowa DNR 

biologists negotiate with willing landowners to enroll in the WRP with the final outcome of either a permanent 

WPA easement through the Service or the purchase in fee title of the property as a WPA, using the Small 

Wetlands Program and Migratory Bird Conservation Funds (federal Duck Stamp). Using this process aids in 

wetland/upland restoration and reduces the final closing costs for the property. It is also essential that the 

district continue to provide support for the use of other FSA programs in the state that provide wetland and 

grassland protection, such as the CRP program. 
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Since 1978 the Iowa DNR and the Service have worked under a partnership for WPA acquisition and 

management. Through this partnership the Iowa DNR has cooperated in identifying and delineating land of high 

waterfowl production capabilities. The strategy has been to acquire properties in complexes connecting state

and county land with federal WPAs. Several models have been developed narrowing the focus within the 

district based on production potential, wetland densities, and existing conservation land. The current Iowa PPJV 

priority complexes were developed as a result of these modeling efforts. These priority complexes have allowed 

for strategic acquisition to create large areas of habitat with more completely restored hydrology. 

Since so much effort has been focused in these priority complexes, the Service and Iowa DNR do not want to 

abandon these sites. However, it is important to use the best available science and data to make sure the 

district is growing into areas that have the highest waterfowl production potential if cost effective. Newer and 

more accurate data and some potential models are becoming available through the Iowa DNR and HAPET that 

should be utilized to refine the existing areas of priority for acquisition. Currently, acquisition objectives focus on 

fee title and easement WPAs with natural or restorable wetlands possessing brood rearing cover and associated 

upland nesting cover in close proximity to existing public wetlands. Other areas of priority include uplands in the 

vicinity of wetlands where nesting cover is lacking. The ideal waterfowl production habitat to be acquired is a 

3:1 ratio of uplands to wetlands. Acquisition will continue to be focused on areas identified as Iowa PPJV 

priority complexes; however, these will be altered if better scientific information suggests such a change.

Strategies

• Work with Iowa DNR, the U.S. Department of Agriculture (USDA) Natural Resources Conservation 

Service (NRCS), county conservation boards, Non-Government Organizations, and others to achieve 

this objective.

• Continue to utilize fee title and conservation easement options for acquisition of at least 200–300 

acres annually.

• Utilize the Service’s Partners for Fish and Wildlife Program to promote conservation programs. 

• Support WRP proposals and other USDA conservation programs that perpetually protect wetland 

and grassland habitats within the Iowa WMD.

• Within two years of CCP approval, work with Iowa DNR and HAPET to utilize any new models 

developed to select the areas of greatest waterfowl production within the district.

• As priority areas are identified, develop a new Geographic Information System (GIS) layer or map 

book to guide acquisitions.

• Apply for and secure grant funds for wetland and grassland acquisition and restoration (North 

American Wetlands Conservation Act, etc.).
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Goal 3: People

In partnership with the Iowa DNR and others, promote understanding, appreciation, and support for the Iowa WMD as well as 

stewardship and understanding of the southern PPR and its native ecosystems to visitors and local residents.

Issue 3-1: District awareness and understanding

Objective 3-1-1

Within 15 years of CCP approval, provide the infrastructure on three WPAs (such as trails, kiosks, pull-offs, etc.) 

and information (brochure, website, Facebook page, etc.) necessary for visitors to appreciate resources in the 

Iowa WMD, as defined in the Visitor Services Plan. 

Measures • A minimum of 500 “hits” annually on the district website.

Rationale

District users have expressed some confusion over WPA locations, ownership and management, and permitted 

uses. Since the district’s inception, most of the properties have been managed by the Iowa DNR through an 

MOU. Many WPAs in the district are in complexes with Iowa DNR WMAs, and county conservation areas. 

WPAs that are managed through the MOU are signed with both a “Waterfowl Production Area” (FWS) sign and 

a “Public Hunting, Wildlife Management Area” (Iowa DNR) sign. This signing procedure can confuse users as 

many are not likely aware of the district’s partnership, and not all state and federal public use regulations are the 

same. 

Informing visitors about this partnership and the differences in ownership is essential. The public should be able 

to easily find the locations of all fee title WPA properties and know what special regulations are enforced on the 

properties. Utilizing 21st century social media will likely prove to be essential to reach the public with such 

information. Large and frequently used WPAs may be excellent locations to place informational kiosks to inform 

the public about the importance of wetlands, WPAs, and the unique partnership of the Iowa DNR and Service. 

Visitors to the district deserve consistency in signage, messaging, and regulations. It may be possible to tie the 

district website containing regulations to a Quick Response code for mobile phones at a site such as a parking 

area. 

Newly acquired WPAs will also need the proper infrastructure to allow safe access to the property for users. 

Included in this access will be the development of gravel parking areas. Most parking areas will be 30 feet by 50 

feet up to 80 feet by 100 feet. Users should be able to easily locate the parking areas and be able to turn 

vehicles around prior to exiting onto the roadway.

Strategies • Within two years of CCP approval, update and coordinate information (regulations, planned events, 

hunter atlas, etc.) on the Iowa DNR and district website.
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• Within five years of CCP approval, develop an informational and regulatory brochure for the district in 

cooperation with Iowa DNR.

• Within five years of CCP approval, identify three key locations and cost estimates to place 

informational kiosks interpreting the wildlife resources and partnership efforts of the district.

• Over the 15-year life of the CCP, strive for consistent signage on WPAs across the district.

• Continue annual coordination meetings with local Iowa DNR Wildlife Bureau staff and include Service

zone law enforcement as well as Iowa DNR conservation officers.

• Within four years of CCP approval, complete a Visitor Services Plan for the Iowa WMD.

• Promote public use facilities on WPAs to Service partners, in particular the three enhanced WPAs 

referenced in Objective 3-1-1.
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Issue 3-2: Appropriate recreational opportunities

Objective 3-2-1

Upon implementation of the CCP, allow uses required by regulation (hunting, recreational fishing, and 

recreational trapping—all in accordance with state regulations) as well as other public uses deemed appropriate 

and compatible across the Iowa WMD. Within four years of CCP approval, appropriate and compatible uses will 

be clearly articulated to the public through uniform signage, brochures, and Iowa DNR and Iowa WMD websites 

as identified in the Visitor Services Plan.

Measure

• Appropriate and compatible uses of the district are up-to-date and accurate on signs, brochures, and 

websites.

• Violations on WPAs are reduced by 25–30 percent over the 15 year life of the plan.

Rationale

Hunting: Hunting is one of the most popular public uses of WPAs in the Iowa WMD. Waterfowl, Ring-necked 

Pheasant, deer, and other migratory game birds are the most hunted species on WPAs. Hunting seasons 

generally occur from September through mid-January each year. Some hunting use also occurs for light geese 

with a conservation season open from mid-January through mid-April.

WPAs are open to hunting as authorized by the Code of Federal Regulations. This regulation states, ”Lands 

acquired as ‘waterfowl production areas’ shall annually be open to the hunting of migratory game birds, upland 

game, and big game subject to the provisions of state law and regulations . . . ” (50 CFR Ch. 1 (10-1-12 Edition) 

Part 32, Subpart A, Section 32.1. However, according to state regulations, (Iowa Code 52.1(3) Waterfowl 

refuges) “The following areas under the jurisdiction of the department of natural resources are established as 

waterfowl refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, where 

posted, at any time during the year. It shall be unlawful to trespass in any manner on the following areas, where 

posted, during the dates posted, both dates inclusive . . . :

• Jemmerson Slough (Dickinson County); 

• Elk Creek Marsh (Worth County); and

• Rice Lake (Winnebago and Worth Counties) within the Iowa WMD.”

These areas will continue to be waterfowl refuges during the implementation of the CCP.

As hunting opportunities dwindle on private land due to CRP loss, hunting leases, and intensified farming 

practices that eliminate cover, public hunting lands have experienced an increase in use. As of 2004, public 

conservation lands in Iowa only accounted for 1.7 percent of the state, which is one of the lowest in the country 

(Zohrer, 2005). Therefore, WPAs provide an important opportunity for hunting in Iowa. 
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Recreational (Sport) Fishing: Sport fishing is another use allowed on WPAs per the Code of Federal 

Regulations. This regulation states, “Lands acquired as ‘waterfowl production areas’ are open to sport fishing 

subject to the provision of state laws and regulations . . .” (50 CFR Ch. 1 (10-1-12 Edition) Part 32, Subpart A, 

Section 32.4. Few areas in the Iowa WMD provide fishing opportunities; however, anglers may find perch, 

northern pike, largemouth bass, blue-gill, and bullhead on some WPAs. Sport fishing use can occur during any 

month of the year; however, winter ice fishing and early spring tend to be the most popular. Sport fishing is 

permitted in accordance with State of Iowa law.

Recreational Trapping: Trapping of furbearers is an additional consumptive public use of WPAs in the Iowa 

WMD. Furbearer trapping in the State of Iowa continues to be a popular public use but tends to fluctuate with 

the fur prices. WPAs are open to trapping as authorized by the Code of Federal Regulations which states, 

“Lands acquired as ‘waterfowl production areas’ shall be open to public trapping without federal permit . . . ” (50 

CFR Ch. 1 (10-1-12 Edition) Part 31, Subpart B, Section 31.16. Trappers are required to comply with Iowa state

trapping laws and regulations. 

Furbearer trapping for most species occurs from early November through the end of January with the exception 

of spring beaver trapping, which is open through mid-April. According to the Iowa DNR’s 2012 Furbearers 

Report, the most numerous mammal species trapped in Iowa is the raccoon with 236,943 harvested during the 

2010–2011 season. The second most popular furbearer trapped in Iowa is the muskrat with a total 2010–2011 

season harvest of 98,079 (Iowa DNR, 2012). Both of these species occur on most WPAs within the district. 

Other Wildlife-Dependent Public Uses: There are six priority public uses identified in the National Wildlife Refuge 

System Improvement Act of 1997 that are considered to be wildlife-dependent. Each unit of the National Wildlife 

Refuge System (NWRS, Refuge System) is encouraged to find these uses compatible. In the past, the Iowa 

WMD only considered hunting, fishing, and trapping as approved public uses based on statutory requirements. 

However, compatibility determinations can be used to allow the other priority public uses if deemed compatible 

with the purpose of the district. These other uses include wildlife observation, photography, environmental 

education, and interpretation. 

Wildlife Observation and Photography: Wildlife observation and photography are growing activities in the United 

States drawing enthusiasts to natural areas such as national wildlife refuges (NWRs, refuges) and WMDs. 

WPAs can provide visitors with tremendous opportunities to both view and photograph wildlife species 

representative of the PPR. During the spring visitors can view and photograph numerous birds using the 

wetlands as they migrate. During the summer and fall, tallgrass prairie and wetlands can display inspiring vistas 

of color that change during the growing season with various wildflower blooms. Many of the WPAs in the district 
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are excellent places to both observe and photograph resident wildlife such as white-tailed deer and Ring-necked 

Pheasant. Currently, however, there is very little infrastructure in place to support this use with the exception of 

parking areas, the Visitor’s Center at Union Slough NWR and some pull-offs along roads. The district will 

evaluate potential areas for interpretive signage and observational areas to be developed. A compatibility 

determination has been developed for wildlife observation and photography (appendix F).

Environmental Education: Currently WPAs are spread across eighteen counties in the state, providing excellent 

areas for local schools, clubs, and county programs to utilize for teaching the public about Iowa’s rich wetland 

and prairie heritage. The Iowa WMD does not have the staff or budget to produce large environmental 

education programs; however, this can be mitigated by developing partnerships with County Conservation 

Board (CCB) naturalists. The district’s WPAs provide great settings for programs about migratory birds, 

tallgrass prairie, and wetlands. Public understanding of how productive Iowa soils were developed from 

tallgrass prairie and wetlands will foster an appreciation for future wetland and prairie conservation efforts. A 

compatibility determination has been developed for environmental education (appendix F).

Interpretation: Similar to environmental education, the Iowa WMD has little staff and budget to develop 

interpretive programs. Several events are held each year at Union Slough NWR in partnership with the Friends 

of Union Slough NWR including International Migratory Bird Day, National Wildlife Refuge Week, and Wood 

Duck banding. These events could also include or be held in the district. Currently, interpretive displays about 

wildlife and habitats found in the district are housed at Union Slough NWR. Areas with excellent wildlife viewing 

opportunities or exceptional features near higher populated areas within the district could be potential target 

areas for interpretive displays in the future. Partnerships with CCB naturalists in the district could be explored to 

provide programs/media interpreting the importance of tallgrass prairie and wetland habitat. A compatibility 

determination has been developed for interpretation (appendix F).

Another growing interest is in the use of technology to interpret various natural things. One of the ways this may 

be accomplished in the district is through the use of virtual geocaching. This activity leads the user to a location 

such as a parking area on a WPA or a road pull-off, and then the user receives information about the site such 

as geologic features, wildlife, or the importance of wetlands and tallgrass prairie habitat. Local instructors have 

requested this use as a way for them to interpret the natural process of Iowa. Virtual geocaching differs from 

typical geocaching in that the user does not take or leave any items at the site. The end prize is to learn about 

the area or be directed to the refuge/district office. A compatibility determination has been developed for virtual 

geocaching (appendix F).

Economic Uses for Management Purposes: Some economic uses of the district have proven to be the most 

efficient and cost effective tools for management. These include:
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• Wood cutting to remove woody vegetation and restore tallgrass prairie/wetland habitat.

• Hay harvest to increase primary productivity in grasslands.

• Livestock grazing to reduce standing litter, fertilize, mimic natural disturbance of bison and other 

large ungulate grazing, and increase primary productivity.

With limited staff and funding, these uses are essential tools that make meeting the purpose of the district 

easier. Compatibility determinations have been developed for all of these uses (appendix F).

Other Uses: A number of other uses for the Iowa WMD have been requested and considered. For various 

reasons, including wildlife disturbance, legality, availability on adjacent properties, damage to wildlife resources, 

and conflict with the district’s purpose (waterfowl production and migratory birds), these uses have been 

deemed not appropriate. Future requests for other uses will be considered in a similar manner. 

Strategies

Upon approval of the CCP, 

• The following uses are allowed by Regulation and are Compatible: hunting in accordance with 

state regulations, recreational fishing in accordance with state regulations, and recreational trapping 

in accordance with state regulations.

• The following uses are Appropriate and Compatible (some require a special use permit or have 

other limitations described in the compatibility determination for that use): bicycle riding on roads and 

trails open to vehicular traffic, wood cutting (including firewood), hay harvest, environmental 

education, food plot cultivation for wildlife, virtual or waypoint geocaching, interpretation, prescribed 

livestock grazing, photography, and wildlife observation. 

• The following uses are Not Appropriate: dog training, horseback riding, off road vehicle use 

(including ATV, UTV, dirt bike, motor vehicle), overnight camping, private Ring-necked Pheasant 

stocking, snowmobiling, and target shooting. 

• Upon approval of the CCP complete an annual inspection of WMD/DNR websites to update 

allowable uses.

• Upon approval of the CCP annually evaluate the Uniform Crime Report and any reports submitted by 

Iowa DNR Conservation Officers, of non-appropriate uses.

• Evaluate appropriateness and compatibility (if found appropriate) of other uses upon request per the 

Service’s appropriate use and compatibility determination policy. 
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• Within four years of CCP approval, complete a Visitor Services Plan that includes the baseline 

violation numbers for the district. 

• Within four years of CCP approval complete a review of regulatory signage in the district and ensure 

signs in the district are consistent with the Refuge Sign Manual. 

• Ensure all district regulations are listed in the refuge-specific 50 CFR (Code of Federal Regulations).
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Appendix A: Species Lists

In this appendix:

Plants

Mammals

Birds

Fish and Mussels

Reptiles and Amphibians

The following species lists were compiled by the Region 3 office from a variety of sources, and 

were reviewed and approved by the Iowa Wetland Management District biologist. A file of more 

detailed species lists and a file explaining the methodology used to compile them is in the 

Project File (completed under contract by the U.S. Geological Survey). 

Plants

Common Name Scientific Name State Status Federal Status

Alkali Muhly Muhlenbergia asperifolia S

Alpine Rush Juncus alpinus S

Arrow Grass Triglochin maritimum T

Beakrush Rhynchospora capillacea T

Bicknell Northern Crane's-bill Geranium bicknellii S

Bigroot Prickly-pear Opuntia macrorhiza E

Bird's-eye Primrose Primula mistassinica S

Blue Giant Hyssop Agastache foeniculum E

Bog Bedstraw Galium labradoricum E

Bog Birch Betula pumila T

Bog Willow Salix pedicellaris T

Brittle Prickly Pear Opuntia fragilis T

Broadleaf Water-milfoil Myriophyllum heterophyllum S

Brook Lobelia Lobelia kalmii S

Buckbean Menyanthes trifoliata T

Canada Plum Prunus nigra E

Cliff Conobea Leucospora multifida E

Clustered Broomrape Orobanche fasciculata E
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Common Name Scientific Name State Status Federal Status

Clustered Poppy-mallow Callirhoe alcaeoides T

Coast-blite Goosefoot Chenopodium rubrum S

Common Mare's-tail Hippuris vulgaris S

Creeping Juniper Juniperus horizontalis T

Creeping Sedge Carex chordorrhiza E

Crowfoot Ranunculus gmelinii S

Cutleaf Water-milfoil Myriophyllum pinnatum S

Drooping Bluegrass Poa languida S

Dry-spike Sedge Carex foenea S

Earleaf Foxglove Tomanthera auriculata S

Eastern Jointweed Polygonella articulata E

False Loosestrife Ludwigia peploides S

Fewflower Spikerush Eleocharis pauciflora S

Fineberry Hawthorn Crataegus chrysocarpa S

Flat Top White Aster Aster pubentior S

Flatleaf Bladderwort Utricularia intermedia S

Flax-leaved Aster Aster linariifolius T

Fogg's Goosefoot Chenopodium foggii S

Fragrant False Indigo Amorpha nana T

Frost Grape Vitis vulpina S

Glade Mallow Napaea dioica S

Glandular Wood Fern Dryopteris intermedia T

Glomerate Sedge Carex aggregata S

Golden Corydalis Corydalis aurea T

Grass Pink Calopogon tuberosus S

Great Plains Ladies'-tresses Spiranthes magnicamporum S

Green Adder's Mouth Malaxis unifolia S

Green Arrow Arum Peltandra virginica E
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Common Name Scientific Name State Status Federal Status

Green Violet Hybanthus concolor T

Green's Rush Juncus greenei S

Hawksbeard Crepis runcinata S

Hill's Thistle Cirsium hillii S

Hooded Ladies'-tresses Spiranthes romanzoffiana T

Hooker's Orchid Platanthera hookeri T

Illinois Pinweed Lechea racemulosa S

Interrupted Wildrye Elymus diversiglumis S

Kitten Tails Besseya bullii T

Large-leaf Pondweed Potamogeton amplifolius S

Large-leaf White Violet Viola incognita E

Leafy Northern Green Orchid Platanthera hyperborea T

Ledge Spikemoss Selaginella rupestris S

Lesser Bladderwort Utricularia minor S

Limestone Rockcress Arabis divaricarpa S

Little Grape Fern Botrychium simplex T

Low Hairy Ground-cherry Physalis pubescens S

Low Nut Rush Scleria verticillata T

Marginal Shield Fern Dryopteris marginalis T

Meadow Bluegrass Poa wolfii S

Meadow Spikemoss Selaginella eclipes E

Missouri Lambsquarters Chenopodium missouriensis S

Muskroot Adoxa moschatellina S

Narrowleaf Pinweed Lechea intermedia T

Narrow-leaved Milkweed Asclepias stenophylla E

Nodding Thistle Cirsium undulatum S

Northern Adder's-tongue Ophioglossum pusillum S

Nuttall Pondweed Potamogeton epihydrus S
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Common Name Scientific Name State Status Federal Status

Oak Fern Gymnocarpium dryopteris T

One-sided Pyrola Pyrola secunda T

Oval Ladies'-tresses Spiranthes ovalis T

Ovate Spikerush Eleocharis ovata S

Pale Green Orchid Platanthera flava E

Pennsylvania Cinquefoil Potentilla pensylvanica T

Philadelphia Panic Grass Panicum philadelphicum T

Pink Milkwort Polygala incarnata T

Pod Grass Scheuchzeria palustris S

Prairie Bulrush Scirpus maritimus S

Prairie Bush Clover Lespedeza leptostachya T T

Prairie Moonwort Botrychium campestre S

Pretty Dodder Cuscuta indecora S

Purple Angelica Angelica atropurpurea S

Purple Fringed Orchid Platanthera psycodes T

Queen-of-the-prairie Filipendula rubra T

Raccoon Grape Ampelopsis cordata S

Ragwort Senecio pseudaureus S

Rattle Milk-vetch Astragalus adsurgens S

Rose Turtlehead Chelone obliqua S

Roundleaf Sundew Drosera rotundifolia E

Roundstem Foxglove Agalinis gattingeri T

Rush Aster Aster junciformis T

Sage Willow Salix candida S

Sand Cherry Prunus pumila S

Saskatoon Service-berry Amelanchier alnifolia S

Scarlet Hawthorn Crataegus coccinea S

Sedge Carex cephalantha S
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Common Name Scientific Name State Status Federal Status

Shadbush Amelanchier sanguinea S

Shining Willow Salix lucida T

Showy Lady's Slipper Cypripedium reginae T

Showy Milkweed Asclepias speciosa T

Shrubby Cinquefoil Potentilla fruticosa T

Silver Bladderpod Lesquerella ludoviciana S

Silver Buffalo-berry Shepherdia argentea T

Silverweed Potentilla anserina T

Slender Arrow Grass Triglochin palustris T

Slender Cotton Grass Eriophorum gracile T

Slender Ladies'-tresses Spiranthes lacera T

Slender Sedge Carex tenera S

Slim-leaved Panic Grass Dichanthelium linearifolium T

Small Fringed Gentian Gentianopsis procera S

Small Spikerush Eleocharis parvula S

Small White Lady's Slipper Cypripedium candidum S

Smith Bulrush Scirpus smithii S

Smooth Black-haw Viburnum prunifolium S

Spear Needlegrass Stipa comata S

Spiral Pondweed Potamogeton spirillus S

Spring Avens Geum vernum S

Spurge Euphorbia missurica S

Straight-leaf Pondweed Potamogeton strictifolius S

Swamp Thistle Cirsium muticum S

Sweet Indian Plantain Cacalia suaveolens T

Tall Cotton Grass Eriophorum angustifolium S

Three-seeded Mercury Acalypha ostryifolia S

Toad Rush Juncus bufonius S
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Common Name Scientific Name State Status Federal Status

Toothcup Rotala ramosior S

Tumble Grass Schedonnardus paniculatus S

Tunnel-formed Penstemon Penstemon tubiflorus S

Valerian Valeriana edulis S

Vasey Pondweed Potamogeton vaseyi S

Virginia Rockcress Sibara virginica S

Water Marigold Megalodonta beckii E

Water Milfoil Myriophyllum verticillatum S

Water Parsnip Berula erecta T

Water Shield Brasenia schreberi S

Water Starwort Callitriche heterophylla S

Waterwort Elatine triandra S

Waxleaf Meadowrue Thalictrum revolutum E

Waxyfruit Hawthorn Crataegus pruinosa S

Western Parsley Lomatium orientale T

Western Prairie Fringed Orchid Platanthera praeclara T T

White Prairie Aster Aster falcatus S

White Water Crowfoot Ranunculus circinatus S

White-stem Pondweed Potamogeton praelongus S

Widgeon-grass Ruppia cirrhosa S

Winterberry Ilex verticillata E

Wolf Spike-rush Eleocharis wolfii S

Woodland Horsetail Equisetum sylvaticum T

Wooly Milkweed Asclepias lanuginosa T

Yellow Monkey Flower Mimulus glabratus T

Yellow Trout-lily Erythronium americanum T

Yellow-eyed Grass Xyris torta E

E = Endangered, T = Threatened, S = Species of Concern
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Mammals

Common Name Scientific Name State Status Federal Status

Badger Taxidea taxus

Beaver Caster canadensis

Big Brown Bat Eptesicus fuscus

Bobcat Lynx rufus

Coyote Canis latrans

Deer Mouse Peromyscus maniculatus

Eastern Chipmunk Tamias striatus

Eastern Cottontail Sylvilagus floridanus

Eastern Mole Scalopus aquaticus

Eastern Pipistrelle Pipistrellus subflavus

Ermine Mustela erminea

Evening Bat Nycticeius humeralis

Flying Squirrel Glaucomys volans S

Fox Squirrel Sciurus niger

Franklin's Ground Squirrel Spermophilus franklinii

Gray Fox Urocyon cinereoargenteus

Gray Squirrel Sciurus carolinenesis

Hayden'S Shrew Sorex haydeni

Hoary Bat Lasiurus cinereus

Indiana Bat Myotis sodalis E E

Least Weasel Mustela nivalis

Little Brown Bat Myotis lucifugus

Long-Tailed Weasel Mustela frenata

Masked Shrew Sorex cinereus

Meadow Jumping Mouse Zapus hudsonius

Meadow Vole Microtus pennsylvanicus

Mink Mustela vison
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Common Name Scientific Name State Status Federal Status

Muskrat Ondatra zibethicus

Northern Grasshopper Mouse Onychomys leucogaster

Northern Myotis Myotis septentrionalis

Northern Short-Tailed Shrew Blarina brevicauda

Plains Pocket Gopher Geomys bursarius

Prairie Vole Microtus ochrogaster

Raccoon Procyon lotor

Red Bat Lasiurus borealis

Red Fox Vulpes vulpes

Red Squirrel Tamiasciurus hudsonicus

River Otter Lutra canadensis

Silver-Haired Bat Lasionycteris noctivagans

Southern Bog Lemming Synaptomys cooperi T

Spotted Skunk Spilogale putorius E

Striped Skunk Mephitis mephitis

Thirteen-Lined Ground Squirrel Spermophilus tridecemlineatus

Virginia Opossum Didelphis virginiana

Western Harvest Mouse Reithrodontomys megalotis

White-Footed Mouse Peromyscus leucopus

White-Tailed Deer Odocoileus virginianus

White-Tailed Jackrabbit Lepus townsendii

Woodchuck Marmota monax

Woodland Vole Microtus pinetorum

E = Endangered, T = Threatened, S = Special Concern
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Birds

Common Name Scientific Name State Status U.S. N.S.

Acadian Flycatcher Empidonax virescens SGCN X

Alder Flycatcher Empidonax alnorum X X

American Avocet Recurvirostra americana SGCN X

American Bittern**** Botaurus lentiginosus SGCN X

American Black Duck Anas rubripes X

American Coot Fulica americana X X

American Crow Corvus brachyrhynchos X X

American Golden-Plover Pluvialis dominica SGCN X X

American Goldfinch Carduelis tristis X X

American Kestrel Falco sparverius X X

American Pipit Anthus rubescens X

American Redstart Setophaga ruticilla X X

American Robin Turdus migratorius X X

American Tree Sparrow Spizella arborea X X

American White Pelican Pelecanus erythrorhynchos SGCN X X

American Wigeon Anas americana X

American Woodcock Scolopax minor SGCN X X

Baird’s Sandpiper Calidris bairdii X

Bald Eagle  Haliaeetus leucocephalus E, SGCN X X

Bank Swallow Riparia riparia X X

Barn Swallow Hirundo rustica X X

Barred Owl Strix varia X X

Bay-breasted Warbler Dendroica castanea X X

Bell's vireo Vireo bellii SGCN X

Belted Kingfisher Ceryle alcyon X X

Black Tern** ** Chlidonias niger S, SGCN X X

Black-and-white Warbler Mniotilta varia SGCN X X
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Common Name Scientific Name State Status U.S. N.S.

Black-bellied Plover Pluvialis squatarola X X

Black-billed Cuckoo  Coccyzus erythropthalmus SGCN X X

Blackburnian Warbler Dendroica fusca X X

Black-capped Chickadee Parus atricapillus X X

Black-crowned Night-Heron Nycticorax nycticorax SGCN X X

Black-necked Stilt Himantopus mexicanus X

Blackpoll Warbler Dendroica striata X X

Black-throated Green Warbler Dendroica virens X X

Blue Jay Cyanocitta cristata X X

Blue-gray Gnatcatcher Polioptila caerulea X X

Blue-winged Teal Anas discors X X

Blue-winged Warbler Vermivora pinus SGCN X

Bobolink Dolichonyx oryzivorus SGCN X X

Bonaparte’s Gull Larus philadelphia X X

Brewer's Blackbird Euphagus cyanocephalus X

Broad-winged Hawk Buteo platypterus SGCN X X

Brown Creeper Certhia americana SGCN X X

Brown Thrasher Toxostoma rufum X X

Brown-headed Cowbird Molothrus ater X X

Buff-breasted Sandpiper** ** Tryngites subruficollis SGCN X

Bufflehead Bucephala albeola X

Canada Goose Anser fabalis X X

Canada Warbler Wilsonia canadensis SGCN X X

Canvasback Aythya valisineria SGCN X

Cape May Warbler Dendroica tigrina X

Caspian Tern Sterna caspia X

Cattle Egret Bubulcus ibis X X

Cedar Waxwing Bombycilla cedrorum X X
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Common Name Scientific Name State Status U.S. N.S.

Cerulean warbler Dendroica cerulea SGCN X

Chestnut-sided Warbler Dendroica pensylvanica X X

Chimney Swift Chaetura pelagica X X

Chipping Sparrow Spizella passerina X X

Cinnamon Teal Anas cyanoptera X

Clay-colored Sparrow Spizella pallida X X

Cliff Swallow Hirundo pyrrhonota X X

Common Barn Owl** Tyto alba E, SGCN

Common Goldeneye Bucephala clangula X

Common Grackle Quiscalus quiscula X X

Common Loon Gavia immer X

Common Merganser Mergus merganser X

Common Moorhen Gallinula chloropus SGCN X

Common Nighthawk Chordeiles minor SGCN X X

Common Redpoll Carduelis flammea X

Common Snipe Gallinago gallinago X X

Common Tern Sterna hirundo X

Common Yellowthroat Geothlypis trichas X X

Connecticut Warbler Oporornis agilis X

Cooper's Hawk Accipiter cooperii X X

Dark-eyed Junco Junco hyemalis X X

Dickcissel  Spiza americana SGCN X X

Double-crested Cormorant Phalacrocorax auritus X X

Downy Woodpecker Picoides pubescens X X

Dunlin Calidris alpina X

Eared Grebe Podiceps nigricollis X

Eastern Bluebird Sialia sialis X X

Eastern Kingbird Tyrannus tyrannus X X
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Common Name Scientific Name State Status U.S. N.S.

Eastern Meadowlark Sturnella magna SGCN X X

Eastern Phoebe Sayornis phoebe X X

Eastern Screech-Owl Otus asio X X

Eastern Towhee Pipilo erythrophthalmus SGCN X X

Eastern Wood-Pewee Contopus virens X X

European Starling Sturnus vulgaris X X

Field Sparrow Spizella pusilla SGCN X X

Forster’s Tern Sterna forsteri S, SGCN X

Fox Sparrow Passerella iliaca X X

Franklin’s Gull Larus pipixcan X X

Gadwall Anas strepera X X

Golden Eagle Aquila chrysaetos X

Golden-crowned Kinglet Regulus satrapa X X

Golden-winged Warbler Vermivora chrysoptera SGCN X X

Grasshopper Sparrow** ** Ammodramus savannarum SGCN X X

Gray Catbird Dumetella carolinensis X X

Gray Partridge Perdix perdix X

Gray-cheeked Thrush Catharus minimus X X

Great Blue Heron Ardea herodias X X

Great Crested Flycatcher Myiarchus crinitus X X

Great Egret Ardea albus X

Great Horned Owl Bubo virginianus X X

Great White-fronted Goose Anser albifrons X

Greater Scaup Aythya marila X

Greater Yellowlegs Tringa melanoleuca SGCN X X

Great-tailed Grackle Quiscalus mexicanus X

Green Heron Butorides virescens X X

Green-winged Teal Anas crecca X X
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Common Name Scientific Name State Status U.S. N.S.

Hairy Woodpecker Picoides villosus X X

Harris's Sparrow Zonotrichia querula X X

Henslow’s Sparrow Ammodramus henslowii T, SGCN X

Hermit Thrush Catharus guttatus X X

Herring Gull Larus argentatus X X

Hooded Merganser Lophodytes cucullatus X

Hooded warbler* Wilsonia citrina SGCN

Horned Grebe**** Podiceps auritus X

Horned Lark Eremophila alpestris X X

House Finch Carpodacus mexicanus X X

House Sparrow Passer domesticus X X

House Wren Troglodytes aedon X X

Hudsonian Godwit  Limosa haemastica SGCN X

Indigo Bunting Passerina cyanea X X

Kentucky Warbler Oporornis formosus SGCN X

Killdeer Charadrius vociferus X X

King Rail Rallus limicola E, SGCN X

Lapland Longspur Calcarius lapponicus X X

Lark sparrow Chondestes grammacus SGCN X

Le Conte’s Sparrow Ammodramus leconteii SGCN X X

Least Bittern** ** Ixobrychus exilis SGCN X X

Least Flycatcher Empidonax minimus SGCN X X

Least Sandpiper Calidris minutilla X X

Least Tern*** Sterna antillarum E, SGCN X

Lesser Scaup Aythya affinis X X

Lesser Yellowlegs Tringa flavipes SGCN X X

Lincoln's Sparrow Melospiza lincolnii X X

Little Blue Heron Egretta caerulea X
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Common Name Scientific Name State Status U.S. N.S.

Loggerhead Shrike Lanius ludovicianus SGCN X X

Long-billed Curlew  Numenius americanus X

Long-billed Dowitcher Limnodromus scolopaceus X X

Long-eared Owl Asio otus T, SGCN X

Louisiana Waterthrush Seiurus motacilla SGCN X

Magnolia Warbler Dendroica magnolia X X

Mallard Anas platyrhynchos X X

Marbled Godwit** ** Limosa Fedoa SGCN X

Marsh Wren Cistothorus palustris X X

Merlin Falco columbarius X

Mourning Dove Zenaida macroura X X

Mourning Warbler Oporornis philadelphia X X

Nashville Warbler Vermivora ruficapilla X X

Northern Bobwhite Colinus virginianus SGCN X X

Northern Cardinal Cardinalis cardinalis X X

Northern Flicker Colaptes auratus X X

Northern Goshawk Accipiter gentilis X

Northern Harrier Circus cyaneus E, SGCN X X

Northern Mockingbird Mimus polyglottos SGCN X

Northern Oriole Icterus galbula X X

Northern Parula Parula americana X

Northern Pintail Anas acuta SGCN X

Northern Rough-winged Swallow Stelgidopteryx serripennis X X

Northern Saw-whet Owl Aegolius acadicus X

Northern Shoveler Anas clypeata X X

Northern Shrike Lanius excubitor X X

Northern Waterthrush Seiurus noveboracensis X X

Olive-sided Flycatcher Contopus cooperi X X
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Common Name Scientific Name State Status U.S. N.S.

Orange-crowned Warbler Vermivora celata X X

Orchard Oriole Icterus spurius X X

Osprey Pandion haliaetus SGCN X X

Ovenbird Seiurus aurocapillus X X

Palm Warbler Dendroica palmarum X X

Pectoral Sandpiper Calidris melanotos X X

Peregrine Falcon  Falco peregrinus E, SGCN X

Philadelphia Vireo Vireo philadelphicus X X

Pied-billed Grebe Podilymbus podiceps X X

Pileated Woodpecker Dryocopus pileatus X

Pine Siskin Carduelis pinus X X

Prairie Falcon Falco mexicanus X

Prothonotary Warbler Protonotaria citrea SGCN X

Purple Finch Carpodacus purpureus X X

Purple Martin Progne subis X X

Red Knot Calidris canutus X

Red-bellied Woodpecker Melanerpes carolinus X X

Red-breasted Merganser Mergus serrator X

Red-breasted Nuthatch Sitta canadensis X X

Red-eyed Vireo Vireo olivaceus X X

Redhead Aythya americana SGCN X

Red-headed Woodpecker** ** Melanerpes erythrocephalus SGCN X X

Red-necked Grebe Podiceps grisegena X X

Red-necked Phalarope Phalaropus lobatus X

Red-shouldered Hawk Buteo lineatus E, SGCN X

Red-tailed Hawk Buteo jamaicensis X X

Red-winged Blackbird Agelaius phoeniceus X X

Ring-billed Gull Larus delawarensis X X
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Common Name Scientific Name State Status U.S. N.S.

Ring-necked Duck Aythya collaris X X

Ring-necked Pheasant Phasianus colchicus X X

Rock Dove Columba livia X X

Rose-breasted Grosbeak Pheucticus ludovicianus X X

Ross' Goose Anser rossii X

Rough-legged Hawk Buteo lagopus X X

Ruby-crowned Kinglet Regulus calendula X X

Ruby-throated Hummingbird Archilochus colubris X X

Ruddy Duck Oxyura jamaicensis X X

Ruddy Turnstone Arenaria interpres X

Rusty Blackbird Euphagus carolinus SGCN X X

Sanderling Calidris alba X

Sandhill Crane Grus canadensis SGCN X X

Savannah Sparrow Passerculus sandwichensis X X

Scarlet Tanager Piranga olivacea X X

Sedge Wren Cistothorus platensis SGCN X X

Semipalmated Plover Charadrius semipalmatus X X

Semipalmated Sandpiper Calidris pusilla X

Sharp-shinned Hawk Accipiter striatus X X

Short-billed Dowitcher  Limnodromus griseus SGCN X X

Short-eared Owl** ** Asio flammeus E, SGCN X X

Snow Bunting Plectrophenax nivalis X X

Snow Goose Anser caerulescens X X

Snowy Egret Egretta thula X

Snowy Owl Nyctea scandiaca X

Solitary Sandpiper  Tringa solitaria SGCN X X

Solitary Vireo Vireo solitarius X X

Song Sparrow Melospiza melodia X X
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Common Name Scientific Name State Status U.S. N.S.

Sora Porzana carolina X X

Spotted Sandpiper Actitis macularia X X

Stilt Sandpiper Micropalama himantopus SGCN X

Summer Tanager Piranga rubra X

Swainson's Hawk** ** Buteo swainsoni SGCN X X

Swainson's Thrush Catharus ustulatus X X

Swamp Sparrow Melospiza georgiana X X

Tennessee Warbler Vermivora peregrina X X

Tree Swallow Tachycineta bicolor X X

Tricolored Heron Egretta tricolor X

Trumpeter Swan Cygnus buccinator SGCN X

Tufted Titmouse Parus bicolor X

Tundra Swan Cygnus columbianus X

Turkey Vulture Cathartes aura X X

Upland Sandpiper**** Bartramia longicauda SGCN X X

Veery Catharus fuscescens SGCN X X

Vesper Sparrow Pooecetes gramineus X X

Virginia Rail Rallus limicola X

Warbling Vireo Vireo gilvus X X

Western Grebe Aechmophorus occidentalis X X

Western Meadowlark Sturnella neglecta X X

Western Sandpiper Calidris mauri X

Whip-poor-will Caprimulgus vociferus SGCN X

White-breasted Nuthatch Sitta carolinensis X X

White-crowned Sparrow Zonotrichia leucophrys X X

White-eyed vireo Vireo griseus SGCN X

White-faced Ibis Plegadis chihi X

White-rumped Sandpiper Calidris fuscicollis X
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Common Name Scientific Name State Status U.S. N.S.

White-throated Sparrow Zonotrichia albicollis X X

Wild Turkey Meleagris gallopavo X X

Willet Catoptrophorus semipalmatus X

Willow Flycatcher Empidonax traillii SGCN X X

Wilson’s Phalarope Phalaropus tricolor SGCN X X

Wilson's Warbler Wilsonia pusilla X X

Wood Duck Aix sponsa X X

Wood thrush* Hylocichla mustelina SGCN

Worm-eating Warbler* Helmitheros vermivorus SGCN

Yellow Warbler Dendroica petechia X X

Yellow-bellied Flycatcher Empidonax flaviventris X X

Yellow-bellied Sapsucker Sphyrapicus varius X X

Yellow-billed Cuckoo Coccyzus americanus SGCN X X

Yellow-breasted Chat Icteria virens SGCN X X

Yellow-crowned Night-Heron Nyctanassa violacea SGCN X

Yellow-headed Blackbird Xanthocephalus xanthocephalus X X

Yellow-rumped Warbler Dendroica coronata X X

Yellow-throated Vireo Vireo flavifrons X X

Yellow-throated Warbler Dendroica dominica X

E = Endangered, T = Threatened, S = Special Concern, SGCN = Species of Greatest Conservation 

Need, U.S. = Union Slough National Wildlife Refuge (NWR, refuge) Checklist, N.S. = Neal Smith NWR 

Checklist

*From Iowa Breeding Bird Atlas, **From Iowa Natural Areas Inventory, ***Federally Endangered

****U.S. Fish and Wildlife Service – Region 3 2008 Birds of Conservation Concern
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Fish and Mussels

Common Name Scientific Name State Status Federal Status

American Brook Lamprey Lampetra appendix T, SGCN

American Eel Anguilla rostrata

Banded Darter Etheostoma zonale

Banded Killifish Fundulus diaphanus

Bigmouth Buffalo Ictiobus cyprinellus

Bigmouth Shiner Notropis dorsalis

Black Buffalo Ictiobus niger SGCN

Black Bullhead Ameiurus melas

Black Crappie Pomoxis nigromaculatus

Black Redhorse Moxostoma duquesnei T, SGCN

Blackchin Shiner Notropis heterodon

Blacknose Dace Rhinichthys atratulus

Blacknose Shiner Notropis heterolepis T, SGCN

Blackside Darter Percina caprodes SGCN

Blackstripe Topminnow Fundulus notatus

Blue Sucker Cycleptus elongatus SGCN

Bluegill Lepomis macrochirus

Bluntnose Minnow Pimephales notatus

Bluntnose Darter Etheostoma chlorosomum

Bowfin Amia calva SGCN

Brassy Minnow Hybognathus hankinsoni

Brook Silverside Labidesthes sicculus

Brook Stickleback Culaea inconstans

Brook Trout Salvelinus fontinalis SGCN

Brown Bullhead Ameiurus nebulosus SGCN

Brown Trout Salmo trutta

Bullhead (Sheepnose) Plethobasus cyphus SGCN
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Common Name Scientific Name State Status Federal Status

Bullhead Minnow Pimephales vigilax

Butterfly Ellipsaria lineolata SGCN

Central Mudminnow Umbra limi SGCN

Central Stoneroller Campostoma anomalum

Chain Pickerel Esox niger

Channel Catfish Ictalurus punctatus

Chestnut Lamprey Ichthyomyzon castaneus T

Common Carp Cyprinus carpio

Common Shiner Luxilus cornutus

Creek Chub Semotilus atromaculatus

Creek Heelsplitter Lasmigona compressa T, SGCN

Creeper Strophitus undulatus T, SGCN

Cylinder Anodontoides ferussacianus SGCN

Cylindrical Papershell Anodontoides ferussacianus T, SGCN

Ebonyshell Fusconaia ebena SGCN

Elktoe Alasmidonta marginata SGCN

Ellipse Venustaconcha ellipsiformis T, SGCN

Emerald Shiner Notropis atherinoides

Fantail Darter Etheostoma flabellare

Fathead Minnow Pimephales promelas

Fawnsfoot Truncilla donaciformis SGCN

Flat floater Anodonta suborbiculata SGCN

Flathead Catfish Pylodictis olivaris

Flathead Chub Platygobio gracilis SGCN

Fluted shell Lasmigona costata SGCN

Freshwater Drum Aplodinotus grunniens

Gilt Darter Percina evides

Gizzard Shad Dorosoma cepedianum
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Common Name Scientific Name State Status Federal Status

Golden Redhorse Moxostoma erythrurum

Golden Shiner Notemigonus crysoleucas

Goldeye Hiodon alosoides SGCN

Goldfish Carassius auratus

Grass Carp Ctenopharyngodon idella

Grass Pickerel Esox americanus T, SGCN

Gravel Chub Erimytax x-punctatus SGCN

Green Sunfish Lepomis cyanellus

Hickorynut Obovaria olivaria SGCN

Higgins’ eye pearlymussel Lampsilis higginsi SGCN

Highfin Carpsucker Carpiodes velifer

Hornyhead Chub Nocomis biguttatus

Iowa Darter Etheostoma exile

Johnny Darter Etheostoma nigrum

Lake chub Couesius plumbeus

Largemouth Bass Micropterus salmoides

Largescale Stoneroller Campostoma oligolepis SGCN

Least Darter Etheostoma microperca E, SGCN

Lilliput Toxolasma parvus SGCN

Longear Sunfish Lepomis megalotis

Longnose Dace Rhinichthys cataractae SGCN

Longnose Gar Lepisosteus osseus

Mimic Shiner Notropis volucellus

Mississippi Silvery Minnow Hybognathus nuchalis SGCN

Monkeyface Quadrula metanerva SGCN

Mooneye Hiodon tergisus

Mud Darter Etheostoma asprigene

Muskellunge Esox masquinongy
Appendix A: Species Lists

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Common Name Scientific Name State Status Federal Status

Northern Hogsucker Hypentelium nigricans

Northern Logperch Percina caprodes

Northern Pike Esox lucius

Northern Rock Bass Ambloplites rupestris

Orangespotted Sunfish Lepomis humilis

Orangethroat Darter Etheostoma spectabile T

Ozark Minnow Notropis nubilus SGCN

Ozark Pigtoe Fusconaia ozarkensis E, SGCN

Paddlefish Polyodon spathula SGCN

Pallid Shiner Notropis amnis

Paper pondshell Utterbackia imbecillis SGCN

Pearl Dace Margariscus margarita E, SGCN

Pistolgrip Tritogonia verrucosa E, SGCN

Plains Minnow Hybognathus placitus SGCN

Plains Topminnow Fundulus sciadicus

Pondhorn Uniomerus tetralasmus SGCN

Pondmussel Ligumia subrostrata SGCN

Pugnose Shiner Notropis anogenus E, SGCN

Pumpkinseed Lepomis gibbosus

Purple pimpleback Cyclonaias tuberculata SGCN

Quillback Carpsucker Carpiodes cyprinus

Rainbow Darter Etheostoma caeruleum

Rainbow Trout Oncorhynchus mykiss

Red Shiner Cyprinella lutrensis

Redear Sunfish Lepomis microlophus

Redfin Shiner Lythrurus umbratilis SGCN

River Carpsucker Carpiodes carpio

River Redhorse Moxostoma carinatum
Appendix A: Species Lists

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Common Name Scientific Name State Status Federal Status

River Shiner Notropis blennius

Rock pocketbook Arcidens confragosus SGCN

Rosyface Shiner Notropis rubellus

Round Pigtoe Pleurobema sintoxia E, SGCN

Sand Shiner Notropis stramineus

Sauger Stizostedion canadense

Shorthead Redhorse Moxostoma macrolepidotum

Shortnose Gar Lepisosteus platostomus

Shovelnose Sturgeon Scaphirhynchus platorynchus SGCN

Silver Chub Macrhybopsis storeriana

Silver Lamprey Ichthyomyzon unicuspis SGCN

Silver Redhorse Moxostoma anisurum

Slender Madtom Noturus exilis SGCN

Slenderhead Darter Percina phoxocephala SGCN

Slimy Sculpin Cottus cognatus SGCN

Slippershell Alasmidonta viridis SGCN

Slippershell Mussel Alasmidonta viridis E, SGCN

Slough sandshell Lampsilis teres teres SGCN

Smallmouth Bass Micropterus dolomieu

Smallmouth Buffalo Ictiobus bubalus

Southern Redbelly Dace Phoxinus erythrogaster

Speckled Chub Macrhybopsis aestivalis SGCN

Spectacle case Cumberlandia monodonta SGCN

Spike Elliptio dilatata SGCN

Spotfin Shiner Cyprinella spiloptera

Spottail Shiner Notropis hudsonius SGCN

Spotted Bass Micropterus punctulatus

Spotted Sucker Minytrema melanops
Appendix A: Species Lists

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Common Name Scientific Name State Status Federal Status

Starhead Topminnow Fundulus dispar

Stonecat Noturus flavus

Strange floater (Squawfoot) Strophitus undulatus SGCN

Suckermouth Minnow Phenacobius mirabilis

Tadpole Madtom Noturus gyrinus SGCN

Topeka Shiner Notropis topeka T, SGCN E

Trout-Perch Percopsis omiscomaycus SGCN

Walleye Sander vitreum

Warmouth Lepomis gulosus

Wartyback Quadrula nodulata SGCN

Weed Shiner Notropis texanus E, SGCN

Western Sand Darter Ammocrypta clara T, SGCN

Western Silvery Minnow Hybognathus argyritis SGCN

White Bass Morone chrysops

White Crappie Pomoxis annularis

White Sucker Catostomus commersoni

Yellow Bass Morone mississippiensis

Yellow Bullhead Ameiurus natalis

Yellow Perch Perca flavescens

Yellow Sandshell Lampsilis teres E, SGCN

E = Endangered, T = Threatened, SGCN = Species of Greatest Conservation Need
Appendix A: Species Lists

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Reptiles and Amphibians

Common Name Scientific Name State Status

American Toad Bufo americanus

Blanding's Turtle Emydoidea blandingii T

Boreal Chorus Frog Pseudacris maculata *

Brown Snake Storeria dekayi P

Bullfrog Rana catesbeiana *

Bullsnake Pituophis catenifer sayi S

Cope's Gray Tree Frog Hyla chrysoscelis *

Crayfish Snake Regina grahamii P

Cricket Frog Acris crepitans *

Eastern Garter Snake Thamnophis sirtalis 

Fox Snake Elaphe vulpina P

Green Frog Rana clamitans *

Lined Snake Tropidoclonion lineatum P

Milk Snake Lampropeltis triangulum P

Mudpuppy Necturus maculosus T

Northern Leopard Frog Rana pipiens *

Northern Prairie Skink Eumeces septentrionalis 

Northern Water Snake Nerodia sipedon P

Ornate Box Turtle Terrapene ornata T

Painted Turtle Chrysemys picta *

Plains Garter Snake Thamnophis radix P

Plain's Leopard Frog Rana blairi *

Racer Coluber constrictor P

Redbelly Snake Storeria occipitomaculata P

Ringneck Snake Diadophis punctatus P

Smooth Earth Snake Virginia valeriae P

Smooth Green Snake Opheodrys vernalis S
Appendix A: Species Lists

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Common Name Scientific Name State Status

Smooth Softshell Turtle Apalone mutica *

Snapping Turtle Chelydra serpentina *

Spiny Softshell Turtle Apalone spinifera *

Spring Peeper Pseudacris crucifer *

Tiger Salamander Ambystoma tigrinum *

Western Ribbon Snake Thamnophis proximus P

Wood Turtle Clemmys insculpta E

E = Endangered, P = Protected, cannot kill or collect in Iowa

S = Special Concern, T = Threatened

*A valid fishing license is required to possess this species for bait 

and/or food.
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Appendix B: Abbreviations and Glossary

Abbreviations

The following is a list of the most frequently used abbreviations in this document. More detail 

for some of the abbreviations is included in the Glossary.

NOTE: “Abbreviations” is used generically to refer to abbreviations (shortened version of a term 

or series of words), acronyms (word formed from letters or parts of a series of words), and 

initialisms (initial letters pronounced separately).

BCA: Bird Conservation Areas

BCC: Birds of Conservation Concern

BCR: Bird Conservation Region

CCP: Comprehensive Conservation Plan

CD: Compatibility Determination

CFR: Code of Federal Regulations

CRP: U.S. Department of Agriculture’s Conservation Reserve Program

DNR: Department of Natural Resources (often preceded by state abbreviation)

DOI: U.S. Department of the Interior

DU: Ducks Unlimited

EA: Environmental Assessment

EAS: Environmental Action Statement

EE: Environmental Education

EIS: Environmental Impact Statement

EO: Executive Order

EPA: U.S. Environmental Protection Agency

ESA: Endangered Species Act

FONSI: Finding of No Significant Impact

FR: Federal Register

FTE: Full-time Equivalent

FWS: U.S. Fish and Wildlife Service (also USFWS and Service)

FY: Fiscal Year

GAP: Gap Analysis Program

GIS: Geographic Information System

HAPET: U.S. Fish and Wildlife Service’s Habitat and Population Evaluation Team

IBA: Audubon Society’s Important Bird Area

IPCC: Intergovernmental Panel on Climate Change

LCC: Landscape Conservation Cooperative

LCD: Landscape Conservation Design

MOA: Memorandum of Agreement

MOU: Memorandum of Understanding

NABCI: North American Bird Conservation Initiative

NAI: Natural Areas Inventory

NEPA: National Environmental Policy Act of 1969

NRHP: National Register of Historic Places

NWR: National Wildlife Refuge (also refuge)

NWRS: National Wildlife Refuge System (also Refuge System)

PFT: Permanent Full-time

PPJV: Prairie Pothole Joint Venture
Appendix B: Abbreviations and Glossary

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PPR: Prairie Pothole Region

R3: Region 3 (Midwest) of the U.S. Fish and Wildlife Service (Illinois, Indiana, 

Iowa, Michigan, Minnesota, Missouri, Ohio, Wisconsin)

ROD: Record of Decision

SGCN: Species of Greatest Conservation Need

SHC: Strategic Habitat Conservation

TFT: Temporary Full-time

UMR/GLR JV: Upper Mississippi River & Great Lakes Region Joint Venture

USC: United States Code

USDA: U.S. Department of Agriculture

USGS: U.S. Geologic Survey

WMA: Wildlife Management Area

WMD: Wetland Management District (also district)

WPA: Waterfowl Production Area

WRP: U.S. Department of Agriculture’s Wetland Reserve Program

WSA: Wilderness Study Areas

Glossary

Adaptation: Adjustment in natural or human systems to a new or changing environment. 

Adaptation to climate change refers to adjustment in natural or human systems in response to 

actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial 

opportunities. Various types of adaptation can be distinguished, including anticipatory and 

reactive adaptation, private and public adaptation, and autonomous and planned adaptation.

Adaptive Management: The rigorous application of management, research, and monitoring to 

gain information and experience necessary to assess and modify management activities. A 

process that uses feedback from refuge research and monitoring and evaluation of 

management actions to support or modify objectives and strategies at all planning levels (FWS, 

602 FW 1.6(A)).

Alternatives: Different sets of objectives and strategies or means of achieving refuge purposes 

and goals, helping fulfill the National Wildlife Refuge System mission, and resolving issues 

(FWS, 602 FW 1.6(B)). 

Appropriate Use: A proposed or existing use on a refuge that meets at least one of the 

following four conditions (FWS, 603 FW 1.6):

• The use is a wildlife-dependent recreational use as identified in the Fish and Wildlife 

Improvement Act of 1978.

• The use contributes to fulfilling the refuge purpose(s), the National Wildlife Refuge 

System mission, or goals or objectives described in a refuge management plan 

approved after October 9, 1997, the date the National Wildlife Refuge System 

Improvement Act of 1997 was signed into law.

• The use involves the take of fish and wildlife under state regulations.

• The use has been found to be appropriate as specified in section 1.11.
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Approved Acquisition Boundary: A project boundary that the Director of the U.S. Fish and 

Wildlife Service approves upon completion of the planning and environmental compliance 

process. An approved acquisition boundary only designates those lands that the Service has 

authority to acquire and/or manage through various agreements. Approval of an acquisition 

boundary does not grant the Service jurisdiction or control over lands within the boundary, and it 

does not make lands within the refuge boundary part of the National Wildlife Refuge System. 

Lands do not become part of the Refuge System until they are purchased or are placed under 

an agreement that provides for management as part of the Refuge System. 

Biological Control: The use of organisms or viruses to control weeds or other pests. 

Biological Diversity: The variety of life, including the variety of living organisms, the genetic 

differences among them, and the communities in which they occur (FWS, 602 FW 1.6(C)). 

Biological Integrity: Biotic composition, structure, and functioning at the genetic, organism, 

and community levels consistent with natural conditions, including the natural biological 

processes that shape genomes, organisms, and communities (FWS, 602 FW 1.6(D)).

Candidate Species: Plants and animals for which the U.S. Fish and Wildlife Service has 

sufficient information on their biological status and threats to propose them as endangered or 

threatened under the Endangered Species Act of 1973, but for which development of a 

proposed listing regulation is precluded by other higher priority listing activities.

Carbon Sequestration: The uptake and storage of carbon. Trees and plants, for example, 

absorb carbon dioxide, release the oxygen, and store the carbon. Fossil fuels were at one time 

biomass and continue to store the carbon until burned.

Climate Change: Climate change refers to any significant change in measures of climate (such 

as temperature, precipitation, or wind) lasting for an extended period (decades or longer). 

Climate change may result from (1) natural factors, such as changes in the sun's intensity or 

slow changes in the Earth's orbit around the sun; (2) natural processes within the climate 

system (e.g., changes in ocean circulation); (3) human activities that change the atmosphere's 

composition (e.g., through burning fossil fuels) and the land surface (e.g., deforestation, 

reforestation, urbanization, desertification, etc.).

Code of Federal Regulations (CFR): The codification of the general and permanent rules 

published in the Federal Register by the departments and agencies of the federal government. It 

is divided into 50 titles that represent broad areas subject to federal regulation. The 50 subject 

matter titles contain one or more individual volumes, which are updated once each calendar 

year, on a staggered basis. 

Compatible Use: A proposed or existing wildlife-dependent recreational use or any other use of 

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

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

purposes of the national wildlife refuge (FWS, 603 FW 2.6(B)). 

Compatibility Determination (CD): A written determination signed and dated by the refuge 

manager and the U.S. Fish and Wildlife Service regional chief signifying that a proposed or 

existing use of a national wildlife refuge is a compatible use or is not a compatible use. The 

director of the Service makes this delegation through the regional director (FWS, 603 FW 

2.6(A)).
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Comprehensive Conservation Plan (CCP): A document that describes the desired future 

conditions of a refuge or planning unit and provides long-range guidance and management 

direction to achieve the purposes of the refuge; helps fulfill the mission of the Refuge System; 

maintains and, where appropriate, restores the ecological integrity of each refuge and the 

National Wildlife Refuge System; helps achieve the goals of the National Wilderness 

Preservation System; and meets other mandates (FWS, 602 FW 1.6(E)).

Consumptive Use: Use of a refuge resource that removes the resource from the refuge (e.g., 

killing an animal to eat, catching and keeping fish, harvesting berries or plants, or removal of 

mineral or other specimens).

Council on Environmental Quality (CEQ): An executive office of the president whose 

members are appointed by the president. CEQ recommends national policies to promote the 

improvement of the quality of the environment.

Cultural Resource Inventory: A professionally conducted study designed to locate and 

evaluate evidence of cultural resources present within a defined geographic area. Inventories 

may involve various levels, including background literature search, comprehensive field 

examination to identify all exposed physical manifestations of cultural resources, or sample 

inventory to project site distribution and density over a larger area. Evaluation of identified 

cultural resources to determine eligibility for the National Register of Historic Places follows the 

criteria found in 36 CFR 60.4. 

Cultural Resources: “Those parts of the physical environment—natural and built—that have 

cultural value to some kind of sociocultural group . . . [and] those non-material human social 

institutions . . . .” Cultural resources include historic sites, archeological sites and associated 

artifacts, sacred sites, traditional cultural properties, cultural items (human remains, funerary 

objects, sacred objects, and objects of cultural patrimony), and buildings and structures.

Easement: A privilege or right that is held by one person or other entity in land owned by 

another. 

Ecological Integrity: The integration of biological integrity, natural biological diversity, and 

environmental health; the replication of natural conditions (FWS, 602 FW 1.6(G)).

Ecosystem: A biological community together with its environment, functioning as a unit. For 

administrative purposes, 53 ecosystems covering the United States and its possessions have 

been designated. These ecosystems generally correspond with watershed boundaries, and their 

sizes and ecological complexity vary (FWS, 602 FW 1.6(H)). 

Effects (Impacts): Effects include:

• Direct effects, which are caused by the action and occur at the same time and place.

• Indirect effects, which are caused by the action and are later in time or farther 

removed in distance, but are still reasonably foreseeable. Indirect effects may 

include growth-inducing effects and other effects related to induced changes in the 

pattern of land use, population density or growth rate, and related effects on air and 

water and other natural systems, including ecosystems.
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• Cumulative effects, which result from past, present, and reasonably foreseeable 

future actions that, collectively, become significant over time.

Effects and impacts as used in these regulations are synonymous. Effects includes ecological 

(such as the effects on natural resources and on the components, structures, and functioning of 

affected ecosystems), aesthetic, historic, cultural, economic, social, or health, whether direct, 

indirect, or cumulative. Effects may also include those resulting from actions that may have both 

beneficial and detrimental effects, even if on balance the agency believes that the effect will be 

beneficial (40 CFR 1508.8).

Endangered Species: Any species of plant or animal defined through the Endangered Species 

Act of 1973 as being in danger of extinction throughout all or a significant portion of its range 

and published in the Federal Register.

Endangered Species Act (ESA): Through federal action and by encouraging the establishment 

of state programs, the Endangered Species Act of 1973 provided for the conservation of 

ecosystems upon which threatened and endangered species of fish, wildlife, and plants depend. 

The act authorizes the determination and listing of species as endangered and threatened; 

prohibits unauthorized taking, possession, sale, and transport of endangered species; provides 

authority to acquire land for the conservation of listed species, using land and water 

conservation funds; authorizes establishment of cooperative agreements and grants-in-aid to 

states that establish and maintain active and adequate programs for endangered and 

threatened wildlife and plants; authorizes the assessment of civil and criminal penalties for 

violating the act or regulations; and authorizes the payment of rewards to anyone furnishing 

information leading to arrest and conviction for any violation of the act or any regulation issued 

thereunder. 

Section 7 of the Endangered Species Act of 1973 requires federal agencies to ensure that any 

action authorized, funded, or carried out by them is not likely to jeopardize the continued 

existence of listed species or modify their critical habitat. 

Environmental Action Statement (EAS): The decision document for an environmental 

assessment for the U.S. Fish and Wildlife Service. The EAS will consist of a one-page 

document indicating the proposal, the Service decision, references to supporting documents (if 

any), and a signature block. The purposes of the EAS are to establish a process for internal 

review of National Environmental Policy Act-related decision documents and to provide an 

appropriate administrative record of NEPA-related decisions at all management levels of the 

Service (FWS, 550 FW 3.3 (C)).

Environmental Analysis: The process associated with preparing documents such as 

environmental assessments and environmental impact statements and the decision whether to 

prepare an environmental impact statement. It is an analysis of alternative actions and their 

predictable short-term and long-term effects, which include physical, biological, economic, and 

social factors and their interactions.

Environmental Assessment (EA): A systematic analysis to determine if proposed actions 

would result in a significant effect on the quality of the environment.

Environmental Consequences: The scientific and analytic basis for the comparison of 

alternatives. The environmental impacts of the alternatives including the proposed action, any 
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Iowa WMD / Final Comprehensive Conservation Plan

147

adverse environmental effects that cannot be avoided should the proposal be implemented, the 

relationship between short-term uses of man’s environment and the maintenance and 

enhancement of long-term productivity, and any irreversible and irretrievable commitments of 

resources that would be involved in the proposal should it be implemented (40 CFR 1502.16). 

Environmental Health: Abiotic composition, structure, and functioning of the environment 

consistent with natural conditions, including the natural abiotic processes that shape the 

environment (FWS, 602 FW 1.6(I)).

Environmental Impact Statement (EIS): A detailed written statement, required by section 

102(2)(C) of the National Environmental Policy Act of 1969, analyzing the environmental 

impacts of a proposed action, adverse effects of the project that cannot be avoided, alternative 

courses of action, short-term uses of the environment versus the maintenance and 

enhancement of long-term productivity, and any irreversible and irretrievable commitment of 

resources (40 CFR 1508.11).

Environmental Justice: The fair treatment and meaningful involvement of all people in the 

development, implementation, and enforcement of environmental laws regardless of race, color, 

national origin, or income.

Extirpation: The local extinction of a species that is no longer found in a locality or country but 

exists elsewhere in the world.

Finding of No Significant Impact (FONSI): A document prepared in compliance with the 

National Environmental Policy Act of 1969 and supported by an environmental assessment that 

briefly presents why a federal action will have no significant effects on the human environment 

and for which an Environmental Impact Statement will not be prepared (40 CFR 1508.13).

Global Warming: Global warming is an average increase in the temperature of the atmosphere 

near the Earth's surface and in the troposphere, which can contribute to changes in global 

climate patterns. Global warming can occur from a variety of causes, both natural and human 

induced. In common usage, "global warming" often refers to the warming that can occur as a 

result of increased emissions of greenhouse gases from human activities.

Goal: A descriptive, open-ended, and often broad statement of desired future conditions that 

conveys purposes but does not define measurable units (FWS, 602 FW 1.6(J)).

Greenhouse Gas (GHG): Any gas that absorbs infrared radiation in the atmosphere. 

Greenhouse gases include, but are not limited to, water vapor, carbon dioxide (CO2), methane 

(CH4), nitrous oxide (N2O), chlorofluorocarbons (CFCs), hydrochlorofluorocarbons (HCFCs), 

ozone (O3), hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur hexafluoride 

(SF6).

Habitat: The physical and biological resources required by an organism for its survival and 

reproduction; these requirements are species-specific. Food and cover are major components 

of habitat and must extend beyond the requirements of the individual to include a sufficient area 

capable of supporting a viable population.

Incompatible: Any use (recreational or nonrecreational) of a refuge that, in the sound 

professional judgment of the Director of the U.S. Fish and Wildlife Service, will materially 
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interfere with or detract from the fulfillment of the mission of the National Wildlife Refuge System 

or the purposes of the refuge. Incompatible uses are not allowed to occur on Service areas.

Indicator: In effects analysis, a way for measuring effects from management alternatives on a 

particular resource or issue.

Interjurisdictional Fish: Fish that occur in waters under the jurisdiction of one or more states, 

for which there is an interstate fishery management plan or which migrates between the waters 

under the jurisdiction of two or more states bordering on the Great Lakes.

Invasive Species: Invasive species are organisms that are introduced into a non-native 

ecosystem and that cause, or are likely to cause, harm to the economy, environment, or human 

health.

Inventory: Accepted biological methods to determine the presence, relative abundance, and/or 

distribution of species (FWS, 701 FW 2.6(A)).

Issue: Any unsettled matter that requires a management decision—that is, a U.S. Fish and 

Wildlife Service initiative, opportunity, resource management problem, a threat to the resources 

of the unit, conflict in uses, public concern, or the presence of an undesirable resource condition 

(FWS, 602 FW 1.6(K)).

Landscape Conservation Cooperative (LCC): A national network of public-private 

partnerships that provide shared science to ensure the sustainability of America’s land, water, 

wildlife, and cultural resources.

Landscape Conservation Design (LCD): A partnership-driven activity that results in an 

assessment of current and anticipated future resource patterns and processes, and a spatially 

explicit depiction of a desired future condition. These products guide partners’ identification of 

broad management, restoration, and protection strategies that could be implemented on the 

ground to address identified resource concerns, attain desired future conditions, sustain 

ecosystem function, and achieve the missions, mandates, and goals of partner agencies, 

organizations, and tribes.

Major Federal Action: Includes action with effects that may be major and that are potentially 

subject to federal control and responsibility. “Major” reinforces but does not have a meaning 

independent of significantly. “Actions” include new and continuing activities. Federal actions 

include adoption of official policy, formal plans, programs, and approval of specific projects (40

CFR 1508.18).

Memorandum of Understanding or Agreement (MOU or MOA): A legal document outlining 

the terms and details of an agreement between parties (often U.S. Fish and Wildlife Service and 

a state natural resource agency), including each party’s requirements and responsibilities. It 

sets forth the basic principles and guidelines under which the parties will work together to 

accomplish their goals. A memorandum of understanding or agreement are generally 

recognized as binding, even if no legal claim could be based on the rights and obligations laid 

down in them. 

Migratory Birds: Birds that follow a seasonal movement from their breeding grounds to their 

wintering grounds. Waterfowl, shorebirds, raptors, and songbirds are all migratory birds.
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Monitoring: Accepted biological methods to determine the status and/or demographics of 

species over time (FWS, 701 FW 2.6(B)). 

National Environmental Policy Act of 1969 (NEPA): This act, promulgated in 1969, requires 

all federal agencies to disclose the environmental effects of their actions, incorporate 

environmental information, and use public participation in the planning and implementation of all 

actions. Federal agencies must integrate NEPA with other planning requirements and must 

prepare appropriate NEPA documents to facilitate better environmental decision making (40 

CFR 1500). The law also established the Council on Environmental Quality to implement the 

law and to monitor compliance with the law.

National Wilderness Preservation System: A network of federally owned areas designated by 

Congress as wilderness and managed by one of four federal agencies: the U.S. Fish and 

Wildlife Service, Bureau of Land Management, National Park Service, or the U.S. Forest 

Service. Includes over 600 areas and more than 105 million acres. The National Wildlife 

Refuge System includes over 20 million acres of wilderness in more than 60 refuges (FWS, 610 

FW 1.9).

National Wildlife Refuge (NWR, refuge): A designated area of land, water, or an interest in 

land or water within the National Wildlife Refuge System, but does not include Coordination 

Areas. A complete listing of all units of the Refuge System is located in the current Report of 

Lands Under Control of the U.S. Fish and Wildlife Service (FWS, 602 FW 1.6(L)).

National Wildlife Refuge System (NWRS, Refuge System): All lands, waters, and interests 

therein administered by the U.S. Fish and Wildlife Service as wildlife refuges, wildlife ranges, 

wildlife management areas, waterfowl production areas, and other areas for the protection and 

conservation of fish, wildlife, and plant resources.

National Wildlife Refuge System Improvement Act of 1997 (improvement act): Sets the 

mission and administrative policy for all refuges in the National Wildlife Refuge System. Clearly 

defines a unifying mission for the Refuge System; establishes the legitimacy and 

appropriateness of the six priority public uses (hunting, fishing, wildlife observation and 

photography, and environmental education and interpretation); establishes a formal process for 

determining compatibility; establishes the responsibilities of the Secretary of the Interior for 

managing and protecting the Refuge System; and requires a Comprehensive Conservation Plan 

for each refuge by the year 2012. This act amended portions of the Refuge Recreation Act and 

National Wildlife Refuge System Administration Act of 1966.

Native Species: A species, subspecies, or distinct population that occurs within its natural 

range or natural zone of potential dispersal (i.e., the geographic area the species occupies 

naturally or would occupy in the absence of direct or indirect human activity or an environmental 

catastrophe). 

No Action Alternative: In the context of a Comprehensive Conservation Plan, this refers to the 

current management direction. With this alternative, no change from the current CCP would be 

implemented.

Non-consumptive Uses: Recreational activities (e.g., hiking, photography, and wildlife 

observation) that do not involve the taking or catching of fish, wildlife, or other natural resources.
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Non-native Species: A species, subspecies, or distinct population that has been introduced by 

humans (intentionally or unintentionally) outside its natural range or natural zone of potential 

dispersal.

Objective: A concise statement of what we want to achieve, how much we want to achieve, 

when and where we want to achieve it, and who is responsible for the work. Objectives derive 

from goals and provide the basis for determining strategies, monitoring refuge 

accomplishments, and evaluating the success of strategies. Objectives are to be attainable, 

time-specific, and measurable (FWS, 602 FW 1.6(N)).

Ozone (O3): Ozone, the triatomic form of oxygen (O3), is a gaseous atmospheric constituent. In 

the troposphere, it is created both naturally and by photochemical reactions involving gases 

resulting from human activities (photochemical smog). In high concentrations, tropospheric 

ozone can be harmful to a wide range of living organisms. Tropospheric ozone acts as a 

greenhouse gas. In the stratosphere, ozone is created by the interaction between solar 

ultraviolet radiation and molecular oxygen (O2). Stratospheric ozone plays a decisive role in the 

stratospheric radiative balance. Depletion of stratospheric ozone, due to chemical reactions that 

may be enhanced by climate change, results in an increased ground-level flux of ultraviolet (UV) 

B radiation. 

Planning Area: The area upon which the planning effort will focus. A planning area may include 

lands outside existing planning unit boundaries currently studied for inclusion in the National 

Wildlife Refuge System and/or partnership planning efforts. It also may include watersheds or 

ecosystems outside of our jurisdiction that affect the planning unit. At a minimum, the planning 

area includes all lands within the authorized boundary of the refuge (FWS, 602 FW 1.6(O)).

Planning Team: A planning team is interdisciplinary in membership and function. A team 

generally consist of a planning team leader, refuge manager, staff biologists, a state natural 

resource agency representative, and other appropriate program specialists (e.g., social 

scientist, ecologist, recreation specialist). Other federal and tribal natural resource agencies 

may also be asked to provide team members, as appropriate. The planning team prepares the 

Comprehensive Conservation Plan and appropriate National Environmental Policy Act of 1969 

documentation (FWS, 602 FW 1.6(P)).

Prescribed Burning: Controlled application of fire to the landscape that allows the fire to be 

confined to a predetermined area while producing the intensity of heat and rate of spread 

required to achieve planned management objectives.

Preferred Alternative: A proposed action in the National Environmental Policy Act of 1969 

document for the Comprehensive Conservation Plan identifying the alternative that the U.S.

Fish and Wildlife Service believes best achieves planning unit purposes, vision, and goals; 

helps fulfill the National Wildlife Refuge System mission; maintains and, where appropriate, 

restores the ecological integrity of each refuge and the Refuge System; addresses the 

significant issues and mandates; and is consistent with principles of sound fish and wildlife 

management.

Priority Public Uses: Six uses authorized by the National Wildlife Refuge System Improvement 

Act of 1997 to have priority and are found to be compatible with the refuge purposes. This 

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

and interpretation.
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Proposed Action: In the context of a Comprehensive Conservation Plan, this is the same as 

the Preferred Alternative.

Public Involvement: A process that offers affected and interested individuals and organizations 

opportunities to become informed about, and to express their opinions on, U.S. Fish and Wildlife 

Service actions and policies. In the process, these public views are studied thoroughly and are 

thoughtfully considered in shaping decisions for refuge management.

Purposes of the Refuge: The purposes specified in or derived from the law, proclamation, 

executive order, agreement, public land order, donation document, or administrative 

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

For refuges that encompass congressionally designated wilderness, the purposes of the 

Wilderness Act are additional purposes of the refuge (FWS, 602 FW 1.6(S)).

Record of Decision (ROD): A concise public record of a decision prepared by the federal 

agency, pursuant to National Environmental Policy Act of 1969, that contains a statement of the 

decision, identification of all alternatives considered, identification of the environmentally 

preferable alternative, a statement whether all practical means to avoid or minimize 

environmental harm from the alternative selected have been adopted (and if not, why they were 

not), and a summary of monitoring and enforcement where applicable for any mitigation (40 

CFR 1505.2). 

Resident Species: A nonmigratory species inhabiting a given locality throughout the year. 

Examples include white-tailed deer, muskrat, raccoon, mink, and fox.

Scoping: A process for determining the scope of issues to be addressed by a Comprehensive 

Conservation Plan and for identifying the significant issues. Involved in the scoping process are 

federal, state, and local agencies; private organizations; and individuals.

Shorebird: Long-legged birds, also known as waders, belonging to the order Charadriiformes 

that use shallow wetlands and mud flats for foraging and nesting. 

Significant Issue: A significant issue is typically: within Service jurisdiction, suggests different 

actions or alternatives, and will influence the decision (FWS, 602 FW 3.4 (3)(b)). 

Species: A distinctive kind of plant or animal having distinguishable characteristics, and that 

can interbreed and produce young. A category of biological classification.

Sound Professional Judgment: A finding, determination, or decision that is consistent with 

principles of sound fish and wildlife management and administration, available science and 

resources, and adherence to the requirements of the National Wildlife Refuge System 

Administration Act of 1966 and other applicable laws. 

Stakeholder: A person or group who has an interest in activities within the Planning Area.

Step-down Management Plan: A plan that provides specific guidance on management 

subjects (e.g., habitat, public use, fire, safety) or groups of related subjects. It describes 

strategies and implementation schedules for meeting Comprehensive Conservation Plan goals 

and objectives (FWS, 602 FW 1.6(U)).
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Strategic Habitat Conservation (SHC): A structured, science-driven approach for making 

efficient, transparent decisions about where and how to expend Service resources for species, 

or groups of species, that are limited by the amount or quality of habitat. It is an adaptive 

management framework integrating planning, design, delivery, and evaluation.

Strategy: A specific action, tool or technique, or combination of actions, tools, and techniques 

used to meet unit objectives (FWS, 602 FW 1.6(V)).

Surrogate Species: Species that are used to represent other species or aspects of the 

environment.

Threatened Species: Those plant or animal species likely to become endangered species 

throughout all of or a significant portion of their range within the foreseeable future. A plant or 

animal identified and defined in accordance with the Endangered Species Act of 1973 and 

published in the Federal Register.

Vision Statement: A concise statement of what the planning unit should be or hope to do, 

based primarily upon the National Wildlife Refuge System mission, specific refuge purposes, 

and other mandates. The vision statement for the refuge should be tied to the mission of the

Refuge System; the purpose(s) of the refuge; the maintenance or restoration of the ecological 

integrity of each refuge and the Refuge System; and other mandates (FWS, 602 FW 1.6(Z)).

Waterfowl: A group of birds that include ducks, geese, and swans (belonging to the order 

Anseriformes). 

Waterfowl Production Area (WPA): Prairie wetlands with associated uplands managed to 

provide nesting areas for waterfowl and owned in fee title by the U.S. Fish and Wildlife Service. 

These lands are purchased from willing sellers with funds from federal Duck Stamp sales. They 

are open to public hunting, fishing, and trapping according to state and federal regulations.

Watershed: The entire land area that collects and drains water into a river/stream or 

river/stream system.

Wetland: A wetland is land transitional between terrestrial and aquatic systems where the water 

table is usually at or near the surface or the land is covered by shallow water. For the purposes 

of this classification a wetland must have one or more of the following three attributes: (1) at 

least periodically, the land supports predominantly hydrophytes; (2) the substrate is 

predominantly undrained hydric soil; and (3) the substrate is nonsoil and is saturated with water 

or covered by shallow water at some time during the growing season of each year (Cowardin et 

al. 1979).

Wetland Management District (WMD, district): An area covering several counties that 

acquires (with federal Duck Stamp funds), restores, and manages prairie wetland habitat critical 

to waterfowl and other wetland birds. 

Wildlife-Dependent Recreational Use: A use of a refuge involving hunting, fishing, wildlife 

observation and photography, or environmental education and interpretation. These are the six 

priority public uses of the National Wildlife Refuge System as established in the National Wildlife 

Refuge System Administration Act of 1966, as amended. Wildlife-dependent recreational uses, 

other than the six priority public uses, are those that depend on the presence of wildlife. These
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other uses will also be considered in the preparation of refuge Comprehensive Conservation 

Plans; however, the six priority public uses always will take precedence (FWS, 602 FW 1.6(Y)).

Wildlife Diversity: A measure of the number of wildlife species in an area and their relative 

abundance.

Water Birds: This general category includes all birds that inhabit lakes, marshes, streams and 

other wetlands at some point during the year. The group includes all waterfowl such as ducks, 

geese, and swans and other birds such as loons, rails, cranes, herons, egrets, ibis, cormorants, 

pelicans, shorebirds, and passerines that nest and rely on wetland vegetation. 
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Appendix C: Legal and Policy Guidance

Administrative Procedures Act of 1946

Outlines administrative procedures to be followed by federal agencies with respect to 

identification of information to be made public; publication of material in the Federal Register; 

maintenance of records; attendance and notification requirements for specific meetings and 

hearings; issuance of licenses; and review of agency actions. 

American Indian Religious Freedom Act of 1978 

Establishes as policy of the United States the protection and preservation for American Indians 

of their inherent right to freedom to believe, express, and practice their traditional religions. The 

act directs federal agencies to evaluate their policies and procedures, in consultation with native 

traditional religious leaders, in order to determine changes required to protect and preserve 

Native American religious cultural rights and practices. 

Americans with Disabilities Act of 1990, as amended by the ADA Amendments Act of 

2008

Prohibits discrimination of individuals based on disability. It requires that public transportation 

services be accessible to individuals with disabilities and prohibits discrimination in employment 

of qualified individuals with disabilities. It requires the Equal Employment Opportunity 

Commission to issue regulations relating to discrimination of disabled individuals, and requires 

the National Council on Disability to conduct a study of areas designated as wilderness to 

determine the effect of the designation on the ability of individuals to enjoy such areas. The ADA 

Amendments Act of 2008 restored the intent and protections of the original act.

Antiquities Act of 1906

Authorizes the president to designate as National Monuments objects or areas of historic or 

scientific interest on lands owned or controlled by the United States. The act requires that a 

permit be obtained for examination of ruins, excavation of archaeological sites, and the 

gathering of objects of antiquity on lands under the jurisdiction of the Secretaries of Interior, 

Agriculture, and Army; and provides penalties for violations.

Archaeological Resources Protection Act of 1979 

Largely supplanted the resource protection provisions of the Antiquities Act for archaeological 

items. This act established detailed requirements for issuance of permits for any excavation for 

or removal of archaeological resources from federal or Indian lands. It also established civil and 

criminal penalties for the unauthorized excavation, removal, or damage of any such resources; 

for any trafficking in such resources removed from federal or Indian land in violation of any 

provision of federal law; and for interstate and foreign commerce in such resources acquired, 

transported or received in violation of any state or local law. This act also required the land 

managing agencies to establish public awareness programs regarding the value of 

archaeological resources to the Nation. 

Archeological and Historic Preservation Act of 1960, as amended

This act carries out the policy established by the Historic Sites, Buildings and Antiquities Act of 

1935 (known as the Historic Sites Act). It directs federal agencies to notify the Secretary of the 

Interior whenever they find a federal or federally assisted, licensed, or permitted project may 

cause loss or destruction of significant scientific, prehistoric, or archaeological data. The act 

authorizes use of appropriated, donated, and/or transferred funds for the recovery, protection, 

and preservation of such data. 
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Archeological and Historic Preservation Act of 1974

Directs the preservation of historic and archaeological data in federal construction projects.

Architectural Barriers Act of 1969 

Ensures that certain buildings financed or leased by federal agencies are constructed (or 

renovated) so that they will be accessible to the physically handicapped.

Bald and Golden Eagle Protection Act of 1940, as amended 

Prohibits the possession, sale, or transport of any bald or golden eagle, alive or dead, or part, 

nest, or egg except as permitted by the Secretary of the Interior for scientific or exhibition 

purposes or for the religious purposes of Indians.

Bankhead-Jones Farm Tenant Act of 1937

Directs the Secretary of Agriculture to develop a program of land conservation and utilization in 

order to correct maladjustments in land use and thus assist in such things as control of soil 

erosion, reforestation, preservation of natural resources, and protection of fish and wildlife. 

Some early refuges and hatcheries were established under authority of this act.

Clean Air Act of 1970 

Regulates air emissions from area, stationary, and mobile sources. The act and its amendments 

charge federal land managers with direct responsibility to protect the “air quality and related 

values” of land under their control. These values include fish, wildlife, and their habitats.

Emergency Wetlands Resources Act of 1986

Authorized the purchase of wetlands from Land and Water Conservation Fund moneys, 

removing a prior prohibition on such acquisitions. Requires the Secretary of the Interior to 

establish a National Wetlands Priority Conservation Plan, requires the states to include 

wetlands in their comprehensive outdoor recreation plans, and transfers to the Migratory Bird 

Conservation Fund amounts equal to import duties on arms and ammunition. It established 

entrance fees at national wildlife refuges. It also extended the Wetlands Loan Act authorization 

through 1988 and required the Secretary to report to Congress on wetlands loss. 

In addition, it directed the Secretary, through the U.S. Fish and Wildlife Service, to continue the 

National Wetlands Inventory; to complete mapping of the contiguous United States; and to 

produce at ten-year intervals reports to update and improve in the September 1982 "Status and 

Trends of Wetlands and Deepwater Habitat in the Coterminous United States, 1950s to 1970s." 

This act also increased the price of Duck Stamps.

Endangered Species Act of 1973, as amended 

Directs federal agencies to take actions that would further the purposes of the act and to ensure 

that actions they carry out, authorize, or fund do not jeopardize endangered species or their 

critical habitat. The act also provides authority for land acquisition. Conservation of threatened 

and endangered species has become a major objective of both land acquisition and refuge 

management programs. 

Endangered Species Conservation Act of 1969

This act expanded the provisions of the Endangered Species Preservation Act of 1966 to 

include the listing of species in danger world-wide and added mollusks and crustaceans to the 

animals that could be listed.
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Endangered Species Preservation Act of 1966

This act was the predecessor to the Endangered Species Act of 1973 and directed the 

Secretary of the Interior to produce a list of native U.S. vertebrate species in danger of 

extinction for the limited protection of those animals. 

Environmental Education Act of 1990

Established the Office of Environmental Education within the Environmental Protection Agency 

to develop and administer a federal environmental education program in consultation with other 

federal natural resource management agencies, including the U.S. Fish and Wildlife Service.

Executive Order 11593: Protection and Enhancement of the Cultural Environment (1971)

States that if the U.S. Fish and Wildlife Service proposes any development activities that may 

affect the archaeological or historic sites, the Service will consult with federal and state Historic 

Preservation Officers to comply with section 106 of the National Historic Preservation Act of 

1966, as amended.

Executive Order 11644: Use of Off-road Vehicles on the Public Lands (1972)

Established policies and procedures to ensure that the use of off-road vehicles on public lands 

will be controlled and directed to protect the resources of those lands, to promote the safety of 

all users of those lands, and minimize conflicts among the various uses of those lands. EO 

11989 (1977) amends section 2 of EO 11644 and directs agencies to close areas negatively 

impacted by off-road vehicles.

Executive Order 11988: Floodplain Management (1977)

Prevents federal agencies from contributing to the “adverse impacts associated with occupancy 

and modification of floodplains” and the “direct or indirect support of floodplain development.” In 

the course of fulfilling their respective authorities, federal agencies “shall take action to reduce 

the risk of flood loss, minimize the impact of floods on human safety, health, and welfare, and 

restore and preserve the natural and beneficial values served by floodplains.

Executive Order 11990: Protection of Wetlands (1977)

Directs federal agencies to: (1) minimize destruction, loss, or degradation of wetlands; and (2) 

preserve and enhance the natural and beneficial values of wetlands when a practical alternative 

exists.

Executive Order 12372: Intergovernmental Review of Federal Programs (1982)

Seeks to foster intergovernmental partnerships by requiring federal agencies to use the state 

process to determine and address concerns of state and local elected officials with proposed 

federal assistance and development programs.

Executive Order 12898: Federal Actions to Address Environmental Justice in Minority 

Populations and Low-Income Populations (1994)

Mandates that each federal agency shall make achieving environmental justice part of its 

mission by identifying and addressing disproportionately high and adverse human health or 

environmental effects of its programs, policies, and activities on minority populations and lowincome populations. This order also creates an Interagency Working Group on Environmental 

Justice to provide guidance to federal agencies in overcoming these issues. 

Executive Order 12906: Coordinating Geographical Data Acquisition and Access: The 

National Spatial Data Infrastructure (1994), as amended by Executive Order 13286:
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Amendment of Executive Orders, and Other Actions, in Connection With the Transfer of 

Certain Functions to the Secretary of Homeland Security (2003)

Recommended that the executive branch develop, in cooperation with state, local, and tribal 

governments, and the private sector, a coordinated National Spatial Data Infrastructure to 

support public and private sector applications of geospatial data. Of particular importance to 

Comprehensive Conservation Plans is the National Vegetation Classification System (NVCS), 

which is the adopted standard for vegetation mapping. Using NVCS facilitates the compilation of 

regional and national summaries, which, in turn, can provide an ecosystem context for individual 

refuges.

Executive Order 12962: Recreational Fisheries (1995)

Directs federal agencies to improve the quantity, function, sustainable productivity, and 

distribution of United States aquatic resources for increased recreational fishing opportunities in 

cooperation with states and tribes.

Executive Order 12996: Management and General Public Use of the National Wildlife 

Refuge System (1996)

Defines a conservation mission for the National Wildlife Refuge System, six compatible wildlifedependent recreational activities, and four guiding principles for management of the Refuge 

System. Directs the Secretary of the Interior to undertake several actions in support of 

management and public use and to ensure the maintenance of the biological integrity and 

environmental health of the Refuge System. It also provides for the identification of existing 

wildlife-dependent uses that will continue to occur as lands are added to the Refuge System.

Executive Order 13007: Indian Sacred Sites (1996)

Directs federal land management agencies to accommodate access to and ceremonial use of 

Indian sacred sites by Indian religious practitioners, avoid adversely affecting the physical 

integrity of such sacred sites, and where appropriate, maintain the confidentiality of sacred sites. 

Executive Order 13061: Federal Support of Community Efforts Along American Heritage 

Rivers (1997)

Established the American Heritage Rivers initiative for the purpose of natural resource and 

environmental protection, economic revitalization, and historic and cultural preservation. The act 

directs federal agencies to preserve, protect, and restore rivers and their associated resources 

important to our history, culture, and natural heritage.

Executive Order 13084: Consultation and Coordination With Indian Tribal Governments 

(2000)

Provides a mechanism for establishing regular and meaningful consultation and collaboration 

with tribal officials in the development of federal policies that have tribal implications.

Executive Order 13112: Invasive Species (1999)

Directs federal agencies to prevent the introduction of invasive species, detect and respond 

rapidly to and control populations of such species in a cost effective and environmentally sound 

manner, accurately monitor invasive species, provide for restoration of native species and 

habitat conditions, conduct research to prevent introductions, to control invasive species, and to 

promote public education on invasive species and the means to address them. This EO 

replaces and rescinds EO 11987: Exotic Organisms (1977).
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Executive Order 13186: Responsibilities of Federal Agencies to Protect Migratory Birds 

(2001)

Instructs federal agencies to conserve migratory birds by several means, including the 

incorporation of strategies and recommendations found in Partners in Flight Bird Conservation 

plans, the North American Waterfowl Plan, the North American Waterbird Conservation Plan, 

and the United States Shorebird Conservation Plan, into agency management plans and 

guidance documents.

Executive Order 13443: Facilitation of Hunting Heritage and Wildlife Conservation (2007)

Directs federal agencies that have programs and activities that have a measurable effect on 

public land management, outdoor recreation, and wildlife management, including the 

Department of the Interior and the Department of Agriculture, to facilitate the expansion and 

enhancement of hunting opportunities and the management of game species and their habitat.

Farmland Protection Policy Act of 1981, as amended

Minimizes the extent to which federal programs contribute to the unnecessary conversion of 

farmland to nonagricultural uses. Federal programs include construction projects and the 

management of federal lands.

Federal Advisory Committee Act of 1972, as amended 

Governs the establishment of and procedures for committees that provide advice to the federal 

government. Advisory committees may be established only if they will serve a necessary, 

nonduplicative function. Committees must be strictly advisory unless otherwise specified and

meetings must be open to the public.

Federal-Aid Highways Act of 1968

Establishes requirements for approval of federal highways through wildlife refuges and other 

designated areas to preserve the natural beauty of such areas. The Secretary of Transportation 

is directed to consult with the Secretary of the Interior and other federal agencies before 

approving any program or project requiring the use of land under their jurisdiction.

Federal Aid in Sport Fish Restoration Act (Dingell-Johnson Act) of 1950

Authorizes the Secretary of the Interior to provide financial assistance for state fish restoration 

and management plans and projects. It is financed by excise taxes paid by manufacturers of 

rods, reels, and other fishing tackle. 

Federal Aid in Wildlife Restoration Act (Pittman-Robertson Act) of 1937

Taxes the purchase of ammunition and firearms and earmarks the proceeds to be distributed to 

the states for wildlife restoration. 

Federal Cave Resources Protection Act of 1988

Established requirements for the management and protection of caves and their resources on 

federal lands, including allowing the land managing agencies to withhold the location of caves 

from the public and requiring permits for any removal or collecting activities in caves on federal 

lands.

Federal Lands Recreation Enhancement Act (REA) of 2004

Allows the government to charge a fee for recreational use of public lands managed by the U.S. 

Fish and Wildlife Service and other agencies. The recreation fee program is a program by which 

fees paid by visitors to certain federal recreation sites are retained by the collecting site and 

used to improve the quality of the visitor experiences at those sites. 
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Federal Noxious Weed Act of 1975, as amended

The Secretary of Agriculture was given the authority to designate plants as noxious weeds and 

to cooperate with other federal, state, and local agencies; farmers associations, and private 

individuals in measures to control, eradicate, prevent, or retard the spread of such weeds. The 

act requires each federal land-managing agency, including the U.S. Fish and Wildlife Service, to 

designate an office or person to coordinate a program to control such plants on the agency’s 

land and implement cooperative agreements with the states, including integrated management 

systems to control undesirable plants.

Federal Records Act of 1950

Directs the preservation of evidence of the government's organization, functions, policies, 

decisions, operations, and activities, as well as basic historical and other information.

Federal Water Pollution Control Act of 1948, as frequently amended particularly by the 

Clean Water Act of 1977 

This act and its amendments have as their objectives the restoration and maintenance of the 

chemical, physical, and biological integrity of the Nation’s waters and, therefore, regulates the 

discharge of pollutants into waters of the United States. The act protects fish and wildlife, 

establishes operation permits for all major sources of water pollution, limits the discharge of 

pollutants or toxins into water, and makes it unlawful for any person to discharge any pollutant 

from a point source into navigable waters unless a permit is obtained under the Clean Water 

Act. Section 404 charges the U.S. Army Corps of Engineers with regulating discharge of dredge 

or fill materials into waters of the United States, including wetlands. The "Clean Water Act" 

became the common name with amendments in 1977.

Federal Water Project Recreation Act of 1965, as amended

Declares the intent of Congress that recreation and fish and wildlife enhancement be given full 

consideration as purposes of federal water development projects. The act also authorizes the 

use of federal water project funds for land acquisition in order to establish refuges for migratory 

waterfowl when recommended by the Secretary of the Interior, and authorizes the Secretary to 

provide facilities for outdoor recreation and fish and wildlife at all reservoirs under his control, 

except those within national wildlife refuges. 

Fish and Wildlife Act of 1956, as frequently amended 

Establishes a comprehensive national fish, shellfish, and wildlife resources policy with emphasis 

on the commercial fishing industry but also with a direction to administer the act with regard to 

the inherent right of every citizen and resident to fish for pleasure, enjoyment, and betterment 

and to maintain and increase public opportunities for recreational use of fish and wildlife 

resources. The 1998 amendments to the act modified the powers of the Secretary of the Interior 

in regard to volunteer service, community partnerships, and education programs. 

Fish and Wildlife Conservation Act of 1980, as amended

Requires the Service to monitor non-gamebird species, identify species of management 

concern, and implement conservation measures to preclude the need for listing under the 

Endangered Species Act of 1973.

Fish and Wildlife Coordination Act of 1934

Promotes equal consideration and coordination of wildlife conservation with other water 

resource development programs by requiring consultation with the U.S. Fish and Wildlife 

Service and the state fish and wildlife agencies where the “waters of a stream or other body of 
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water are proposed or authorized, permitted or licensed to be impounded, diverted . . . or 

otherwise controlled or modified” by any agency under federal permit or license. This act also 

authorized use of surplus federal property for wildlife conservation purposes and authorized the 

Secretary of the Interior to provide public fishing areas and accept donations of lands and funds. 

Fish and Wildlife Improvement Act of 1978 

Improves the administration of fish and wildlife programs and amends several earlier laws 

including the Refuge Recreation Act, the National Wildlife Refuge System Administration Act of 

1966, and the Fish and Wildlife Act of 1956. It authorizes the Secretary of the Interior to accept 

gifts and bequests of real and personal property on behalf of the United States. It also 

authorizes the use of volunteers on Service projects and appropriations to carry out a volunteer 

program.

Food Security Act of 1985 (Farm Bill), as amended

Known as the Farm Bill, this act contains several provisions that contribute to wetland 

conservation. The Swampbuster provisions state that farmers who convert wetlands for the 

purpose of planting after enactment of the law are ineligible for most farm program subsidies. 

The act also established the Wetlands Reserve Program to restore and protect wetlands 

through easements and restoration of the functions and values of wetlands on such easement 

areas.

Freedom of Information Act of 1966

Requires all federal agencies to make available to the public for inspection and copying 

administrative staff manuals and staff instructions; official, published and unpublished policy 

statements; final orders deciding case adjudication; and other documents. Special exemptions 

have been reserved for nine categories of privileged material. The act requires the party seeking 

the information to pay reasonable search and duplication costs.

Geothermal Steam Act of 1970, as amended 

Authorizes and governs the lease of geothermal steam and related resources on public lands. 

Section 15(c) of the act prohibits issuing geothermal leases on virtually all U.S. Fish and Wildlife 

Service-administered lands.

Historic Sites, Buildings and Antiquities Act of 1935 

Popularly known as the Historic Sites Act, as amended in 1965, declared it a national policy to 

preserve historic sites and objects of national significance, including those located on refuges. It 

provided procedures for designation, acquisition, administration, and protection of such sites. 

Among other things, National Historic and Natural Landmarks are designated under authority of 

this act. 

Lacey Act of 1900, as amended

Originally designed to help states protect their native game animals and to safeguard U.S. crop 

production from harmful foreign species. The act prohibits interstate and international transport 

and commerce of fish, wildlife, or plants taken in violation of domestic or foreign laws. It 

regulates the introduction to the United States of foreign species into new locations.

Land and Water Conservation Fund Act of 1965

Provides funding through receipts from the sale of surplus federal land, appropriations from oil 

and gas receipts from the outer continental shelf, and other sources for land acquisition under 

several authorities. Appropriations from the fund may be used for matching grants to states for 
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outdoor recreation projects and for land acquisition by various federal agencies including the 

Fish and Wildlife Service.

Migratory Bird Conservation Act of 1929

Establishes a Migratory Bird Conservation Commission to approve areas recommended by the 

Secretary of the Interior for acquisition with Migratory Bird Conservation Funds. Authorizes the 

Secretary of the Interior to cooperate with local authorities in wildlife conservation and to 

conduct investigations, to publish documents related to North American birds, and to maintain 

and develop refuges. The act provides for cooperation with states in enforcement. It establishes 

procedures for acquisition by purchase, rental, or gift of areas approved by the Commission for 

migratory birds. This act includes acquisition authority for purchase or rental of a partial interest 

in land or waters and requires the Secretary of the Interior to consult with the appropriate units 

of local government and with the governor of the state concerned, or the appropriate state 

agency, before recommending an area for purchase or rental. This provision was subsequently 

amended in 1983, 1984, and 1986 to require that either the governor or the state agency 

approve each proposed acquisition. The role of the Commission was expanded by the North 

American Wetland Conservation Act to include approving wetlands acquisition, restoration, and 

enhancement proposals recommended by the North American Wetlands Conservation Council.

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp Act) of 1934

Known as the Duck Stamp Act, this act requires every waterfowl hunter 16 years of age or older 

to carry a stamp, and earmarks proceeds of Duck Stamps to buy or lease waterfowl habitat. A 

1958 amendment authorizes the acquisition of small wetland and pothole areas to be 

designated as “Waterfowl Production Areas,” which may be acquired without the limitations and 

requirements of the Migratory Bird Conservation Act.

Migratory Bird Treaty Act of 1918 

Implements various treaties and conventions between the United States and Canada, Japan, 

Mexico, and the former Soviet Union for the protection of migratory birds. Except as allowed by 

special regulations, the act makes it unlawful to pursue, hunt, kill, capture, possess, buy, sell, 

purchase, barter, export, or import any migratory bird, part, nest, egg, or product. 

Mineral Leasing Act for Acquired Lands of 1947, as amended

Authorizes and governs mineral leasing on acquired public lands.

Minerals Leasing Act of 1920, as amended

Authorizes and governs leasing of public lands for development of deposits of coal, oil, gas, and 

other hydrocarbons, sulphur, phosphate, potassium, and sodium. Section 185 of this act 

contains provisions relating to granting rights-of-way over federal lands for pipelines.

Mining Act of 1872, as amended

Authorizes and governs prospecting and mining for the so-called “hardrock” minerals (such as 

gold and silver) on public lands.

National and Community Service Act of 1990

Authorizes several programs to engage citizens of the United States in full and/or part-time 

projects designed to combat illiteracy and poverty, provide job skills, enhance educational skills, 

and fulfill environmental needs. Among other things, this law established the American 

Conservation and Youth Service Corps to engage young adults in approved human and natural 

resource projects, which will benefit the public or are carried out on federal or tribal lands.
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National Environmental Policy Act of 1969 (NEPA), as amended

This act and the implementing regulations developed by the Council on Environmental Quality 

(40 CFR 1500–1508) require federal agencies to integrate the National Environmental Policy 

Act of 1969 (NEPA) process with other planning at the earliest possible time to provide a 

systematic interdisciplinary approach to decision making; to identify and analyze the 

environmental effects of their actions; to describe appropriate alternatives to the proposed 

actions; and to involve the affected state and federal agencies, tribal governments, and public in 

the planning and decision making process. This act requires the disclosure of the 

environmental impacts of any major federal action significantly affecting the quality of the human 

environment.

National Historic Preservation Act of 1966

Repeatedly amended, the act provides for preservation of significant historical features 

(buildings, objects, and sites) through a grant-in-aid program to the states. It established a 

National Register of Historic Places and a program of matching grants under the existing 

National Trust for Historic Preservation (16 U.S.C. 468–468d). The act established an Advisory 

Council on Historic Preservation, which was made a permanent independent agency in 1976 

(90 Stat. 1319). That act also created the Historic Preservation Fund. Federal agencies are 

directed to take into account the effects of their actions on items or sites listed or eligible for 

listing in the National Register and afford the Advisory Council on Historic Preservation a 

reasonable opportunity to comment. Section 110 requires federal agencies to manage historic 

properties, e.g., to document historic properties prior to destruction or damage; section 101 

requires federal agencies consider Indian tribal values in historic preservation programs and 

requires each federal agency to establish a program leading to inventory of all historic 

properties on its land.

National Trails System Act of 1968

Established the National Trails System to protect the recreational, scenic, and historic values of 

some important trails. National Recreation Trails may be established by the Secretaries of the 

Interior or Agriculture on land wholly or partly within their jurisdiction, with the consent of the 

involved state(s) and other land managing agencies, if any. National scenic and national historic 

trails may only be designated by an act of Congress. Several national trails cross units of the 

National Wildlife Refuge System.

National Wildlife Refuge System Administration Act of 1966 (amended by the National 

Wildlife Refuge System Improvement Act of 1997)

This act consolidates the authorities relating to the various categories of lands for the 

conservation of fish and wildlife administered by the Secretary of the Interior through the U.S 

Fish and Wildlife Service by designating all such areas part of a single National Wildlife Refuge 

System. Areas include wildlife refuges, areas for the protection and conservation of fish and 

wildlife threatened with extinction, wildlife ranges, game ranges, wildlife management areas, 

and waterfowl production areas. The law also prohibits knowingly disturbing any area within the 

system or the take of Refuge System wildlife without a permit. The act addresses the growing 

need for recreational opportunities by providing a decision framework for allowing appropriate 

and compatible uses of the Refuge System. 

National Wildlife Refuge System Centennial Act of 2000

Establishes a commission to promote awareness by the public to develop a long-term plan to 

meet priority needs of the National Wildlife Refuge System, require an annual report on the 

needs, and improve public use programs and facilities. 
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National Wildlife Refuge System Improvement Act of 1997

This act, which amends the National Wildlife Refuge System Administration Act of 1966, serves 

as the "organic act" for the National Wildlife Refuge System. The act states first and foremost 

that the mission of the National Wildlife Refuge System is focused singularly on wildlife 

conservation. It establishes a unifying mission for the Refuge System, reinforces the importance 

of refuge purposes to guide management direction, articulates a process for determining 

compatible uses of refuges, identifies six priority wildlife-dependent recreation uses (hunting, 

fishing, wildlife observation and photography, and environmental education and interpretation), 

and adds a requirement for preparing comprehensive conservation plans through a public 

planning process. The act requires the Secretary of the Interior to maintain the biological 

integrity, diversity, and environmental health of the Refuge System. 

National Wildlife Refuge System Volunteer and Community Partnership Enhancement 

Act of 1998 

Amends the Fish and Wildlife Act of 1956 to encourage the use of volunteers to help in the 

management of refuges within the National Wildlife Refuge System; facilitates partnerships 

between the Refuge System and nonfederal entities to promote public awareness of the 

resources of the Refuge System and public participation in the conservation of the resources; 

and encourages donations and other contributions.

National Wildlife Refuge Volunteer Improvement Act of 2010 

Maintains the current funding authorization level for the U.S. Fish and Wildlife Service’s 

volunteer and community partnerships programs that are vital to national wildlife refuges but 

makes a number of important amendments. The law amends the National Wildlife Refuge 

Volunteer and Community Partnership Enhancement Act of 1998 to direct the Service to carry 

out a National Volunteer Coordination Program within the National Wildlife Refuge System. It 

also requires the Director of the Service to publish a national strategy for the coordination and 

utilization of volunteers within the Refuge System and provide at least one regional volunteer 

coordinator for each Service region to implement the strategy. 

Native American Graves Protection and Repatriation Act (NAGPRA) of 1990

Requires federal agencies and museums to inventory, determine ownership of, and repatriate 

cultural items under their control or possession. This act imposes serious delays on a project 

when human remains or other cultural items are encountered in the absence of a plan.

Neotropical Migratory Bird Conservation Act of 2000

Establishes a matching grants program to fund projects that promote the conservation of 

neotropical migratory birds in the United States, Latin America, and the Caribbean.

North American Wetlands Conservation Act of 1989

Provides funding and administrative direction for implementation of the North American 

Waterfowl Management Plan and the Tripartite Agreement on wetlands between the United 

States, Canada, and Mexico. North American Wetlands Conservation Council is created to 

recommend projects to be funded under the act to the Migratory Bird Conservation Commission. 

Available funds may be expended for up to 50 percent of the United States’ share cost of 

wetlands conservation projects in Canada, Mexico, or the United States (or 100 percent of the 

cost of projects on federal lands).

Partnerships for Wildlife Act of 1992

Established a Wildlife Conservation and Appreciation Fund to receive appropriated funds and 

donations from the National Fish and Wildlife Foundation and other private sources to assist the 
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state fish and game agencies in carrying out their responsibilities for conservation of non-game 

species. The funding formula is no more than 1/3 federal funds, at least 1/3 foundation funds, 

and at least 1/3 state funds. 

Refuge Recreation Act of 1962, as amended

Requires that any recreational use on areas of the National Wildlife Refuge System be 

"compatible" with the primary purpose(s) for which the area was acquired or established. This 

act also requires that sufficient funding be available for the development, operation and 

maintenance of recreational uses that are not directly related to the area's primary purpose(s). 

Refuge Revenue Sharing Act of 1935

Provides for payments to counties in lieu of taxes, using revenues derived from the sale of 

products from refuges. A major revision in 1964 requires all revenues received from refuge 

products be distributed to counties for public schools and roads (this stipulation later removed). 

Another revision in 1974 requires that any remaining funds be transferred to the Migratory Bird 

Conservation Fund for land acquisition. A 1978 amendment stated payments to counties were 

established as: 

• on acquired land, the greatest amount calculated on the basis of 75 cents per acre, 

three-fourths of one percent of the appraised value, or 25 percent of the net receipts 

produced from the land, and

• on land withdrawn from the public domain, 25 percent of net receipts and basic 

payments.

This amendment also required counties to pass payments along to other units of local 

government within the county that suffer losses in revenues due to the establishment of U.S. 

Fish and Wildlife Service areas.

Rehabilitation Act of 1973, as amended 

Prohibits discrimination on the basis of disability under any program or activity receiving federal 

financial assistance. 

Rivers and Harbors Appropriations Act of 1899, as amended

Requires the authorization by the Chief of Engineers prior to any work in, on, over, or under 

navigable waters of the United States. The Fish and Wildlife Coordination Act provides authority 

for the U.S. Fish and Wildlife Service to review and comment on the effects on fish and wildlife 

activities proposed to be undertaken or permitted by the COE. Service concerns include 

contaminated sediments associated with dredge or fill projects in navigable waters.

Secretarial Order 3289 Amendment 1: Addressing the Impacts of Climate Change on 

America’s Water, Land, and Other Natural and Cultural Resources (2010)

Secretarial Order 3285, issued in March 2009, made production and transmission of renewable 

energy on public lands a priority for the Department of the Interior. This Secretarial Order, 

3289A1, issued in February 2010 establishes a Department-wide approach for applying 

scientific tools to increase understanding of climate change and to coordinate an effective 

response to its impacts on tribes and on the land, water, ocean, fish and wildlife, and cultural 

resources that the Department manages.
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Sikes Act of 1960, as amended

Provides for the cooperation by the U.S. Departments of the Interior and Defense with state 

agencies in planning, development, and maintenance of fish and wildlife resources and outdoor 

recreation facilities on military reservations throughout the United States. It requires the 

Secretary of each military department to use trained professionals to manage the wildlife and 

fishery resource under his jurisdiction and requires federal and state fish and wildlife agencies 

be given priority in management of fish and wildlife activities on military reservations.

Surface Mining Control and Reclamation Act of 1977

Regulates surface mining activities and reclamation of coal-mined lands. Further regulates the 

coal industry by designating certain areas as unsuitable for coal mining operations.

Transfer of Certain Real Property for Wildlife Conservation Purposes Act of 1948

Provides that upon a determination by the Administrator of the General Services Administration, 

real property no longer needed by a federal agency can be transferred without reimbursement 

to the Secretary of the Interior if the land has particular value for migratory birds or to a state 

agency for other wildlife conservation purposes.

Transportation Equity Act for the 21st Century of 1998

Established the Refuge Roads Program, requires transportation planning that includes public 

involvement, and provides funding for approved public use roads and trails and associated 

parking lots, comfort stations, and bicycle/pedestrian facilities.

Treasury and General Government Appropriations Act of 2000

In December 2002, Congress required federal agencies to publish their own guidelines for 

ensuring and maximizing the quality, objectivity, utility, and integrity of information that they 

disseminate to the public (44 U.S.C. 3502). The amended language is included in section 

515(a). The Office of Budget and Management directed agencies to develop their own 

guidelines to address the requirements of the law. The Department of the Interior instructed 

bureaus to prepare separate guidelines on how they would apply the act. The U.S. Fish and 

Wildlife Service has developed “Information Quality Guidelines” to address the law.

Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970 

Provides for uniform and equitable treatment of persons who sell their homes, businesses, or 

farms to the U.S. Fish and Wildlife Service. The act requires that any purchase offer be no less 

than the fair market value of the property.

Water Resources Planning Act of 1965

Established the Water Resources Council to be composed of Cabinet representatives, including 

the Secretary of the Interior. The Council reviews river basin plans with respect to agricultural, 

urban, energy, industrial, recreational, and fish and wildlife needs. The act also established a 

grant program to assist states in participating in the development of related comprehensive 

water and land use plans.

Wild and Scenic Rivers Act of 1968

Established a National Wild and Scenic Rivers System and prescribes the methods and 

standards through which additional rivers may be identified and added to the system. Section 

5(d)(1) requires that in all planning by federal agencies for the use and development of water 

and related land resources, consideration be given to potential wild, scenic, and recreation 

rivers. Rivers are added to the national system based on their free-flowing character and their 

outstandingly remarkable scenic, recreation, geologic, fish and wildlife, historic, cultural, 
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ecological, or other values. Rivers in the system are managed to maintain and protect these 

outstandingly remarkable values for present and future generations. 

Wilderness Act of 1964

Defined the Wilderness resource and established the National Wilderness Preservation System. 

It directed the Secretary of the Interior, within 10 years, to review every roadless area of 5,000 

or more acres and every roadless island (regardless of size) within National Wildlife Refuge and 

National Park Systems and to recommend to the president the suitability of each such area or 

island for inclusion in the National Wilderness Preservation System, with final decisions made 

by Congress. The Secretary of Agriculture was directed to study and recommend suitable areas 

in the National Forest System. This act also prescribes the management of new inclusions as 

wilderness.

Youth Conservation Corps Act of 1970

Established a permanent Youth Conservation Corps program within the Departments of the 

Interior and Agriculture. Within the U.S. Fish and Wildlife Service, YCC participants perform 

many tasks on refuges, fish hatcheries, and research stations.
Appendix D: Literature Cited

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birds.” Pages 284-285 (abstract) In Agricultural Research to Protect Water Quality: Proceeding 

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140.
Appendix E: Appropriate Use Designations

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Appendix E: Appropriate Use Designations

Introduction

Iowa Wetland Management District (WMD, district) managers decide if a new or existing use is 

an appropriate district use. This appendix includes a list of the appropriate use designations for 

the Iowa WMD.

The U.S. Fish and Wildlife Service (FWS, Service) appropriate use policy (603 FW 1) explains 

the decision process the district manager follows when first considering whether or not to allow 

a proposed use on a district. The district manager must first find a use to be appropriate before 

undertaking a compatibility review of the use and outlining the stipulations of the use. 

The appropriate use policy clarifies and expands on the compatibility policy (603 FW 

2.10(D)(1)), which describes when the district manager should deny a proposed use without 

determining compatibility. If a proposed use is found “not appropriate,” the use will not be 

allowed and a compatibility determination will not be prepared. By screening out proposed uses 

not appropriate to the district, the district manager avoids unnecessary compatibility reviews. 

Although a use may be both appropriate and compatible, the district manager retains the 

authority to not allow the use or modify the use. 

This policy does not generally apply to proposed public use of wetland and grassland easement 

areas of the National Wildlife Refuge System (NWRS, Refuge System). The rights acquired on 

these areas generally do not extend to control over such public uses except where those uses 

would conflict with the conditions of the easement (603 FW 1.2(A)). The Service’s Midwest 

Region Easements Manual provides more direction on applying the appropriate use policy to 

easements (FWS, 2012c). 

Background for this policy as it applies to Iowa WMD is found in the following statutory 

authorities: 

• National Wildlife Refuge System Administration Act of 1966 (Administration Act), as 

amended by the National Wildlife Refuge System Improvement Act of 1997 

(Improvement Act) (16 U.S.C. § 668dd–668ee). This law provides the authority for 

establishing policies and regulations governing district uses, including the authority to 

prohibit certain harmful activities. The Administration Act does not authorize any

particular use, but rather authorizes the Secretary of the Interior to allow uses only 

when they are deemed compatible. The Improvement Act provides the Refuge 

System mission and includes specific directives and identifies six wildlife-dependent 

uses as priorities for the Refuge System. 

• Refuge Recreation Act of 1962, (16 U.S.C. § 460k). This law authorizes the 

Secretary of the Interior to allow public recreation in areas of the Refuge System 

when the use is an “appropriate incidental or secondary use.” 

District uses must meet at least one of the following four conditions to be deemed appropriate: 

1. It is a wildlife-dependent recreational use as identified in the Improvement Act.
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

176

2. It contributes to fulfilling the district purpose(s), the Refuge System mission, or goals or 

objectives described in a district management plan approved after the Improvement Act 

was signed into law.

3. The use involves the take of fish and wildlife under state regulations. 

4. The district has evaluated the use following the guidelines in this policy and found that it 

is appropriate. The criteria used by the manager to evaluate appropriateness can be 

found on the appropriate use forms completed for the district. 

Uses that have been administratively determined to be appropriate but still require compatibility 

determinations are: 

• six wildlife-dependent recreational uses as defined by the Improvement Act as 

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

interpretation; and

• take of fish and wildlife under state regulations including hunting, fishing, and 

trapping.

Also covered under this policy are “specialized uses,” or uses that require specific authorization 

from the Refuge System, often in the form of a special use permit, letter of authorization, or

other permit document. These uses do not include uses already granted by a prior existing right. 

Appropriateness findings for specialized uses are made on a case-by-case basis.

This policy does NOT apply to the following: 

• Situations where reserved rights or legal mandates provide certain uses must be 

allowed.

• District management activities conducted by the Refuge System or a Refuge 

System-authorized agent designed to conserve fish, wildlife, and plants and their 

habitats. These activities fulfill district purpose(s) or the Refuge System mission and 

are based on sound professional judgment. 

Appropriate use findings are made without public review and comment. However, if a proposed 

use is found to be appropriate, we must still determine that the use is compatible. The 

compatibility determination includes an opportunity for public involvement (603 FW 1.9(B)).

The following uses are deemed appropriate for the Iowa WMD:

• Bicycle Riding on Roads and Trails

• Commercial Firewood Cutting

• Commercial Hay Harvest

• Food Plot Cultivation for Wildlife

• Prescribed Commercial Livestock Grazing
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

177

The following uses are deemed not appropriate for the Iowa WMD:

• Dog Training

• Horseback Riding

• Off Road Vehicle Use: ATV, UTV, Dirt Bike, Motor Vehicle

• Overnight Camping

• Pheasant Stocking, Private

• Snowmobiling

• Target Shooting

Districts are national treasures for the conservation of wildlife. Through careful planning, 

consistent application of regulations and policies, diligent monitoring of the impacts of uses on 

wildlife resources, and preventing or eliminating uses not appropriate, the Refuge System 

conservation mission can be achieved while also providing the public with lasting opportunities 

to enjoy quality, compatible, wildlife-dependent recreation. 

The virtual or waypoint geocaching appropriate use form that was included in the Draft CCP is 

included under environmental education, which is administratively determined to be appropriate, 

and therefore needs no stand-alone appropriate use form. This change was made simply for 

consistency with other plans and refuges/districts. 
Appendix E: Appropriate Use Designations

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178

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Bicycle Riding on Roads and Trails

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate Appropriate x .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or other 

document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the use has 

been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent recreational 

uses or reducing the potential to provide quality (see section 1.6D, 603 FW 1, for 

description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

179

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Commercial Firewood Cutting

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate Appropriate x .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

180

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Commercial Hay Harvest

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate Appropriate x .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

181

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Dog Training

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

182

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Food Plot Cultivation for Wildlife

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate Appropriate x .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

183

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Horseback Riding

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

184

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Off Road Vehicle Use: ATV, UTV, Dirt Bike, Motor Vehicle

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

185

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Overnight Camping

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

186

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Prescribed Commercial Livestock Grazing

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate Appropriate x .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

187

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Pheasant Stocking, Private

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

188

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Snowmobiling

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix E: Appropriate Use Designations

Iowa WMD / Final Comprehensive Conservation Plan

189

FINDING OF APPROPRIATENESS OF A REFUGE USE

Refuge Name: Iowa Wetland Management District

Use: Target Shooting

This form is not required for wildlife-dependent recreational uses, forms of take regulated by the State, or uses 

already described in a refuge CCP or step-down management plan approved after October 9, 1997.

Where we do not have jurisdiction over the use (“no” to (a)), there is no need to evaluate it further as we cannot 

control the use. Uses that are illegal, inconsistent with existing policy, or unsafe (“no” to (b), (c), or (d)) may not be 

found appropriate. If the answer is “no” to any of the other questions above, we will generally not allow the use.

If indicated, the refuge manager has consulted with State fish and wildlife agencies. Yes x No .

When the refuge manager finds the use appropriate based on sound professional judgment, the refuge manager 

must justify the use in writing on an attached sheet and obtain the refuge supervisor’s concurrence.

Based on an overall assessment of these factors, my summary conclusion is that the proposed use is:

Not Appropriate x Appropriate .

Refuge Manager: /Timothy A. Miller/ Date: 01 / 08 / 2014 .

If found to be Not Appropriate, the refuge supervisor does not need to sign concurrence if the use is a new use.

If an existing use is found Not Appropriate outside the CCP process, the refuge supervisor must sign concurrence.

If found to be Appropriate, the refuge supervisor must sign concurrence.

Refuge Supervisor: /James T. Leach/ Date: 01 / 16 / 2014 .

A compatibility determination is required before the use may be allowed.

Decision Criteria: YES NO

(a) Do we have jurisdiction over the use? x

(b) Does the use comply with applicable laws and regulations (Federal, State, tribal, and 

local)? x

(c) Is the use consistent with applicable Executive orders and Department and Service 

policies? x

(d) Is the use consistent with public safety? x

(e) Is the use consistent with goals and objectives in an approved management plan or 

other document? x

(f) Has an earlier documented analysis not denied the use, or is this the first time the 

use has been proposed? x

(g) Is the use manageable within available budget and staff? x

(h) Will this be manageable in the future within existing resources? x

(i) Does the use contribute to the public’s understanding and appreciation of the refuge’s 

natural or cultural resources, or is the use beneficial to the refuge’s natural or cultural 

resources? 

x

(j) Can the use be accommodated without impairing existing wildlife-dependent 

recreational uses or reducing the potential to provide quality (see section 1.6D, 603 

FW 1, for description), compatible, wildlife-dependent recreation into the future? 

x

FWS Form 3-2319

02/06
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

190

Appendix F: Compatibility Determinations

In this appendix:

Introduction

Bicycle Riding on Roads and Trails Open to Vehicular Traffic

Environmental Education

Farming

Food Plot Cultivation for Wildlife

Hay Harvest

Hunting in Accordance with State Regulations (includes motorboat use)

Interpretation

Photography (includes creative nature writing and art)

Prescribed Livestock Grazing

Recreational Fishing in Accordance with State Regulations (includes motorboat use)

Recreational Trapping in Accordance with State Regulations (includes motorboat use)

Wildlife Observation

Wood Cutting (including firewood)

Introduction

Compatibility determinations are documents written, signed, and dated by the district manager 

and the regional chief of refuges that signify whether proposed or existing uses of the Wetland 

Management District (WMD, district) are compatible with its establishing purposes and the 

mission of the National Wildlife Refuge System (NWRS, Refuge System). This appendix 

provides copies of the compatibility determinations for Iowa WMD.

Before undertaking a compatibility review of a use, the district manager must first determine that 

the use is appropriate. A compatible use is any proposed or existing wildlife-dependent 

recreational use or other use of a district by the public or entity other than the U.S. Fish and 

Wildlife Service (FWS, Service) that, based on sound professional judgment, will not materially 

interfere with or detract from fulfilling the mission of the Refuge System or the purposes of the 

district. The final policy and regulations required by the National Wildlife Refuge System 

Improvement Act of 1997 provide guidance for determining compatibility.

If a proposed use is not appropriate, the use will not be allowed, and a compatibility 

determination will not be prepared.

A compatibility determination is required for activities on a refuge/district by the public or entity 

other than the Service including:

• all refuge/district recreational and educational programs;

• construction or expansion of recreational and educational facilities such as 

boardwalks and boat ramps;

• management activities performed by private parties in return for a market commodity, 

such as cooperative farming to provide food for wildlife; and

• granting or modifying rights-of-way through refuges/districts for pipelines, roads, or 

electrical transmission lines.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

191

Activities when a compatibility determination is NOT required include:

• refuge/district management activities such as prescribed burning, managing water 

levels, and controlling invasive species;

• routine scientific monitoring, studies, surveys, and censuses;

• conducting historic preservation;

• law enforcement activities; and

• maintaining refuge/district facilities, structures, or improvements.

Although a refuge/district use may be both appropriate and compatible, the district manager 

retains the authority to not allow the use or modify the use. The Service’s Midwest Region 

Easements Manual provides more direction on applying compatibility to easements (FWS,

2012c). 

The virtual or waypoint geocaching compatibility determination that was included in the Draft 

CCP is no longer a stand-alone document, but has been incorporated into the environmental 

education compatibility determination. This change was made simply for consistency with other 

plans and refuges/districts. 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

192

Compatibility Determination

Use: Bicycle Riding on Roads and Trails Open to Vehicular Traffic

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.” 

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. 715k-5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . ” 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Riding bicycles on the Iowa WMD for the purposes of pleasure, exercise, transportation, and 

wildlife viewing as environmentally sound transportation without noise or air pollution, typically 

associated with motor vehicles. 

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

No.

Where would the use be conducted?

On all roads and trails open to vehicular traffic, self-guided by regulatory signage on Waterfowl 

Production Areas (WPAs) within the WMD.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

193

When would the use be conducted?

Year round; however, snow levels during the winter months make this use difficult

How would the use be conducted?

Self-guided. The number of users at any one time is expected to be minimal. The large size of 

the district is expected to keep users spread out; the frequency of users is expected to be 

irregular.

Why is this use being proposed?

Public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Few to no new resources will need to be utilized to allow bicycle riding on roads and trails open 

to vehicular traffic. Currently WPAs contain regulatory signs showing where vehicles can and 

cannot travel. Service roads are currently gated with chain gates restricting vehicles including 

bicycles. No new infrastructure is anticipated such as bicycle lanes, racks, etc. WPAs are 

currently set up for vehicles with parking areas and pull-offs, and are annually maintained. The 

approximate annual cost to maintain these parking areas is $4,000 and is completed regardless 

of this use. 

Are existing district resources adequate to properly and safely administer the use?

Yes.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

The short-term impact of bicycle riding on roads and trails open to vehicular traffic within the 

district will be conflicts with other users such as hunters, anglers, trappers, and wildlife 

observers. Impacts will be temporary and be less than that of other motor vehicles. Impacts 

may occur if bicycles travel off the designated open roads creating ruts and damage to wildlife 

habitat. Short-term temporary disturbance to waterfowl may occur but most likely will not

negatively affect production due to infrequency. No long-term impacts are anticipated with this 

use. 

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

194

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges: “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This 

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Use limited to non-motorized pedal powered bicycles.

2. No infrastructure will be constructed for this use including construction of bicycle trails, 

racks etc.

3. Bicycle use will only be permitted on existing trails open to motorized travel, and parking 

areas open to the public.

Justification: 

Use of bicycles by visitors to the Iowa Wetland Management District is an excellent method to 

observe wildlife. Bicycles are quiet and pose little to no effect to nesting waterfowl when they 

remain in designated areas. Using bicycles can enhance a priority public use of wildlife 

observation. This use provides a green solution to visitors wishing to get exercise and observe 

the wildlife of the district. 

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
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Compatibility Determination

Use: Environmental Education

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.” 

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. § 

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

A process designed to teach citizens and visitors the history and importance of conservation 

and the biological and the scientific knowledge of the Nation’s natural resources. Environmental 

education within the Refuge System incorporates on-site, off-site, and distance learning 

materials, activities, programs, and products that address the audience’s course of study, 

district purpose(s), physical attributes, ecosystem dynamics, conservation strategies, and the 

Refuge System mission. Methods may include GPS use (i.e. virtual geocaching-type activities); 

minimal collection of insects, aquatic invertebrates, plants or seeds for examination; off-trail and 

road experiences; and after hours use (stargazing). Programs across the district will include 

interpretation of wetland, tallgrass prairie resources, migratory birds, resident wildlife, and water 

quality. FWS staff or partner organizations including Iowa Department of Natural Resources, 

County Conservation Boards (CCBs), Friends organizations, colleges, and 4-H and scouting 

groups could conduct environmental education activities in the district. 
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Partner colleges and universities may use Waterfowl Production Areas (WPAs) to observe, and 

study prairie seeding and restoration efforts. Management of this use will be through a signed 

special use permit issued by the district manager or a similar agreement with the Iowa DNR.

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

Yes.

Where would the use be conducted?

Across the district, except in prohibited areas.

When would the use be conducted?

Activities may be authorized throughout the year, but participants will be encouraged to abstain 

from activities during the primary waterfowl-nesting season (April through July). 

How would the use be conducted?

Access for this use will be mainly by foot but may include snowshoeing, cross-country skiing, 

and canoe/kayak (boating). 

Why is this use being proposed?

Priority public use and public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Most of the district is managed by Iowa DNR biologists through a Memorandum of 

Understanding. Limited staff and funds are available to conduct and enhance environmental 

education opportunities on the WMD; however, partnering with neighboring CCBs and schools 

has proven to be a cost effective solution to staffing for this use. Staff time to develop and issue 

special use permits will be necessary for this use along with monitoring and working with 

partners on developing a message for the use. Some structures, boundary and regulatory 

signs, parking lots, and other minor facilities are currently on WPAs and will facilitate 

environmental education without any further costs. 

Are existing district resources adequate to properly and safely administer the use?

Yes, if utilize partners.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals 

and/or objectives?

Overall, the impacts to WPAs and their associated wildlife populations from environmental 

education uses will be minimal. There will be temporary disturbance to waterfowl and other 

wildlife, but it will not likely interfere with waterfowl production. Special use permits for this use 

will be limited to times and locations that will have the least impact during pair bonding, nesting, 

and brood rearing of waterfowl. Group sizes will be limited to lessen possible impacts to 

waterfowl and WPA purpose. Vehicles and school busses will be limited to parking areas and 

service roads to minimize disturbance to vegetation and wildlife. 
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Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This 

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Environmental education may be authorized at various times of the year; however, 

partners are encouraged to avoid the primary nesting period (April through July).

2. GPS (virtual geocaching), plant or animal collection, after hours use, and travel off 

designated routes and parking areas are only allowed as stipulated in a special use 

permit.

3. All applicable federal, state, and special district regulations will apply. 

Justification: 

This use is a wildlife-dependent priority public use and will not diminish the primary purposes of 

the district, which is to serve as production areas for waterfowl and to provide habitat for 

migratory birds. This use will meet the mission of the Refuge System by furthering 

understanding and knowledge of the Nation’s migratory bird status, needs, and conservation 

efforts. Use of WPAs for environmental education will increase the public’s appreciation for 

conservation areas and local efforts, along with providing local schools and communities a look 

into the natural wildlife heritage of this area prior to settlement.

Signature: District Manager /Timothy A. Miller/ 01 / 16 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
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Compatibility Determination

Use: Food Plot Cultivation for Wildlife

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Establishment of wildlife food plots on Waterfowl Production Areas (WPAs) throughout the Iowa 

Wetland Management District to provide important food and cover resources in harsh winter 

conditions. The vast majority of WPAs are managed by the Iowa Department of Natural 

Resources (DNR) under a Memorandum of Understanding (MOU). Food plots are addressed in 

the MOU which authorizes the Iowa DNR to establish and maintain food plots at levels identified 

in the Comprehensive Conservation Plan, Habitat Management Plan (to be written), and 

individual unit plan. 

Food plots are small agriculture fields typically ranging in size from three to 10 acres consisting 

mainly of corn, soybeans, sunflowers, wheat, barley, oats, rye, buckwheat, millet, and sorghum. 

Placement and movement of individual food plots within a WPA will vary based on factors such 

as food plot availability on neighboring properties, best conservation practices, shape and 

arrangement of other habitat types within a WPA, invasive species control, and wildlife 

disturbance factors. Establishment of food plots will provide winter cover and food resources to 

resident wildlife during harsh weather conditions. 
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203

Food plots are not a priority public use as identified in the National Wildlife Refuge System 

Improvement Act of 1997. Food plots are a nonessential but helpful tool to facilitate other 

priority public uses including hunting, wildlife observation, and photography. Food plots may 

also be helpful in reaching goals outlined in the North American Waterfowl Management Plan 

(NAWMP) of growing hunters and other outdoor enthusiast groups to conserve and protect 

wetland areas. These plots may help provide desirable densities of wildlife for public viewing, 

hunting and photography.

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

No.

Where would the use be conducted?

Select WPA tracts within the Iowa WMD that have been identified as a strategic location for a 

food plot. 

When would the use be conducted?

Crops will typically be planted in spring and may be harvested in early spring the following year. 

How would the use be conducted?

Food plots are generally planted and maintained by private individuals (cooperative farmers), 

other agencies (Iowa DNR) or sporting clubs. Cropping activities are controlled through an 

agricultural agreement between the cooperator and the Iowa DNR; however, the Service 

provides guidelines such as pesticide use.

Why is this use being proposed?

Wildlife management tool for the district.

Availability of Resources: 

What resources are needed to properly and safely administer use?

The staff time required for this use is already committed through partnership efforts with Iowa

DNR and the MOU. The agriculture program in the district is the responsibility of the Iowa DNR. 

Service staff time will only include planning efforts to evaluate the need for food plots on newly 

acquired properties and reviewing management plans for food plot use. Service staff will be 

needed within the first year of the Comprehensive Conservation Plan implementation to review 

food plot locations in the district, along with preparing a Geographic Information System (GIS)

map layer with food plot locations. On years following this evaluation, staff time will be required 

to update the GIS layers annually. Currently staff time is available and committed for this use. 

Are existing district resources adequate to properly and safely administer the use?

Yes.
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Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

The proposed use will positively affect wintering Ring-necked Pheasants by providing reliable 

food resources near high quality cover, thus reducing exposure to predators and harsh weather 

conditions. Food plots also make high-energy grains available to waterfowl, Mourning Doves,

and other migratory birds during spring and fall migration. The borders of food plots often 

contain annual forbs, which provide forage for a variety of sparrows and other songbirds. Some 

species of wildlife, such as white-tailed deer, will benefit from the type of habitat produced by 

the creation of a food plot. 

Food plots help facilitate priority public uses that engage the public with wildlife such as hunting, 

wildlife observation, and photography. Good neighbors and an engaged public provide positive 

long-term support for the conservation of waterfowl and other migratory birds, as well as their 

habitats.

Minimal negative impacts are anticipated, because food plots will typically be smaller than10 

acres in size. In addition, food plots will be limited to three percent or less of district uplands. 

Food plots will reduce the available nesting cover for waterfowl, migratory birds, and other 

wildlife. Grassland bird research suggests that birds will utilize crop fields for nesting; however, 

the disturbance common with farming practices may be detrimental to nest success (Warner 

1994 and Best, 1986). Many grassland nesting birds and all upland nesting waterfowl species 

have better nesting success in larger contiguous blocks of grassland habitat (Winter and 

Faaborg, 1999 and Winter et al., 2000). Careful placement of food plots can lessen the impacts 

of edge and the fragmentation of habitat.

Impacts to waterfowl may be lessened by placing food plots strategically in the best locations for 

critical resident wildlife needs. The public uses associated with food plots may increase wildlife 

disturbance somewhat. However, the beneficial aspects of food plots for these uses are 

typically realized outside of the breeding season, and food plots can be used to concentrate 

these uses to areas where the associated disturbance is less detrimental (Korschgen and 

Dahlgren, 1992). Since WPAs are open to hunting, any increases in the white-tailed deer 

population related to food plots will be controlled. Soils will be impacted through the placement 

and management of food plots. Farming practices that disturb the soil by tilling create the 

potential for soil erosion. Chemical usage on food plots could potentially have negative effects 

on adjacent waters, vegetation, and associated wildlife. Food plot farming practices will use

best management practices to lessen the effects of soil erosion and chemical usage. The 

stipulations listed later in this document will address the criteria needed for food plot placement

and management in the district. 

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.
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Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations

Stipulations Necessary to Ensure Compatibility: 

1. No greater than three percent of the Iowa WMD uplands may be in food plots at any one 

time. 

2. Food plot species will be limited to corn, soybeans, milo, sunflowers, wheat, barley, oats, 

rye, buckwheat, millet, and sorghum. The entire crop will remain standing through the 

winter. Manipulation of the crop such as mowing is not allowed. 

3. Food plot farming and maintenance will comply with the Migratory Bird Treaty Act 16 

U.S.C. 703–712 P.L. 105–312 and 50 CFR 20.11–21 and not constitute baiting. 

4. Crop seeds used in food plots will be from a non-genetically modified seed source.

5. Chemicals used on food plots must be approved through the pesticide use proposals. 

No insecticides will be allowed on food plots. 

6. New WPA acquisitions requesting food plot placement will need project leader approval. 

Justification: 

Food plot use in the Iowa WMD is a compatible practice when the above stipulations are in 

place. This use as proposed will not materially detract from the waterfowl and migratory bird 

purposes of the district. Allowing the use of food plots will assist the Iowa DNR in reaching their 

resident wildlife goals and provide the public with opportunities to recreate on district properties. 

Use of food plots may also grow the number of hunters that will support a goal of the NAWMP. 

An MOU between the Service and Iowa DNR establishes that food plots are an acceptable 

practice in the district. Any negative impacts to waterfowl will be lessened by following the 

stipulations and evaluating the effects of the program. 

The goals of the NAWMP focus on engaging people with nature and growing the number of 

hunters. Within Iowa, the Iowa DNR and the public generally view food plots as a positive 

practice providing excellent viewing and hunting opportunities. Allowing food plots on WPAs 

within the district, albeit limited, will assist the Iowa DNR (a key Service partner) in providing 

hunting opportunities that will in turn gain public support for waterfowl and wetland protection.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
Appendix F: Compatibility Determinations

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206

Compatibility Determination

Use: Hay Harvest

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

The cutting and removal, by baling and transport to an off-district location, of grasses and forbs, 

either non-native cool season species such as brome or native warm or cool season species. 

This use is typically completed by a cooperative farmer under authority of a cooperative farming 

agreement or special use permit issued by the district manager or Iowa Department of Natural 

Resources district biologists. 

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

No.

Where would the use be conducted?

Waterfowl Production Area (WPA) tracts in Iowa average 100 acres in size and are intermingled 

with private and other public lands. Although specific acreages for fields to be hayed will vary by 
Appendix F: Compatibility Determinations

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207

unit, they will typically range from five-acre firebreaks to 80-acre units. In that case, haying 

could possibly occur over the entire unit and up to several hundred acres. Hay acreages for 

firebreaks will be very small, estimated at less than five acres per WPA. 

When would the use be conducted?

Seasonally, after July 15 of each year. 

How would the use be conducted?

Haying can be an effective management tool as part of an overall grassland management plan 

to improve and maintain grasslands for the benefit of migratory birds. Grasslands need periodic 

renovation to maintain vigor, diversity, and the structure necessary for migratory bird use. 

Haying is an effective alternative to burning or grazing, which are the two other primary means 

used to maintain grassland vigor. If local site conditions preclude use of prescribe fire due to 

hazards to neighboring property or a similar challenge, removal of accumulated biomass 

through haying will reduce unwanted overstory cover and encroaching woody vegetation. This 

will allow for more vigorous regrowth of desirable species following the haying, although results 

are neither as dramatic nor as positive as with the use of prescribed fire.

Haying of a nonnative cool season field is an effective preparatory step prior to spraying the 

field with herbicide to kill all existing vegetation. Removal of the heavy grass overstory through 

haying allows the chemical to be more effective at treating the target plants. Thorough removal 

of the unwanted grasses ensures greater success of the planted native grasses for both 

interseeding or plowing the soil prior to seeding. Haying is also effective at preparing WPAs for 

wetland restoration activities. The haying can be used to remove the tall vegetation and 

facilitate the construction of dikes, water control structures, and rerouting drainage tile. Finally, 

haying can be used to establish firebreaks that facilitate safe prescribed fire. Strategically 

placed grass strips are hayed in early fall, so the vegetation green-ups earlier in the spring with 

no dead overstory biomass. Firebreaks have also been developed on WPAs and hayed 

annually to create defensible space for houses and other Wildland Urban Interface structures. 

Haying of these firebreaks creates a green space between neighboring houses and dense grass 

fuels.

Why is this use being proposed?

District management tool.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Planning for this use will not require any additional resources and will be a normal part of 

grassland management. Staff time will be need to complete the hay bid process, develop public 

notices, and issue special use permits and bills for collection. 

Are existing district resources adequate to properly and safely administer the use?

Yes.
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Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Haying will result in short-term disturbances and long-term benefits to both resident and 

migratory wildlife that use WPAs. Short-term impacts will include disturbance and displacement 

typical of any noisy heavy equipment operation. Cutting and removal of standing grasses will 

also result in short-term loss of habitat for those species requiring tall grasses for feeding and 

perching (i.e., Bobolink and Dickcissel). Long-term benefits will result as increased vigor of 

regrown grasses and establishment of highly desirable native tallgrass species improves 

conditions for those same species affected by the short-term negative impacts. Longer-term 

negative impacts may occur to resident wildlife species such as pheasant that could lose 

overwintering habitat in the hayed areas. However, strict time constraints placed on this use will 

limit anticipated impacts to these relatively minor areas.

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations

Stipulations Necessary to Ensure Compatibility: 

1. Haying will only be allowed after July 15 to minimize disturbance to nesting migratory 

birds. In normal years, most birds are off the nest by this date.

2. Bales must be removed from the WPA within two days of baling.

3. Windrowed grass left lying to dry prior to baling must be raked and moved every two 

days if left on newly seeded native grass and under no circumstances should remain on 

the ground more than six days prior to baling.

Justification: 

Haying will not materially interfere with waterfowl production if completed within the necessary 

stipulations. Use of haying, as a management tool can be a valuable technique for providing 

long-term habitat improvements to grassland that otherwise, would degrade through natural 

succession or dominance of non-native plants. 
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Without this tool, the areas would suffer encroachment of undesirable woody species such as 

box elder or ash or would remain in unwanted non-native cool season grasses such as brome. 

Use of the areas by waterfowl or grassland-dependent species such as Bobolink, Dickcissel, or 

Grasshopper Sparrow would slowly decline in the absence of haying or other similar 

management.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
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Compatibility Determination

Use: Hunting in Accordance with State Regulations (includes motorboat use)

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Shooting migratory game birds, upland game birds and mammals, and big game on Waterfowl 

Production Areas (WPAs) throughout the district in accordance with state seasons and 

governed by both federal and state regulations. Hunting on WPAs may be suspended due to 

unusual or critical conditions affecting land, water, vegetation, or wildlife populations. Hunting 

will facilitate four other priority public uses: wildlife observation, wildlife photography, 

environmental education, and interpretation. 

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

Yes.
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211

Where would the use be conducted?

On all open WPAs; see Determination section below.

When would the use be conducted?

The majority of the use occurs in the fall, from mid-September through the end of December. 

Spring turkey hunting occurs on a few WPAs with a state season running from early April to the 

end of May. 

How would the use be conducted?

This use must occur In accordance with state regulations. Some WPAs have trails to them from 

public roads to gain access. Most WPAs have parking areas, usually less than one acre in size,

to keep vehicles and traffic off public roads. The State of Iowa uses hunting as a management 

tool through appropriate season setting and harvest objectives. This tool allows for wildlifedependent public recreation and supports the harvest of surplus wildlife. 

Why is this use being proposed?

Regulation, wildlife management tool, priority public use, and public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Few additional fiscal resources are necessary to conduct this use. WPAs are open by statue to 

hunting, fishing, and trapping and have provided such opportunities since acquired. As a result, 

some infrastructure is already in place to facilitate this use. The majority of the WPAs in the 

district are managed cooperatively through a Memorandum of Understanding with the Iowa

Department of Natural Resources (DNR), which includes some law enforcement responsibilities. 

Are existing district resources adequate to properly and safely administer the use?

Yes, by partnering with the Iowa DNR staff of conservation officers and local wildlife biologists. 

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Although hunting causes mortality and temporary disturbance to migratory birds and other 

wildlife, harvesting populations to the carrying capacity of existing habitat ensure s long-term 

health and survival for the species and its habitat. Most hunting occurs well after the breeding 

season for migratory birds and other wildlife so there will be little or no disturbance to the 

district’s central purpose. Since most access for hunting occurs by foot traffic, some 

disturbance is anticipated; however, it will be temporary. Hunting on WPAs will assist in 

promoting an understanding and appreciation of wetland and prairie natural resources as well 

as management of land administered by the Refuge System. 

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.
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212

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Travel in, or use of, any motorized or other vehicle is prohibited except by special use 

permit. Parking in designated areas or on public roads is permissible for access, but use 

of horses is not permissible.

2. Personal property may not be left unattended or abandoned.

3. Hunting tree stands that are not removed daily must have the hunter’s name or Iowa 

hunting license number clearly marked on the stand. Tree stand installation and 

removal will comply with regulations for state Wildlife Management Areas. Current 

regulations: seven days prior to hunting season and removal seven days after hunting 

season.

4. All watercraft are restricted to no larger than 15 horsepower motors.

5. All applicable federal, state, and special district regulations apply. 

Justification: 

WPAs are open to hunting of migratory game birds, upland game, and big game by regulation

and in accordance with state law. Hunting will not materially interfere with or detract from the 

purposes for which these units were established. As a management tool, hunting can be used 

to ensure healthy wildlife populations and sustainable habitat. Hunting is a priority wildlifedependent public use and will facilitate four other priority public uses: wildlife observation, 

wildlife photography, environmental education, and interpretation. The use of hunting will assist 

the district in meeting the mission of the Refuge System by managing the Nation’s wildlife and 

plant resources for the benefit of the American public.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
Appendix F: Compatibility Determinations

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213

Compatibility Determination

Use: Interpretation

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Interpretation is a communication process that forges emotional and intellectual connections 

between the audience and the resource. Programs may include activities, talks, publications, 

audio-visual media, signs, and exhibits that convey key natural and cultural resource messages 

to visitors. Programs across the district will include interpretation of wetland, tallgrass prairie 

resources, migratory birds, resident wildlife, and water quality. Service staff or partner 

organizations including Iowa Department of Natural Resources (DNR), County Conservation 

Boards (CCBs), Friends organizations, colleges, and 4-H and scouting groups could conduct 

environmental education activities in the district. 

Partner colleges and universities may use Waterfowl Production Areas (WPAs) to observe, and 

study prairie seeding and restoration efforts. Management of this use will be through a signed 

special use permit issued by the district manager or a similar agreement with the Iowa DNR.
Appendix F: Compatibility Determinations

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214

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

Yes.

Where would the use be conducted?

Across the district, except in prohibited areas.

When would the use be conducted?

Activities may be authorized throughout the year, but participants will be encouraged to abstain 

from activities during the primary waterfowl-nesting season (April through July).

How would the use be conducted?

Access for this use will be mainly by foot but may include snowshoeing, cross-country skiing, 

and canoe/kayak (boating).

Why is this use being proposed?

Priority public use and public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Most of the district is managed by Iowa DNR biologists through a Memorandum of 

Understanding. Limited staff and funds are available to conduct and enhance interpretation 

opportunities on the WMD; however, partnering with neighboring CCBs and schools has proven 

to be a cost effective solution to staffing for this use. Staff time to develop and issue special use 

permits will be necessary for this use along with monitoring and working with partners on 

developing a message for the use. Some structures, boundary and regulatory signs, parking 

lots, and other minor facilities are currently on WPAs and will facilitate interpretation without any 

further costs. 

Are existing district resources adequate to properly and safely administer the use?

Yes, if utilize partners.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Overall, the impacts to WPAs and their associated wildlife populations from interpretation will be 

minimal. There will be temporary disturbance to waterfowl and other wildlife, but it will not likely 

interfere with waterfowl production. Special use permits for this use will be limited to times and 

locations that will have the least impact during pair bonding, nesting, and brood rearing of 

waterfowl. Group sizes will be limited to lessen possible impacts to waterfowl and WPA 

purpose. Vehicles and school busses will be limited to parking areas and service roads to 

minimize disturbance to vegetation and wildlife. If auto tour roads are proposed to facilitate this 

use, they will be designed to minimize disturbance to waterfowl during the spring 

breeding/nesting season. 
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215

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Interpretation may be authorized at various times of the year; however, partners are 

encouraged to avoid the primary nesting period (April through July).

2. Travel off designated routes and parking areas is prohibited, except as stipulated in a 

special use permit.

3. All applicable federal, state, and special district regulations will apply. 

Justification: 

This use is a wildlife-dependent priority public use and will not diminish the primary purposes of 

the district, which is to serve as production areas for waterfowl and to provide habitat for 

migratory birds. This use will meet the mission of the Refuge System by furthering 

understanding and knowledge of the Nation’s migratory bird status, needs, and conservation 

efforts. Use of WPAs for interpretation will increase the public’s appreciation for conservation 

areas and local efforts, along with providing local schools and communities a look into the 

natural wildlife heritage of this area prior to settlement.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
Appendix F: Compatibility Determinations

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216

Compatibility Determination

Use: Photography (includes creative nature writing and art)

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Year round general public access to Waterfowl Production Areas (WPAs) to photograph, write 

creatively about, or draw/paint nature and its associated flora and fauna. Access for 

photography, creative nature writing and art will allow for public enjoyment of an array of wildlife 

and plant species including waterfowl, grassland birds, resident mammals, tallgrass prairie, and 

wetland plants. WPAs provide the public with a view into the past of landscapes that early Iowa 

pioneers and Native Americans saw.

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

Yes.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

217

Where would the use be conducted?

All open WPAs. Allowable access to the WPAs includes hiking, snowshoeing, cross-country 

skiing, and non-motorized boating. Limited motorized and bicycle access for this use will be 

allowed in designated parking areas, and open designated routes of travel. Entry on all or 

portions of WPAs may be suspended, by posting, upon occasion of unusual or critical conditions 

affecting land, water, vegetation, wildlife populations, or public safety. 

When would the use be conducted?

Year round. The frequency is expected to be irregular, the large size of the district is expected 

to spread out users, so the intensity of use is expected to be minor as well.

How would the use be conducted?

Typically individuals or small groups on foot either moving through a WPA or sitting at a location 

of interest for a longer period to capture the flora, fauna, or scenery. Artist’s easels, camera 

tripods, cameras, sketchpads, notebooks, or other small and minor equipment may be used to 

facilitate the use. 

Why is this use being proposed?

Priority public use and public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Photography, creative nature writing, and art require little to no additional resources. Since 

WPAs have been open by regulation to hunting, fishing, and trapping, infrastructure is in place 

for public use. Parking areas and regulatory signs are present at most WPAs. The Iowa

Department of Natural Resources (DNR) assumes most management and maintenance 

responsibilities of the WPAs in the district though a Memorandum of Understanding. Iowa DNR 

conservation officers provide the primary enforcement of the public use regulations. Updated 

brochures will be developed for each of the Iowa DNR’s six geographic units within the WMD. 

The Service also provides some law enforcement support; however, it is lacking a dedicated 

officer to the WMD. Assistance from the zone law enforcement officer in Prairie City, Iowa has 

been utilized in the past. It is not anticipated that this use will entail any greater enforcement 

issues than what currently exist.

Are existing district resources adequate to properly and safely administer the use?

Yes.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Photography, creative nature writing, and art pose minimal impact on the purpose for which 

WPAs were established. Access is typically by individual or small groups on foot. Damage to 

habitat by foot traffic is minimal and temporary. There may be some temporary disturbance to 

wildlife due to human activity on the ground. The most likely impact to breeding waterfowl will

be during the spring and early summer nesting and brood rearing period; however, the expected 

sporadic and limited use by the public should not create unreasonable impacts. Disturbance to 

wildlife, such as flushing a nesting bird, is inherent to these activities; however, the disturbance 

is temporary and generally not malicious. Many WPAs are located in sparsely populated rural 

areas, compared to a few that are located near highly populated areas. Monitoring of this use 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

218

will be needed to ensure anticipated impacts are not exceeded. Winter activities pose no 

impacts to nesting waterfowl and little impact to vegetation. The winter disturbance to resident 

wildlife will be temporary and minor.

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Certain modes of access such as motorized vehicles and bicycles are limited to 

designated trails, public roads, and parking lots. All watercraft are restricted to no larger 

than 15 horsepower motors.

2. Camping, overnight use, and fires are prohibited.

3. No photo or viewing blinds may be left overnight.

4. Harassment of wildlife including hazing and calling at birds and other wildlife is 

prohibited.

5. All applicable federal, state, and special district regulations apply. 

Justification: 

Photography, creative nature writing, and art will not materially interfere with or detract from the 

district purposes, including waterfowl production. The level of use for photography, creative 

writing, and art is moderate on most WPAs. 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

219

The associated disturbance to wildlife is temporary and minor. Photography is a priority public 

use and inspires visitors with the joys of abundant wildlife and wild lands. These uses also help 

fulfill the mission of the Refuge System. Those WPAs with increased activities generally have 

facilities present to accommodate the public use with minor impacts to the habitat.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

220

Compatibility Determination

Use: Prescribed Livestock Grazing

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Limited removal of grass and forb vegetation by domestic livestock, chiefly cattle, but potentially 

including other domestic livestock to improve grassland vigor and health. Prescribed controlled 

grazing is recognized as a valuable tool to remove standing vegetation, reduce vegetative litter, 

and suppress undesirable woody vegetation. 

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

No.

Where would the use be conducted?

Across the district, as necessary for management .
Appendix F: Compatibility Determinations

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221

When would the use be conducted?

Grazing may take place anytime from April through November. Most commonly, the grazing will 

be of high intensity and short-term duration, for example, 200 yearlings for one month on 40 

acres. There will be three typical seasons of use: 

1. Early spring (mid-April to late May) on native prairie or seeded native grasses designed 

to reduce the vigor of exotic species and increase the vigor of native species.

2. Summer grazing (July 15 to September 1) may be used, especially on non-native 

grasslands, to stimulate the grassland after the peak nesting season yet allow vegetative 

regrowth in the fall.

3. Fall grazing (September 1 to October 31) will be designed to have effects similar to 

spring grazing, mostly on native prairie remnants or fields seeded with native tallgrass 

prairie species.

How would the use be conducted?

Fencing and control of livestock will be the responsibility of the cooperating livestock producer. 

Market rate grazing fees will be required of permittees. Market grazing fees will include typical 

market deductions for unusual fencing requirements, required cattle movement, or special 

watering needs. Rates will be assessed in Animal Unit Months (AUM). One AUM is equal to 

one adult cow for one month (thirty days). One cow/calf pair is equal to 1.20 AUM. Market 

rates will be determined annually in consultation with the U.S. Department of Agriculture based 

on prevailing local average grazing rates.

Frequency of grazing on any unit will be based on site-specific plans and availability of other 

management tools such as prescribed fire and haying. Typically, a unit will be grazed for either

one or two years and then will not be grazed for several years, allowing a period of rest. 

Cooperating livestock producers will be selected by closed bid process, drawing, or the priority 

system outlined in the U.S. Fish and Wildlife Service Refuge Manual 6 RM 9 (1982). 

Why is this use being proposed?

District management tool.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Developing grazing agreements and monitoring compliance and biological effects will require 

some Service resources. Most grazing costs, such as fencing, monitoring herd health, and so 

on, are assumed by the permittee. Station resources will be used to acquire some unit 

infrastructure such as boundary fencing and electrical fencing. Some alternative grassland 

management tools such as prescribed burning, mowing, or haying will be required if grazing is 

not utilized. Haying has comparable costs to controlled grazing since it also requires 

administering special use permits. Mowing is more expensive since all costs are assumed by 

the agency. Prescribed burning is an effective grassland management tool, but staff limitations 

prevent burning as many acres as is desirable each year. In addition, there is an ecological 

benefit to rotating grassland management techniques and seasons, such as grazing one year 

and burning another.

Are existing district resources adequate to properly and safely administer the use?

Yes.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

222

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Grazing by domestic livestock has severe short-term effects on grassland communities. Many of 

these effects are desirable and are designed to maintain and improve healthy grassland 

communities. Some of these effects include removing standing vegetation, trampling of other 

vegetation, and reducing populations of pioneering woody plants. Other effects of grazing are 

more harmful but generally short-lived.

Grazing in the spring can cause direct loss of grassland bird nests due to trampling and loss of 

standing vegetation. Grazing at any time of year creates an aesthetic issue of concern; seeing 

public land being grazed by domestic livestock reduces the appeal of the visit for some visitors. 

Fortunately, controlled grazing is typically of short duration and does not occur annually on any 

unit. Grazing livestock can create minor direct disturbance of wildlife, but any harm should be 

negligible. There is a slight potential for conflict between members of the public and livestock or 

the permittee, particularly in the autumn when most Waterfowl Production Areas receive their 

heaviest use. All permittees will be advised that the unit is open to the public for hunting and 

other recreation. There is a very slight risk of injury to the public caused by livestock. Most 

visitors who are uncomfortable using property containing livestock are likely to select another 

unit or another time of year for their visit.

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations

Stipulations Necessary to Ensure Compatibility: 

1. Grazing will not occur more frequently than three out of every five years without the 

preparation of a site-specific compatibility determination.

2. No insecticides, including insecticidal dusting bags, will be used on WPAs.

3. Control and confinement of the livestock will be the responsibility of the permittee.

Justification: 

Prescribed controlled grazing by domestic livestock will not materially interfere with or detract 

from the purposes for which the units were established. Limited livestock grazing creates 

temporary disturbances to vegetation of which many are desirable for grassland management. 

Grazing produces an undesirable but short-term impact to grassland bird nesting and site 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

223

aesthetics. Prescribed controlled grazing is an alternative management tool that can be used to 

replace or complement prescribed burning, mowing, or haying on grasslands. Without 

occasional disturbance caused by mowing, haying, burning, or grazing, the health of the 

grassland community will decline, as will the potential for waterfowl production.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
Appendix F: Compatibility Determinations

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224

Compatibility Determination

Use: Recreational Fishing in Accordance with State Regulations (includes motorboat use)

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Recreational fishing on Waterfowl Production Areas (WPAs) throughout the district in 

accordance with State of Iowa regulations. Fishing on WPAs may be suspended due to 

unusual or critical conditions affecting land, water, vegetation, or wildlife populations. Fishing 

will facilitate four other priority public uses: wildlife observation, wildlife photography, 

environmental education, and interpretation.

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

Yes.

Where would the use be conducted?

Although the entire wetland acreage is open to recreational fishing only about one percent of the 

wetlands provide water deep enough to support viable fisheries. The few WPAs with viable 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

225

fisheries are generally connected to adjacent streams or lakes, located off Service property, and 

aquatic species move between these bodies of water. 

When would the use be conducted?

Year round. The frequency is expected to be irregular, the large size of the district is expected 

to spread out users, so the intensity of use is expected to be minor as well.

How would the use be conducted?

The State of Iowa uses recreational fishing to help maintain healthy populations of these 

species. Some WPAs have trails necessary to gain access from public roads and for safety 

reasons in high traffic areas; parking lots, usually less than one acre in size, may exist. 

Why is this use being proposed?

Priority public use, regulation, and fish management.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Few additional fiscal resources are necessary to conduct this use. WPAs are open by statue to 

hunting, fishing, and trapping and have provided such opportunities since acquired. As a result, 

some infrastructure, such as parking lots, signs, etc., is already in place to facilitate this use. 

The majority of the WPAs in the district are managed cooperatively through a Memorandum of 

Understanding with the Iowa Department of Natural Resources (DNR), which includes some law 

enforcement and facility management responsibilities. Currently, Iowa DNR staff of 

conservation officers and local wildlife biologist are adequate to support this public use;

however, some staff time will be needed to develop and maintain a brochure for fishing in the 

district.

Are existing district resources adequate to properly and safely administer the use?

Yes.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Recreational fishing activities may cause brief disturbance to migratory birds and other wildlife 

using WPAs, which may temporarily displace individual animals to other parts of the WPA. 

However, this brief disturbance will be limited in scope due to the small number of WPAs with 

viable fisheries, limited access to fishing (mainly by foot travel), and lack of boat launching 

facilities. Recreational fishing at anticipated levels and on small areas of relatively few WPAs 

should not materially interfere with the district’s purpose. Recreational fishing will promote 

understanding and appreciation of natural resources and their management on all land included 

in the Refuge System.

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

226

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Travel off designated routes and parking areas is prohibited, except as stipulated in a 

special use permit; travel by horse is not permissible. 

2. All watercraft are restricted to no larger than 15 horsepower motors.

3. All applicable federal, state, and special district regulations apply. 

Justification: 

WPAs are open to fishing by regulation. Fishing will not materially interfere with or detract from 

the purposes for which these units were established. Fishing is a priority public use and will 

facilitate four other priority public uses: wildlife observation, wildlife photography, environmental 

education, and interpretation. The use of fishing will assist in meeting the mission of the Refuge 

System by facilitating the management of the Nation's wildlife and plant resources for the 

benefit of the American public.

Signature: District Manager /Timothy A. Miller/ 01 / 16 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

227

Compatibility Determination

Use: Recreational Trapping in Accordance with State Regulations (includes motorboat use)

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Trapping of furbearers is a consumptive public use of Waterfowl Production Areas (WPAs) in 

the Iowa WMD. Furbearer trapping in the State of Iowa continues to be a popular public use but 

tends to fluctuate with the fur prices. WPAs are open to trapping as authorized by the Code of 

Federal Regulations which states, “Lands acquired as ‘waterfowl production areas’ shall be 

open to public trapping without federal permit . . . ” (50 CFR Ch. 1 (10-1-12 Edition) Part 31, 

Subpart B, Section 31.16). Trappers are required to comply with Iowa State trapping laws and 

regulations. A copy of the current Iowa Trapping Regulations may be viewed at 

www.iowadnr.gov. Furbearer trapping for most species occurs from early November through 

the end of January, with the exception of spring beaver trapping, which is open through midApril. According to the Iowa DNR’s 2012 Furbearers Report, the most numerous mammal 

species trapped in Iowa is the raccoon with 236,943 harvested during the 2010–2011 season. 

The second most popular furbearer trapped in Iowa is the muskrat with a total 2010–2011 

season harvest of 98,079 (Iowa Department of Natural Resources [DNR], 2012). Both of these 

species occur on most WPAs within the district. 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

228

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

No.

Where would the use be conducted?

All open WPAs; the majority of the trapping activity on WPAs concentrates around wetland 

areas. 

When would the use be conducted?

Trapping seasons for most of the Iowa furbearers run from November through the end of 

January. Beaver trapping season runs from November through the middle of April most years. 

With the exception of the early spring beaver trapping, most of the trapping use occurs during 

the late fall and winter months. Trap tending typically occurs during daylight hours; however, 

state regulations do not restrict trap-tending times. 

How would the use be conducted?

Trappers may use leg hold traps, snares, “body gripping Conibear” style, and live box traps. 

Iowa DNR sets regulations for trap dimensions and set locations for the various permitted trap 

types These regulations are contained in Iowa Code 481a and 483a and are available in the 

Iowa Hunting and Trapping Regulations guide at www.iowadnr.gov. Access for trappers using 

WPAs is primarily by foot; however, they also may use snowshoes or cross-country skis. Some 

WPAs contain large enough waterways to allow use of both motorized and non-motorized boat 

use for trapping. Travel onto WPAs using wheeled motorized vehicles such as ATVs, trucks

and passenger vehicles, and motorcycles is restricted to parking areas and designated open 

roads. The majority of trappers will access the WPAs by foot and park their vehicles in the 

parking areas.

Why is this use being proposed?

Regulation and wildlife management.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Few additional fiscal resources are necessary to conduct this use. WPAs are open by statue to 

hunting, fishing, and trapping and have provided such opportunities since acquired. As a result, 

some infrastructure is already in place to facilitate this use. The majority of the WPAs in the 

district are managed cooperatively through a Memorandum of Understanding with the Iowa

DNR, which includes some law enforcement responsibilities. Currently, the Iowa DNR staff of 

conservation officers is adequate to support this public use.

Are existing district resources adequate to properly and safely administer the use?

Yes.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

229

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Recreational trapping can potentially affect the waterfowl production of WPAs both directly and 

indirectly. Direct impacts may include such effects as killing or displacing of waterfowl during 

the pair bonding/nesting season or destruction of nest by trampling. Indirect impacts may 

include catch of target and not-target species that are predators on waterfowl and/or nests or 

removal of species that induce habitat change (i.e., beaver and muskrat). Impacts, either direct 

or indirect, may be positive, neutral, or negative. 

With the exception of beaver season (November to April 15), all the other trapping seasons are 

during periods that will not negatively affect waterfowl production. Beaver trappers will be 

checking traps daily during the pair bonding and early nest cycle. These disturbances are 

temporary and generally of short duration. Most of the impacts from this use will be during the 

fall migration time. The greatest impact times will be during the trap-setting phase; however, 

this is still short and temporary. Trap line checks are required daily and represent a frequent but 

short-lived disturbance. 

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Travel in or use of any motorized or other vehicle is prohibited except by special use 

permit. Parking in designated areas or on public roads is permissible for access, but use 

of horses is not permissible.

2. Traps must be attended and tagged by the owner in accordance with State of Iowa 

trapping regulations. Traps and personal property may not be left unattended or 

abandoned.

3. All watercraft are restricted to no larger than 15 horsepower motors.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

230

4. All applicable federal, state, and special district regulations apply. 

Justification: 

Most trapping use occurs outside the time for pair bonding, nesting, and brood rearing 

(waterfowl production), so this use will have little to no direct impact on waterfowl production. 

Spring beaver trapping is the one exception. Its impact, however, will be temporary and isolated 

due to the short duration of the visits, small number of waterfowl involved, and the limited 

geographic area impacted by the presence of one or a few individuals. These impacts on 

waterfowl production and the WMD mission are negligible. 

Most species of interest to trappers and common “non-target” catches such as skunks and freeranging house cats are predators on waterfowl at some point in the production cycle. 

Management of red fox, raccoon, mink, opossum, and skunk populations through a regulated 

trapping program is, at worst, a neutral impact and likely a positive. Due to edge effects and 

concentrations of nesting waterfowl, the impacts of predator management are likely inversely 

related to WPA size. The average size of WPAs in the Iowa WMD is 100 acres. In these small 

parcels, the effects of only a few individual predators can be highly significant on waterfowl 

production in the local area. Timing of removal of predators also affects the impact that this 

activity has on waterfowl production. Again, depending on the time of year, impacts on 

waterfowl production may be neutral or positive. The harvest through the trapping program of 

other species such as those permitted by state regulations (coyote, muskrat, badger, beaver, 

otter, and bobcat) that may or may not be predators of waterfowl is insignificant. 

Waterfowl production is also impacted by the natural habits of beaver and muskrat populations. 

Upon initial analysis, it is often thought that beaver and their wetland construction activities and 

muskrat with their propensity to maintain open water are beneficial to waterfowl production. In 

exceptionally large marshes and in pre-settlement times, this was likely the case. However, the 

landscape of the district has been so altered through agricultural conversion that few ecosystem 

functions remain intact. Current hydrologic function resembles very little of that from presettlement. Dikes, levees, roads, culverts, tile lines, pumps, and water control structures work 

to move and confine water with calculated purpose. Ramifications of disruption to this system 

can include private property damage, public safety hazards, disgruntled neighbors, and legal 

liability. As a result, the Service and Iowa DNR manage wetlands in WPAs through 

manipulating water levels, providing for the needs and stages of target waterfowl. Left 

unchecked, beaver activity results in disruption to the water flow when culverts and other water 

control structures are blocked. High muskrat populations are detrimental to levees and dikes as 

individuals burrow into these structures and compromise the structural integrity. Without the 

ability to control water levels, the waterfowl production purpose of the district would suffer, as 

would the Refuge System mission. 

A public trapping program facilitates management of beaver and muskrat populations at such 

levels that the many benefits created of these species are realized, yet the ability of the district

to manage water levels is not compromised. According to the Iowa DNR’s 2012 Furbearer’s 

Report for Iowa on a statewide level, beaver harvest has depended on the weather and 

conditions and fluctuating fur prices. Total Iowa beaver harvest during the 2010–2011 trapping 

season was 5,382 (Iowa DNR, 2012). Muskrat harvest in Iowa has also tends to fluctuate with 

fur prices and populations. 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

231

Overall trapping is a minor public use of WPAs but is an important management tool in localized 

areas. Trapping on WPAs will provide the public the opportunity to assist the WMD with 

furbearer management. Consistent with the mission for the Refuge, trapping on WPAs results 

in management of populations and is not a “control program” intending to eliminate components 

of the ecosystem for the benefit of others. Data from the Iowa DNR on trapping indicate that the 

current level of furbearer harvest is not resulting in harm to these populations. The public 

trapping program as managed by state regulations does not materially interfere with or detract

from the Service’s ability to meet the district’s purpose of waterfowl production or the mission of 

the Refuge System.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

232

Compatibility Determination

Use: Wildlife Observation

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . " 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Visitors observing wildlife. This can instill an appreciation for the value of and need for fish and 

wildlife habitat conservation. Access for wildlife observation will allow for public enjoyment of an 

array of wildlife and plant species including waterfowl, grassland birds, resident mammals, 

tallgrass prairie, and wetland plants. Waterfowl Production Areas (WPAs) provide the public 

with a view into the past of landscapes that early Iowa pioneers and Native Americans saw.

Is the use a proposed new use or an existing use?

Proposed new use.

Is the use a priority public use?

Yes.

Where would the use be conducted?

All open WPAs, entry on all or portions of WPAs may be suspended, by posting, upon occasion 

of unusual or critical conditions affecting land, water, vegetation, wildlife populations, or public 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

233

safety. Certain modes of transportation for wildlife viewing will be limited to designated roads, 

trials, and parking lots. 

When would the use be conducted?

Year round.

How would the use be conducted?

Allowable access to the WPAs includes hiking, snowshoeing, cross-country skiing, and nonmotorized boating. Limited motorized and bicycle access for this use will be allowed in 

designated parking area, and open designated routes of travel. 

Why is this use being proposed?

Priority public use.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Wildlife observation requires little to no additional resources. Since WPAs have been open by 

regulation to hunting, fishing and trapping, infrastructure is in place for public use. Parking 

areas and regulatory signs are present at most WPAs. The Iowa Department of Natural 

Resources (DNR) assumes most management and maintenance responsibilities of the WPAs in 

the district though a Memorandum of Understanding. Iowa DNR conservation officers provide 

the primary enforcement of the public use regulations. Updated brochures will be developed for 

each of the Iowa DNR’s six geographic units within the WMD. The Service also provides some 

law enforcement support; however, it is lacking a dedicated officer to the WMD. Assistance 

from the zone law enforcement officer in Prairie City, Iowa has been utilized in the past. It is not 

anticipated that this use will entail any greater enforcement issues than what currently exist.

Are existing district resources adequate to properly and safely administer the use?

Yes.

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

Wildlife observation poses minimal impact on the purpose for which WPAs were established. 

Access is typically by individual or small groups on foot. Damage to habitat by foot traffic is 

minimal and temporary. There may be some temporary disturbance to wildlife due to human 

activity on the ground. The most likely impact to breeding waterfowl will be during the spring 

and early summer nesting and brood rearing period; however, the expected sporadic and limited 

use by the public should not create unreasonable impacts. Disturbance to wildlife, such as 

flushing a nesting bird, is inherent to these activities; however, the disturbance is temporary and 

generally not malicious. Many WPAs are located in sparsely populated rural areas, compared 

to a few that are located near highly populated areas. Monitoring of this use will be needed to 

ensure anticipated impacts are not exceeded. Winter activities pose no impacts to nesting 

waterfowl and little impact to vegetation. The winter disturbance to resident wildlife will be 

temporary and minor. 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

234

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Certain modes of access such as motorized vehicles and bicycles are limited to 

designated trails, public roads, and parking lots. Non-motorized boats are permitted with 

the exception of state designated waterfowl refuge sites (see above).

2. Camping, overnight use, and fires are prohibited.

3. No photo or viewing blinds may be left overnight.

4. Harassment of wildlife including hazing and calling at birds and other wildlife is 

prohibited.

5. All applicable federal, state, and special district regulations apply.

Justification: 

Wildlife observation will not materially interfere with or detract from the district purposes, 

including waterfowl production. The level of use for wildlife observation is moderate on most 

WPAs. The associated disturbance to wildlife is temporary and minor. Wildlife observation is a 

priority public use and inspires visitors with the joys of abundant wildlife and wild lands. These 

uses also help fulfill the mission of the Refuge System. Those WPAs with increased activities 

generally have facilities present to accommodate the public use with minor impacts to the 

habitat.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

235

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2028
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

236

Compatibility Determination

Use: Wood Cutting (including firewood)

Refuge/District Name: Iowa Wetland Management District

Establishing and Acquisition Authorities: 

Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp), March 16 1934, (16 U.S.C. 

§ 718–718h, 48 Stat. 452) as amended August 1, 1958, (P.L. 85–585; 72 Stat. 486) for 

acquisition of “Waterfowl Production Areas.”

Wetlands Loan Act, October 4, 1961, as amended (16 U.S.C. § 715k–5, Stat. 813).

Funds appropriated under the Wetlands Loan Act are merged with Duck Stamp receipts in the 

fund and appropriated to the Secretary for the acquisition of migratory bird refuges under 

provisions of the Migratory Bird Conservation Act, February 18, 1929, (16 U.S.C. § 715, 715d–

715r).

Refuge/District Purposes: 

Iowa Wetland Management District was established in 1979:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act [Migratory 

Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions . . . ” 16 U.S.C. §

718(c) “ . . . for any other management purpose, for migratory birds." 16 U.S.C. § 715d

National Wildlife Refuge System Mission: 

The mission of the Refuge System is to administer a national network of lands and waters for 

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

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

generations of Americans.

Description of Use:

Removal of standing and/or fallen trees applies to all wood removal activities regardless of the 

ultimate use of the wood (firewood, lumber, pulp, etc.). Wood cutting by the public is considered 

an economic use of a district natural resource and will be allowed in the district under the 

authority of a special use permit issued by the district manager.

Is the use a proposed new use or an existing use?

Existing use.

Is the use a priority public use?

No.

Where would the use be conducted?

Harvest could occur throughout the district varying in size from a portion of an acre up to several 

hundred acres depending on the management objective of the area, as well as the quantity and 

quality of the wood. These sites are typically be found at abandoned farmsteads, along existing 
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

237

shelter belts and windbreaks, and in other areas where trees are encroaching on grassland and 

wetland habitats. 

When would the use be conducted?

Wood cutting activities could be authorized throughout the year; however, the majority of activity 

will occur during the winter months when frozen ground facilitates access and afford protection 

to underlying soils and desired vegetation. 

How would the use be conducted?

The district is located at the southernmost portion of the Prairie Pothole Region, an area known 

for its duck production. Land is primarily acquired, restored, and managed for the production of 

waterfowl. These uplands and wetlands provide the first suitable breeding habitat available to 

waterfowl on their northern flight. They also benefit other migratory birds and resident wildlife as 

well. Today, the tallgrass prairie ecosystem is globally endangered, and most of Iowa’s 

wetlands have been drained. As a result, many grassland- and wetland-dependent migratory 

birds are in great peril. 

The majority of the district is comprised of restored and intact grassland in the uplands and 

restored wetlands in the lowlands. These habitat complexes contain both native and nonnative 

grass and forb species, as well as encroaching woody vegetation. If left untreated, overtime, 

the encroaching woody vegetation reduces or eliminates desirable prairie/wetland herbaceous 

vegetation growth necessary for waterfowl and other migratory birds. Typically, prescribed 

burning, haying, and grazing are used as tools to inhibit the encroaching woody vegetation. 

However, various factors can limit the use of these tools on all or portions of some Waterfowl 

Production Areas (WPAs). Nevertheless, active removal of the encroaching woody vegetation 

by wood cutting is often less limiting. Therefore, wood cutting will be another tool used to

accomplish the same objectives by promoting the reestablishment of the grasses and forbs in 

the uplands and maintain healthy wetlands. Due to the loss of large wildfires and large-ungulate 

grazing prior to European settlement and the fast-growing nature of many tree species, wood 

cutting has become a more frequently utilized tool to help restore and maintain the tallgrass 

prairie community and its associated wetlands. This is especially true as funding and other 

factors limit the use of primary grassland management tools.

Equipment used for harvest depends on the site and its management objectives, as well as the 

permittee’s capabilities and may include axes, chainsaws, tractor-mounted shredders and 

shears, and traditional logging equipment.

Why is this use being proposed?

District management tool and public request.

Availability of Resources: 

What resources are needed to properly and safely administer use?

Staff time will be needed to administer special use permits for wood cutting, along with mapping 

and designating areas that need woody encroachment removed. Approximately twelve staff 

hours per year are anticipated for this use. 

Are existing district resources adequate to properly and safely administer the use?

Yes.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

238

Anticipated Impacts of the Use: 

How does the use affect district purposes, the Refuge System mission, and district goals

and/or objectives?

In permitting this type of activity, the potential exists to directly impact waterfowl production. 

This could happen by displacement of birds from localized areas due to disturbance, or crushing 

of nests because of access for this activity. These impacts are easily avoided by timing of the 

activity in accordance with site-specific characteristics. In limited and rare instances, a small 

number of individuals of tree-nesting species (e.g. wood duck, hooded merganser, etc.) may be 

displaced from a local area after their nest trees are removed. The indirect impacts to waterfowl 

production that will occur are primarily beneficial by facilitating the restoration of tallgrass prairie 

and removing artificially created predator habitat from within the WPAs. Access for removing 

wood may affect habitat by rutting soils, destroying ground cover, creating weed seedbeds, and 

increasing sedimentation due to runoff in nearby wetlands. However, these impacts can also be 

avoided by regulating the timing of the activity.

Public Review and Comment: 

This compatibility determination is available for public review as part of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan from Monday, August 

19th, 2013 to Tuesday, September 17th, 2013. Comments received and agency responses are 

included in the final Iowa WMD Comprehensive Conservation Plan.

Determination: 

 Use is Not Compatible

 X Use is Compatible with the Following Stipulations*

*According to state regulations Iowa Code 52.1(3) Waterfowl refuges. “The following areas 

under the jurisdiction of the department of natural resources are established as waterfowl 

refuges where posted. It shall be unlawful to hunt ducks and geese on the following areas, 

where posted, at any time during the year. It shall be unlawful to trespass in any manner on the 

following areas, where posted, during the dates posted, both dates inclusive . . . “ This 

compatibility determination does not apply to at least some portion of the following 

WPAs: Jemmerson Slough (Dickinson County), Elk Creek Marsh (Worth County), and 

Rice Lake (Winnebago and Worth Counties). 

Stipulations Necessary to Ensure Compatibility: 

1. Travel off designated routes, will be limited to periods when ground is frozen.

2. Wood harvest activities will avoid the primary nesting period for waterfowl and migratory 

birds.

3. Special use permits are required for this use.

4. Best management practices will be implemented to avoid disturbance, erosion, desirable 

habitat damage, weed dispersal and migratory bird take.

5. All applicable federal, state, and special district regulations will apply.
Appendix F: Compatibility Determinations

Iowa WMD / Final Comprehensive Conservation Plan

239

Justification: 

Any direct impacts on waterfowl production (take, disturbance, etc.) can be largely avoided by 

timing the activity so that it is not coincident with the waterfowl production season. Removal of 

trees in certain instances will, on occasion, eliminate Wood Duck, Hooded Merganser, or other 

cavity-nesting species habitat. This will be an irregular and occasional impact and, since most 

wood harvest will be associated with restoration sites, it is unlikely that these areas would have 

provided historic nesting sites. Due to the benefits that will be realized by other waterfowl 

species, and the abundance of artificial and natural nest sites for cavity-nesting species in the 

area, these impacts will not significantly detract from the WPAs’ purpose or Refuge System 

mission.

Impacts to the habitat because of access to WPAs for wood removal purposes are potentially 

significant but also easily avoided. Areas where woody species are removed for the purpose of 

conversion of the habitat type to prairie will likely receive follow-up treatments of burning, 

farming, or both. Ground disturbance in these areas is less problematic and possibly desirable 

depending on the specific site. Access to and from these areas will need to be carefully 

controlled via special use permit to avoid impacts such as rutting and increased sedimentation 

in area wetlands due to runoff. If existing roads are not present, access can be restricted to 

periods of frozen ground to avoid or minimize impacts to underlying vegetation and soils.

Other indirect impacts are generally considered positive and thus do not materially interfere with 

or detract from the purpose of waterfowl production or the Refuge System mission. The removal 

of trees along trails, in shelterbelts, and within old homesites will benefit waterfowl production by 

assisting with the restoration of prairie habitat and eliminating predator habitat and perch sites. 

Individuals participating in the wood harvest program will be under special use permit, and thus 

site-specific stipulations will ensure resource protection and achievement of management goals. 

Control of woody species encroachment on prairie habitats is a necessary management activity 

for the district in converting areas back to their historical grassland condition and directly 

supports the mission of the Refuge System.

Signature: District Manager /Timothy A. Miller/ 01 / 08 / 2014 x

(Signature and Date)

Concurrence: Regional Chief /Charles W. Blair/ 01 / 17 / 2014 x

(Signature and Date)

Mandatory 10- or 15-year Re-evaluation Date: 2023
Appendix G: List of Preparers and Contributors

Iowa WMD/ Final Comprehensive Conservation Plan 

240

Appendix G: List of Preparers and Contributors

Preparers

The following individuals were members of the core planning team, instrumental in the 

development of this document, and/or made major contributions throughout the planning 

process.

Iowa Wetland Management District Staff

Tim Miller, Project Leader

Erich Gilbert, Deputy Project Leader 

Tom Skilling, Wildlife Biologist

Anne Szelag, Administrative Technician

AnnMarie Krmpotich, Wildlife Biologist (Partners Program)

Iowa Department of Natural Resources

Mark Gulick, Northwest District Supervisor

Rick Trine, Central District Supervisor (retired during the planning process)

Jeff Joens, Central Office Executive Officer

Northwest District Biologists and Technicians

Central District Biologists and Technicians

FWS Branch of Conservation Planning Staff, Region 3 

Connie Rose, Biologist Planner

Gabe DeAlessio, GIS Specialist

Mark Hogeboom, Writer/Editor

Contributors

The following individuals also provided guidance, contributions, and support to the 

Environmental Assessment and Draft Comprehensive Conservation Plan:

FWS Regional Office Staff, Region 3

Matt Sprenger, Area 2 Refuge Program Supervisor (relocated during planning process)

Josh Eash, Regional Hydrologist 

Patricia Heglund, Regional Biologist 

James Myster, Regional Archaeologist
Appendix G: List of Preparers and Contributors

Iowa WMD / Final Comprehensive Conservation Plan

241

Maggie O’Connell, Chief, Visitor Services Branch

Rick Speer, Refuge Program Specialist 

Jim Leach, Area 3 Refuge Program Supervisor, and Jason Goldberg, Acting Area 2 Refuge 

Program Supervisor, provided comments during internal review.

FWS Partners for Fish and Wildlife Staff

Doug Helmers, State Private Lands Coordinator, Iowa Private Lands Office

Academia

Steve Dinsmore, Professor, Natural Resource Ecology and Management, Iowa State University

Susan Galatowitsch, Professor of Horticultural Science, University of Minnesota (Twin Cities)

Daryl Smith, Director and Professor Tallgrass Prairie Center, University of Northern Iowa
Appendix H: Communications

Iowa WMD/ Final Comprehensive Conservation Plan 

242

Appendix H: Communications

In this appendix:

U.S. Fish and Wildlife Service

Tribes

Individuals

Media

Congressional Officials

Organizations

The following groups and individuals were contacted to solicit their involvement throughout the 

planning process:

U.S. Fish and Wildlife Service

Regional planning chiefs and other planners as requested

National planning coordinator

National Conservation Training Center librarian

Tribes

Flandreau Santee Sioux Tribe

Lower Sioux Indian Community of Minnesota

Prairie Island Indian Community of Minnesota

Sac and Fox Tribe of the Mississippi in Iowa

Santee Sioux Nation

Sisseton-Wahpeton Oyate

Spirit Lake Sioux Tribe

Upper Sioux Community of Minnesota

Individuals

District cooperative farmers

Other general public as requested

Media

All Iowa and Minnesota media on file with the U.S. Fish and Wildlife were contacted at various 

times throughout the planning process. 
Appendix H: Communications

Iowa WMD / Final Comprehensive Conservation Plan

243

Congressional Officials

Kevin McCarthy Daniel Muhlbauer Jo Oldson Pat Ward

Helen Miller Daryl Beall John Kibbe Peter Cownie

Beth Wessel-Kroeschell Dave Deyoe John Wittneben Ralph Watts

Henry Rayhons David Tjepkes Josh Byrnes Rick Olson

Ako Abdul-Samad David Johnson Julian Garrett Robert Bacon

Amanda Ragan Dennis Black Kent Sorenson Royd Chambers

Annette Sweeney Dick Dearden Kevin Koester Ruth Ann Gaines

Bill Anderson Erik Helland Kim Pearson Scott Raecker

Bill Dix Gary Worthan Lance Horbach Sharon Steckman

Brad Zaun Herman Quirmbach Linda Upmeyer Steve Sodders

Bruce Hunter Jack Hatch Lisa Heddens Steve Kettering

Chip Baltimore Jack Whitver Mark Smith Stewart Iverson

Chris Hagenow James 

VanEngelenhoven Mathew McCoy Tim Kapucian

Clel Baudler Janet Petersen Merlin Bartz Tom Shaw

Daniel Huseman Jeff Smith Nancy Boettger Dennis Guth

Daniel Kelley Jerry Behn Pat Grassley Randy Feenstra

Jake Chapman Mark Segebart Mary Jo Wilhelm Charles Schneider

Amy Sinclair Megan Hess Helen Miller Tedd Gassman

Marti Anderson Todd Prichard Rob Taylor Joe Riding

Beth Wessel-Kroeschell Greg Heartsill Dean Fisher Jake Highfill

John Landon John Forbes

Organizations

Northwestern 

University -

Environmental 

Policy And 

Culture

Calhoun 

County Board 

Of Supervisors

Floyd County 

Conservation 

Board (CCB)

Iowa Lakes 

Regional 

Water

Pocahontas 

County Board 

Of 

Supervisors

Marshall 

County Farm 

Service Agency
Appendix H: Communications

Iowa WMD/ Final Comprehensive Conservation Plan 

244

National Wildlife 

Refuge 

Association

Calhoun CCB Franklin County 

Board Of 

Supervisors

Iowa Pork 

Producers

Pocahontas 

CCB

Algona Service 

Center

PEER Refuge 

Keeper

Carroll County 

Board Of 

Supervisors

Franklin CCB Iowa Soybean 

Association

Polk County 

Board Of 

Supervisors

Humboldt 

Service Center 

And Humboldt 

Soil and Water 

Conservation 

District (SWCD)

Defenders Of 

Wildlife

Carroll CCB Greene County 

Board Of 

Supervisors

Iowa Turkey 

Federation

Polk CCB Kossuth County 

Farm Service 

Agency

Wilderness 

Watch

Center Lake 

Improvement 

& Preservation 

Association

Greene CCB Jasper County 

Board Of 

Supervisors

Sac County 

Board Of 

Supervisors

Cerro Gordo 

County Farm 

Service Agency

National 

Trappers 

Association, 

Inc.

Cerro Gordo 

County Board 

Of Supervisors

Grundy County 

Board Of 

Supervisors

Jasper CCB Sac CCB Adel Service 

Center And 

Dallas SWCD

The Wilderness 

Society

Cerro Gordo 

CCB

Grundy CCB Kossuth 

County Board 

Of Supervisors

Spirit Lake 

Protective 

Association

Butler County 

Farm Service 

Agency

The Humane 

Society Of The 

United States

Cherokee 

County Board 

Of Supervisors

Guthrie County 

Board Of 

Supervisors

Kossuth CCB Story County 

Board Of 

Supervisors

Northwood 

Service Center

National Wildlife 

Federation

Cherokee 

CCB

Guthrie CCB Marshall 

County Board 

Of Supervisors

Story CCB Thompson 

Service Center 

And Winnebago 

SWCD

Sierra Club –

Midwest Office

Clay County 

Board Of 

Supervisors

Hamilton 

County Board 

Of Supervisors

Marshall CCB Webster 

County Board 

Of 

Supervisors

Iowa Native 

Plant Society

The 

Conservation 

Fund

Clay CCB Hamilton CCB Mitchell 

County Board 

Of Supervisors

Webster CCB Wessling Ag. 

Inc.

Colleen 

Hovinga, 

Friends Of 

Union Slough

NWR

Dallas County 

Board Of 

Supervisors

Hancock 

County Board 

Of Supervisors

Mitchell CCB Winnebago 

County Board 

Of 

Supervisors

Dallas County 

Farm Service 

Agency
Appendix H: Communications

Iowa WMD / Final Comprehensive Conservation Plan

245

Audubon 

Society Of The 

District Of 

Columbia

Dallas CCB Hancock CCB O’Brien 

County Board 

Of Supervisors

Winnebago 

CCB

Estherville 

Service Center

Boone County 

Board Of 

Supervisors

Dickinson 

County Board 

Of Supervisors

Hardin County 

Board Of 

Supervisors

O’Brien CCB Worth County 

Board Of 

Supervisors

Spirit Lake 

Service Center 

And Dickinson 

SWCD

Boone CCB Dickinson 

CCB

Hardin CCB Okoboji 

Protective 

Association

Worth CCB Storm Lake 

Service Center 

And Buena 

Vista SWCD

Buena Vista 

County Board 

Of Supervisors

East Okoboji 

Lakes 

Improvement 

Corporation

Horizon Wind 

Farms, Upper 

Midwest 

Regional Office

Osceola 

County Board 

Of Supervisors

Wright County 

Board Of 

Supervisors

Carroll Service 

Center

Buena Vista 

CCB

Emmet County 

Board Of 

Supervisors

Humboldt 

County Board 

Of Supervisors

Osceola CCB Wright CCB Clarion Service 

Center And 

Wright SWCD

Butler County 

Board Of 

Supervisors

Emmet CCB Humboldt CCB Palo Alto 

County Board 

Of Supervisors

Xenia Rural 

Water

Iowa Trappers 

Association

Butler CCB Floyd County 

Board Of 

Supervisors

Iowa Corn 

Growers 

Association

Palo Alto CCB Story Soil And 

Water 

Conservation

District

Newton Service 

Center And 

Jasper SWCD

Polk County 

Farm Service 

Agency

Iowa Falls 

Service Center 

And Hardin 

SWCD

R.S. Stover 

Company

Hamilton Soil 

And Water 

Conservation 

District

Webster City 

Service 

Center

Webster Soil 

And Water 

Conservation 

District

Marshalltown 

Service Center 

And Marshall 

SWCD

Humboldt 

County Farm 

Service 

Agency

Boone Service 

Center, NRCS

Calhoun 

County Farm 

Service 

Agency

Hardin County 

Farm Service 

Agency

Dickinson 

County Clean 

Water Alliance

Nevada Service 

Center

Webster

County Farm 

Service 

Agency

Greene County 

Farm Service 

Agency

Iowa 

Cattlemen’s 

Association

Primghar 

Service 

Center And 

O’Brien 

SWCD

Izaak Walton 

League, 

Oakdale 

Chapter

Guthrie County 

Farm Service 

Agency

Iowa Prairie 

Network

Ducks 

Unlimited

Osage Service 

Center

Arco 

Dehydrating

Grundy County 

Farm Service 

Agency
Appendix H: Communications

Iowa WMD/ Final Comprehensive Conservation Plan 

246

Hancock 

County Farm 

Service Agency

Garner 

Service Center 

And Hancock 

SWCD

Rockwell City 

Service Center

Ankeny 

Service Center 

And Polk 

SWCD

Franklin 

County Farm 

Service 

Agency

Iowa Natural 

Heritage 

Foundation

Izaak Walton 

League, Rice 

Lake Chapter

Guthrie Center 

Service Center 

And Guthrie 

SWCD

Sac City 

Service Center

Iowa 

Ornithologists 

Union

Osceola 

County Farm 

Service 

Agency

Story County 

Farm Service 

Agency

Emmetsburg 

Service Center 

And Palo Alto

SWCD

Boone Soil 

And Water 

Conservation 

District

Pocahontas 

Service Center 

And 

Pocahontas 

SWCD

Pocahontas 

County Farm 

Service 

Agency

Jasper County 

Farm Service 

Agency

Cerro Gordo 

Soil And Water 

Conservation 

District

Spencer 

Service Center 

And Clay 

SWCD

Worth Soil 

And Water 

Conservation 

District

Dickinson 

County Farm 

Service Agency

PMB Farms Wright County 

Farm Service 

Agency

Izaak Walton 

League, Boone 

Valley Chapter

Charles City 

Service Center 

And Floyd 

SWCD

Pheasants 

Forever And 

Quails Forever

Allison Service 

Center And 

Butler SWCD

Creating Great 

Places

M&M Divide 

RC&D

Kossuth CCB

Fort Dodge 

Service Center

Sac County 

Farm Service 

Agency

Hampton 

Service Center 

And Franklin 

SWCD

Iowa 

Bowhunters 

Association

White Rock 

Conservancy

Izaak Walton 

League, Emmet

County Chapter

Sac Soil And 

Water 

Conservation 

District

Floyd County 

Farm Service 

Agency

Boone County 

Farm Service 

Agency

Izaak Walton 

League, Floyd 

County 

Chapter

Agren, Inc. Carroll County 

Farm Service 

Agency

Izaak Walton 

League, Worth 

County Chapter

Diversity 

Farms

Clay County 

Farm Service 

Agency

Cherokee 

Service Center 

And Cherokee 

SWCD

Hamilton 

County Farm 

Service 

Agency

Emmet Soil And 

Water 

Conservation 

District

Cherokee 

County Farm 

Service Agency

Mitchell Soil 

And Water 

Conservation 

District

Izaak Walton 

League, 

Dickinson 

County Chapter

Buena Vista 

County Farm 

Service 

Agency

Waterfowl 

Association Of 

Iowa

Grundy Center 

Service Center

Winnebago 

County Farm 

Service Agency

Saving Our 

Avian 

Resources

Palo Alto 

County Farm 

Service Agency

Izaak Walton 

League, East 

Fork Chapter

Mason City 

Service 

Center

Jefferson 

Service Center 

And Greene 

SWCD

Ducks 

Unlimited

Osceola Soil 

And Water 

Conservation 

District

Emmet County 

Farm Service 

Agency

Izaak Walton 

League, 

Marshall 

County 

Chapter

Calhoun Soil 

And Water 

Conservation 

District

O Brien County 

Farm Service 

Agency
Appendix H: Communications

Iowa WMD / Final Comprehensive Conservation Plan

247

Mitchell County 

Farm Service 

Agency

Sibley Service 

Center

Iowa 

Environmental 

Council

Grundy Soil 

And Water 

Conservation 

District

Carroll Soil 

And Water 

Conservation 

District

Worth County 

Farm Service 

Agency

Kossuth Soil 

And Water 

Conservation 

District

Iowa 

Department of 

Natural 

Resources
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD/ Final Comprehensive Conservation Plan 

248

Appendix I: Memorandum of Understanding with Iowa 

Department of Natural Resources
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD / Final Comprehensive Conservation Plan

249
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD/ Final Comprehensive Conservation Plan 

250
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD / Final Comprehensive Conservation Plan

251
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD/ Final Comprehensive Conservation Plan 

252
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD / Final Comprehensive Conservation Plan

253
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD/ Final Comprehensive Conservation Plan 

254
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD / Final Comprehensive Conservation Plan

255
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD/ Final Comprehensive Conservation Plan 

256
Appendix I: Memorandum of Understanding with Iowa Department of Natural Resources

Iowa WMD / Final Comprehensive Conservation Plan

257
Appendix J:Response to Comments

Iowa WMD/ Final Comprehensive Conservation Plan 

258

Appendix J: Response to Comments

Editor’s Note: All “comments” are presented verbatim as received by the U.S. Fish and Wildlife 

Service (FWS, Service).

Comment 1: you did not use the words nwr anywhere in the federal register title. why is that? is 

this a sneaky nwr? what is the purpose here? you said every nwr has a purpose - what have 

the almighty fws decided is the purpose here. please send me a paper copy of the ea, which 

should be an eis, asap. i believe all human slime murder of innocents birds and animals shoudl 

be prohibited in this site since their numbers are precipitously declinins from climate change, 

human predation, oil and gas drilling extremes, etc. your population numbersr that you use are 

so out of whackthey are complete frauds. Jean Public

Response 1: This particular management plan is for a Wetland Management District (WMD, 

district). While it is a part of the National Wildlife Refuge System (NWRS, Refuge System) and 

does require a comprehensive conservation plan (CCP), it is a little different from a National 

Wildlife Refuge (NWR, refuge) in terms of land acquisition funding, some of the management, 

and public use regulations. As described in the environmental assessment (EA) and Draft CCP, 

the purposes for the Iowa WMD are based upon its land acquisition authority, which is the 

Migratory Bird Hunting and Conservation Stamp Act of 1934:

“ . . . as Waterfowl Production Areas subject to . . . all of the provisions of such Act 

[Migratory Bird Conservation Act of 1929] . . . except the inviolate sanctuary provisions .

. . ” 16 U.S.C. § 718(c) “ . . . for any other management purpose, for migratory birds." 16 

U.S.C. § 715d

Land for the district is primarily acquired with federal “duck stamp” money, most often originating 

from duck hunters. Therefore, the overall primary purpose of the district is waterfowl production 

for the overall primary use of waterfowl hunting. 

Comment 2: these sites are not for the birfds. they are for the human slime killing and 

murdering the birds, that is who they are for. that needs to be stopped. this is not l929 have you 

noticed that this is not l929? IT IS TIME TO UPDATE1929 LAWS THAT ARE COMPLETELY 

OUT OF SYNC WITH 2013. Jean Public

Response 2: The Migratory Bird Conservation Act of 1929, which established the Migratory 

Bird Conservation Commission, along with the Migratory Bird Hunting and Conservation Stamp 

Act of 1934 (also known as the Duck Stamp Act) have been very important for wetland and 

waterfowl conservation since their inception and remain so today. Federal Duck Stamps are 

vital tools for wetland conservation. Ninety-eight cents out of every dollar generated by the sale 

of federal Duck Stamps goes directly to purchase or lease wetland habitat for protection in the 

National Wildlife Refuge System. Understandably, the federal Duck Stamp has been called one 

of the most successful conservation programs ever initiated and is a highly effective way to 

conserve America’s natural resources.

Since 1934, sales of federal Duck Stamps have generated more than $800 million, which has 

been used to purchase or lease over six million acres of wetlands habitat in the United States. 

These lands are protected in the Service's Refuge System.
Appendix J:Response to Comments

Iowa WMD / Final Comprehensive Conservation Plan

259

Waterfowl are not the only wildlife to benefit from the sale of federal Duck Stamps. Numerous 

other bird, mammal, fish, reptile, and amphibian species that rely on wetlands have prospered. 

Further, an estimated one-third of the nations endangered and threatened species find food or 

shelter on refuges established using federal Duck Stamp funds.

People, too, have benefited from the federal Duck Stamp. Hunters have places to enjoy their 

sport, and other outdoor enthusiasts have places to hike, watch birds, photograph, and explore. 

Moreover, these protected wetlands help purify water supplies, store floodwater, reduce soil 

erosion and sedimentation, and provide spawning areas for fish important to sport and 

commercial anglers. 

Comment 3a: i do not support this unnaturalplan to turn our national land into grasslands and 

believe letting the land grow naturally is much more important for naturalbiological diversity 

which is essential for safe and healthful birds and animals. this plan and site uses NATIONAL 

TAXPAYER FUNDS SO IT SHOUDL BE A PLAN THAT ENHANCES THE LAND FOR 

NATIONAL CITIZENRY/TAXPAYERS. this shoudl not be a specific plan to grow birds toshoot to 

death for local wildlife murderers. that is a misuse of national tax dollars. you are settiing up an 

unnatural producin system of growing birds to kill them. is that because dan ashe, a known 

wildlife killer is now in charge of fws that every animal and bird is grown to be murdered byslime 

human beings with a blood lust to kill. the majority of america and our taxpayer citizens are not 

of that ilk. this plan also seems to have elements of Iowa factory farms - growing in profusion 

instead of in the natural ecological system. All americans have had their fill of those factory 

farms situations. this unnatural plan and maulling of the land does not help natural biodiversity.

Response 3a: Most of the land acquired for the Iowa WMD is land that has been farmed and 

drained with no natural cover left. The goal for the acquired land is to put it back into some form 

of natural cover, preferably native cover. 

Duck hunters provide the primary source of funding for acquiring land for the district through 

their purchase of a federal Duck Stamp. Therefore, the primary purpose of the district is for 

waterfowl production, and thereby the primary use of the district is waterfowl hunting.

With the approval of this plan, the district has a goal of converting all the existing land in 

agriculture to a natural/native cover and converting any new acquisitions into natural/native 

cover within two years of purchase (unless there is some outstanding circumstance such as a 

legal farming lease, etc.). 

Comment 3b: pg 10 - i do not support "farming" which is diametrically different than natural 

systems. this is also not a "state" project so tell teh iowa dnr to butt out. This plan needs to 

satisfy nnational taxpayers, whose money/tax dollars you plan to tax them for.

NO GMO corn should be grown on this national site. Fact is use of glyphosate by agribusiness 

is killing birds. I do not support national tax dollars going to private farms or lands because the 

opportunity for huge corruption is present in that. much corruption takes place when govt has 

"pals" they pay money to. private property owners love to get tax dollars for doing nothing. there 

is no "improved water quality" when agribusiness is loading the land with glyphosate, nitrogen 

etc. why is this agency writing such lies?

Response 3b: In 2011, the Service’s Midwest Region completed an EA for row crop farming 

and the use of genetically-modified, glyphosate-tolerant (GMGT) corn and soybeans on 

refuge/district land (FWS, 2011c). Under the selected alternative, and having begun in calendar 
Appendix J:Response to Comments

Iowa WMD/ Final Comprehensive Conservation Plan 

260

year 2012, the use of GMGT corn and soybeans on Refuge System land in the Midwest Region 

will continue only for the purpose of habitat restoration. According to the EA, the use of GMGT 

corn and soybeans will be limited to five years on any individual tract being prepared for habitat 

restoration. Farming could continue to be used as a management tool for achieving multiple 

objectives; however, it will be limited to non-GMGT crops for objectives other than habitat 

restoration. Multiple objectives include but are not limited to the following:

• Habitat restoration

• Habitat management

• Supplemental food for wildlife 

• Providing lure crops on public lands to reduce wildlife depredation on private lands

• Enhancing opportunities to hunt, view, and photograph wildlife for the visiting public

Similarly, the Service’s ecological integrity policy specifies that GMGT crops cannot be used on 

Refuge System land unless they are “essential to accomplishing refuge [district] purposes.” 

Habitat restoration is a core objective of most refuges (districts) in achieving their purpose and 

in some circumstances, the use of GMGT crops could be essential. However, habitat 

management, supplemental food, and wildlife viewing objectives can more readily be 

accomplished without the use of GMGT seeds, and thus, their use is not likely essential.

Improved water quality will come from seeding down the existing bare soil in the agricultural 

fields. Regardless of what is applied to the soil, if it is held in place, other nutrients and 

chemicals will stay with the soil and not be as likely to run-off to a water supply. 

Comment 3c: the conservation reserve program is a "crap" program which is usesless. the 

employees in this agency do nothing and get paid for doing nothing and the waste from this 

program is enormous. it needs to be shut down. it is bankrupting national taxpaeyrs for 

producing zero results.Iowa is a rich state. If they have the only input, they should put up 100% 

of the entire money for this project instead of bankrupting national taxpayers and giving them no 

voice. 

Response 3c: This comment is beyond the scope of this project. While the Conservation 

Reserve Program (CRP) is mentioned in this plan as providing additional natural/native cover 

and thereby habitat for wildlife, this plan does not serve to address the CRP program itself.

Comment 3d: You cannot assume thebirds are gone only because of loss of habitat when 

climate change, hunters killign everything in sight, huge use of toxic chemicals by agribusiness, 

and aphis killing animals and birds with abandon and sneakiness also has an effecft on birds 

among other impacts like prescribed burnng which is major air contamination for all of america. 

Lead kills birds, as does mercury. Con tamination is a major factor and saying land change is 

the only factor is stupid. The assumptions for bird population decline is one sided as if nature 

exists in a vacuum for one thing only. Ban all use of lead shot and lead sinkers. This failure to 

act shows negligence ont he part of this agency for 40 years! the lead shot is killing the birds 

yet you continue to allow it while gouging taxpayers to grow birds. makes no sense.

Response 3d: All of these other stressors (pesticide use, hunting, climate change, etc.) on the 

environment and its associated wildlife are recognized and discussed in the plan. Many of

these stressors lead to loss or deterioration of habitat for wildlife. 
Appendix J:Response to Comments

Iowa WMD / Final Comprehensive Conservation Plan

261

Currently the only hunting in the district that is not required by law to use non-toxic shot is turkey 

hunting and slug deer hunting. A ban on the use of lead shot for waterfowl hunting was phasedin starting with the 1987–88 hunting season. The ban became nationwide in 1991. Many 

refuges and, per state regulations, most counties within the Iowa WMD also ban the use of toxic 

shot for upland game hunting for such species as squirrel, rabbit, quail, pheasant, and/or 

partridge. The Service continues to look at options and ways to reduce the direct and indirect 

impacts of toxic shot to scavengers and other wildlife. The Service is and has been phasing out 

the use of lead shot by hunters on Refuge System land. This plan proposes to eliminate the 

use of lead shot for turkey hunting in the following manner:

Within two years of CCP approval, it will be proposed through the federal rulemaking 

process to implement the following regulation on the Service’s fee title property within 

the Iowa WMD: “You may only use or possess approved nontoxic shot shells while in the 

field, including shot shells used for hunting wild turkey.” This requirement would be in 

line with current regulations at 50 CFR 32.2(k).

As for fishing tackle, there are nontoxic fishing weights, such as split shots, for use in nontidal 

waters that are readily available on the marketplace. Many anglers use fishing tackle made from 

nontoxic materials such as tin, bismuth, steel, and tungsten alternatives, which are found in all 

50 states. Many refuges/districts have banned lead sinkers for years. The issue of using all 

nontoxic shot and tackle for all hunting and fishing in the district is a larger agency decision that 

is beyond the scope of this EA. 

Comment 3e: why is iowa dnr making rules for this land when they pay zero on it an dyou 

gouge national taxpayers to pay for this land? decisions on this are essential to this project.

Response 3e: In Iowa, with the signing of a Memorandum of Understanding (MOU) in 1978, it 

was decided that while the Service would provide federal Duck Stamp funds for land 

acquisitions, the Iowa Department of Natural Resources (DNR) would supply the personnel 

necessary to restore and manage those acquisitions (Waterfowl Production Areas [WPAs]). 

Therefore, the Iowa DNR works in close partnership with the Service to acquire, restore, and 

manage the land for the district. 

Comment 3f: pg 36 - less "mgt" should be th egoal for this land. the public sees no 

improvement in the land when there is intense "mgt" when the "mgt" is the problem.

pg 37 that awful picture of prescribed burning loading the air with fine particulate matter shows 

stupid mgt at work killing everything. this burning causes lung cancer, heart attacks, strokes, 

allergies, pneumonia, and asthma - you are contaminating the air. no livign thing that breathes 

can stand that assault. Plans for sites should come from the pubilc. the employees at fws seem 

to make up plans that enhance their jobs or their influence. this "mgt" seems to regard itself as 

the lord of the manor and the public as "serfs" who they can disrespect in planning.

Response 3f: Prairie vegetative productivity declines and extensive invasion of woody and 

other invasive plant species occur in the absence of disturbances such as prescribed fire, 

grazing, haying, or mowing (Herkert, 1994). In addition, there is evidence that there is a positive 

relationship between plant species diversity and ecological stability in response to climatic 

stressors like drought, flooding, and climate change (Tillman and Downing, 1994). Various 

management tools must be used to manipulate grasslands to achieve the mosaic of habitat 

conditions needed to attract a diversity of grassland bird species. Management actions such as 
Appendix J:Response to Comments

Iowa WMD/ Final Comprehensive Conservation Plan 

262

haying, mowing, burning, grazing, tree removal, and rest will all have positive influences for 

some bird species while simultaneously having negative influences for other bird species. The 

careful application of these management actions across the lands in the Iowa WMD will help to 

ensure that a wide variety of grassland-dependent bird species can find appropriate habitat 

throughout the Iowa prairie pothole landscape.

The public was given ample opportunity to be involved in the development of this plan. Initial 

conversations about comprehensive planning for the district began mid-year of 2009; however,

the official kick-off was in December 2011. The public scoping period began on January 30, 

2012 and lasted for 30 days. The public was contacted through letters, news releases, and four 

open house meetings. The open houses gave the public an opportunity to discuss issues with 

district and Iowa DNR staff and regional planners. Thirty-nine people attended the open 

houses, and 25 written comments were received during the public scoping period. All of this 

input was considered during the development of the plan. The public was also given 30 days to 

review and comment on the EA and Draft CCP document. This review period began on 

Monday August 19th, 2013 and was announced through postcards, news releases, and two 

open house meetings. 

Comment 3g: alt c is best with banning hunting/trapping/new roads and catering to the majority 

of visitors who come for passive safe enjoyment of these lands.

Response 3g: WPAs differ from refuges in that they are open to hunting, fishing, and trapping 

in accordance with state law. Therefore, WPAs are "open until closed” by state or federal law 

for hunting, fishing, and trapping. Refuges on the other hand are “closed until opened” to these 

uses. However, WPAs can be opened to other uses if determined to be appropriate and 

compatible with the mission of the Refuge System and the purposes of the district. 

Hunting, in particular, has a long history with WPAs. When Congress amended the Duck Stamp 

Act in 1958, it authorized the acquisition of wetlands and uplands as WPAs and waived the 

usual "inviolate sanctuary" provisions. Thus, WPAs were intended to be open to waterfowl 

hunting, in part because waterfowl hunters, through the purchase of federal Duck Stamps and 

support for price increases of the stamp, played a major role in acquisition of these areas. 

Hunting, for both waterfowl and resident game species accounts for more than half of the visits 

to WPAs.

Alternative C does not ban hunting, trapping, and new roads. Alternative C would include the 

following:

• Public use facilities (kiosks, trails, pull-offs, etc.) would be provided at three locations 

across the district

• Other recreational opportunities would be provided in addition to hunting, fishing, and 

trapping

Since migrating waterfowl are better suited for observation, strategically located additional 

public use facilities (i.e., kiosks, trails, pull-offs) and opportunities are appropriate for such a 

focus. The public has requested additional wildlife-dependent and non-wildlife-dependent use 

opportunities in the district. Alternative C would allow for many of these uses to occur, which 

have been found to be appropriate and compatible. Environmental education, interpretation, 

and outreach, however, would remain at current levels with public use information being 
Appendix J:Response to Comments

Iowa WMD / Final Comprehensive Conservation Plan

263

provided through Union Slough NWR and Iowa DNR offices and websites. More effort would be 

placed on distributing a consistent message for the entire district. 

Comment 3h: pg 108 i am very much opposed to paying private farmers for grassland 

mowing. The value of what they provide is highly suspect and also subject to corruption.

Response 3h: The Iowa WMD does occasionally use private entities to complete mowing of 

grasslands for habitat management. This is typically done due to the constraints and logistics 

and infeasibility of moving large equipment great distances. The Iowa WMD contains fee title 

lands currently in 18 Iowa counties, creating difficulty in using station equipment at remote 

locations. For this reason contractors are used in some cases to complete the prescribed 

habitat management. Mowing by contractors is done to manage new native tallgrass seedings, 

reducing the burden of annual weeds that prohibit the grassland establishment. 

Comment 3i: The biblioigrapy you used to plan is antique and obsolete and represents a 

complete loss of taxpayer dollars and time. ten years ago is an eternity in this rapidly changing 

world. no refernces from l974 have anyimpact on what is going on with this land. Jean Public

Response 3i: Nearly all of the literature cited in the bibliography of the CCP is from peerreviewed scientific publications. Other citations are for well-respected agency publications and 

policies. The year of publication is usually irrelevant to an article’s merit once it clears the peerreview process. Many basic principles of ecology and biology published decades ago are still 

very relevant today. 

Comment 4a: On behalf of Public Employees for Environmental Responsibility (PEER) and 

Center for Food Safety (CFS), I submit the following comments on the Iowa Wetland 

Management District (Iowa WMD) Environmental Assessment and Draft Comprehensive 

Conservation Plan (Draft EA/CCP). The preferred alternative in the Draft EA/CCP is Alternative 

D, which combines the alternatives and primarily focusses on breeding waterfowl and restoring 

cropland to perennial grassland and wetlands in order to accomplish the breeding goal. While 

PEER and CFS support the Draft EA/CCP’s focus on converting croplands to grasslands and 

wetlands, as explained below, it inadequately addresses the use of genetically engineered (GE) 

crops and pesticides, particularly neonicotinoids.

By way of overview, it should also be noted that the Iowa WMD has been operating without a 

CCP or an EA that appropriately evaluates the myriad of impacts from refuge farming 

operations. PEER and CFS appreciate that the WMD has now attempted to come into 

compliance with the National Wildlife Refuge System Administration Act, National Wildlife 

Refuge Improvement Act and National Environmental Policy Act, but these commenters believe 

that more work needs to be done before WMD operations are compliant with federal law.

Response 4a: Thank you for your support of the preferred alternative for the Iowa WMD. 

Further responses regarding the use of genetically engineered (GE) crops and pesticides in the 

Iowa WMD can be found under the Cooperative Farming section in chapter 2 and in appendix K

in the Iowa WMD Environmental Assessment and Draft Comprehensive Conservation Plan 

available online at http://www.fws.gov/midwest/planning/iowawetlands/index.html. 

Comment 4b: 1. FWS Improperly Considered Its Own Biological Integrity Policy.

The Draft EA/CCP properly recognizes that FWS’s own policy on Biological Integrity, Diversity 

and Environmental Health for the National Wildlife Refuge System states that the use of GE 

crops is only permitted when “essential” to the wildlife refuge. The Merriam-Webster
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dictionary defines essential as “necessary” or indispensable.” Even if it could be shown for 

argument’s sake that GE crops may have certain advantages over non-GE crops, it cannot be 

shown that GE crops are necessary or indispensable to accomplishing a legitimate refuge 

purpose that could not be accomplished by other means. This is especially true when the 

purpose the use of manmade GE crops is to serve is restoring natural habitat.

In fact, FWS has conceded that GE crops are used because they are more available and 

cheaper for cooperative farmers than farming with non-GE crops. Thus, FWS’ justification for 

GE crops is not necessity but cheapness – hardly a sufficient justification for subverting the 

biological integrity of refuges or agency policy. Because of litigation, the Southeast Region 

ceased farming with GE crops in 2013 and is currently farming with conventional seed. 

Southeast farming reports indicate that significant acreage is planted with conventional corn and 

soybeans undercutting FWS’ claim that farming without GE seed is impractical. Cultivating GE 

crops due to farmers’ convenience rather than essentiality to a refuge purpose cannot meet the 

Service policy. If the WMD plans to restore habitat through GE crop farming, it should carefully 

consider these factors in the Draft EA/CCP as to whether GE crops are “essential” for 

accomplishing refuge goals.

Response 4b: See the Description of the Farming Program for the Iowa Wetland Management 

District section and bullet number 3 under the Site-specific Effects Analysis for the Farming 

Program for the Iowa Wetland Management District section in appendix K of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan available online at

http://www.fws.gov/midwest/planning/iowawetlands/index.html. 

Comment 4c: 2. The Draft EA/CCP fails to include site-specific analysis of GE crops impacts.

The Draft EA/CCP briefly mentions that GE corn and soybeans cultivation was addressed in 

2011 when the Midwest Region completed an EA for GE row crop farming and that GE corn and 

soybeans cultivation could continue on Refuge lands only for the purpose of habitat restoration. 

Draft EA/CCP at 10. In the context of litigation challenging the Midwest Programmatic by these 

commenters, FWS stated that the Programmatic EA does not itself authorize planting on 

refuges and that site-specific analysis would occur at the CCP level. However, this Draft 

EA/CCP does not analyze the refuge specific impacts of GE crops and GE crop cultivation 

continues on the WMD

While it is unclear from the Draft EA/CCP the extent to which GE crops will be used to convert 

cropland to grasslands, presumably GE crops will be used in the habitat restoration process. 

Draft EA/CCP at 121; 132 (noting intent to acquire more land). The WMD hopes to accomplish 

converting row crops to grassland by planting native grasses. Planting native grasses is limited 

however by budget and resources and thus the likely default will be using GE crops for habitat 

restoration.

In order for GE crops to be used on the WMD, the WMD must analyze the myriad of impacts 

from GE crop cultivation in the EA/CCP. The Draft EA/CCP only engages in a cursory 

discussion of GE crops and appears to punt site specific analysis to cooperative farming 

agreements or other processes like Pesticide Use Proposals or Compatibility Determinations. 

However, such documents are not NEPA documents and cannot be used to comply with NEPA. 

Moreover, despite purported reliance on such documents for environmental analysis, CFAs, 

PUPs and CDs do not actually contain the level of analysis required by NEPA, and in fact often 

contain little or no analysis of the environmental impacts of the use of GE crops on specific 

refuge environments. FWS must consider the refuge specific environmental impacts at the 
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outset of the process because beginning to cultivate GE crops without conducting site specific 

analysis violates NEPA.

Response 4c: See bullet number one under the Site-specific Effects Analysis for the Farming 

Program for the Iowa Wetland Management District section in

appendix K of the Iowa WMD Environmental Assessment and Draft Comprehensive 

Conservation Plan available online at

http://www.fws.gov/midwest/planning/iowawetlands/index.html. 

Comment 4d 3. The Preferred Alternative has significant environmental impacts that the Draft 

EA/CCP failed to analyze and that warrant the preparation of an environmental impact 

statement (EIS). The National Environmental Policy Act of 1969 sets forth substantive 

environmental quality goals for the government and the nation. See 42 U.S.C. §4331. Under 

NEPA, every agency of the United States Government must include an EIS in every 

“recommendation or report on proposals for legislation and other major Federal actions 

significantly affecting the quality of the human environment.” 42 U.S.C. § 4332(2)(C).

NEPA’s implementing regulations, promulgated by the Council on Environmental Quality (CEQ), 

provide that if the action is not covered by a categorical exclusion from NEPA, the agency must 

prepare an EA to determine whether or not an EIS is required. 40 C.F.R. § 1501.4(a)–(c). If the 

action is one that normally requires an EIS, the agency is to prepare an EIS without first 

preparing an EA. Id., § 1501.4(a) and (b); §1501.3(a).

The CEQ regulations define the term “significantly” as used in NEPA to determine when an EIS 

is required, to require consideration of the unique characteristics of the geographical area 

impacted, such as park lands, wetlands, ecologically critical areas, or prime farmland, id. § 

1508.27(b)(3); “the degree to which the effects on the quality of the human environment are 

likely to be highly controversial,” id. § 1508.28(b)(4); “the degree to which the possible effects on 

the environment are highly uncertain or involve unique or unknown risks,” id. § 1508.27(b)(5); 

and “whether the action threatens a violation of Federal, State, or local law or requirements 

imposed for the protection of the environment.” Id. § 1508.28(b)(10).

NEPA requires that agencies “study, develop, and describe alternatives to recommended 

courses of action in any proposal which involves unresolved conflicts concerning alternative 

uses of available resources,” even where an EIS is not required. 42 U.S.C. § 4332(E); 40 C.F.R. 

§ 1508.9(a)(3)(b).

NEPA’s implementing regulation at 40 C.F.R. §§ 1500.1(b) provides in part that:

“NEPA procedures must ensure that environmental information is available to public 

officials and citizens before decisions are made and before actions are taken. The 

information must be of high quality. Accurate scientific analysis, expert agency 

comments, and public scrutiny are essential to implementing NEPA...”

The CEQ regulations at 40 C.F.R. § 1506.1 further provide that:

(a) Until an agency issues a record of decision [on an EIS] ... no action concerning the 

proposal shall be taken which would:

(1) Have an adverse environmental impact; or

(2) Limit the choice of reasonable alternatives.

The Draft EA/CCP failed to address a number of significant environmental impacts at the refuge 

level regarding GE crop cultivation, including transgenic contamination and volunteers, 
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increased weed and insect resistance, adverse impacts on threatened and endangered species 

and increased pesticide use. An EIS is required when, as here, an activity may have significant 

environmental impacts. 42 U.S.C. § 4332(C).

1. Transgenic Contamination & Volunteers:Transgenic contamination is a critical risk arising 

from GE crops that FWS biologists acknowledge may adversely affect refuges, and that two 

federal courts have found to be a legally cognizable and significant environmental risk. 

Transgenic contamination is the process by which genes from GE crops transfer to natural and 

wild plants, resulting from both human error and natural events, including pollen drift, seed 

mixing, flooding, seeds in machinery, and seed spillage. Unlike other forms of pollution, there is 

no way to prevent transgenic contamination or to stop it once it has begun. As a living form of 

pollution, it is self-propagating and pollutes both non-GE crops and natural ecosystems. A single 

incident of transgenic contamination can cost farmers hundreds of millions of dollars nationwide.

Because a main purpose of wildlife refuges is to preserve functioning ecosystems to conserve 

wildlife and to create native grassland suitable for bird breeding habitat, FWS must carefully 

consider the effects of transgenic contamination by GE crops and that the harms associated 

with it are unavoidable and virtually irremediable. FWS should also consider transgenic 

contamination on the surrounding private farmers cultivating conventional and organic crops.

Volunteers—GE seeds that have re-germinated—are another threat posed by GE crops on 

wildlife refuges. Indeed, on the thirty-four wildlife refuges in the Southeast Region that planted 

GE crops in 2012, fourteen reported volunteers in the following season. Volunteers may 

interfere with management of the wildlife refuge by extending the effects of GE crops past their 

planting season and into places not intended for crops. Moreover, they are increasingly harder 

to manage with herbicides. The Draft EA/CCP failed to analyze these impacts on the WMD.

2. GE Crops Foster Evolution of Resistant Weeds and Insects:FWS should consider that GE 

glyphosate resistant and Bt crops have spurred the evolution of herbicide resistant weeds and 

Bt-toxin resistant insects.

The major current use of genetic engineering in agriculture is to make crops herbicide-tolerant, 

primarily to the weed-killing chemical glyphosate and Monsanto’s proprietary formula, Roundup. 

Extensive evidence, including warnings from FWS biologists, demonstrates that greatly 

increased reliance on glyphosate associated with Roundup Ready crops has fostered a 

dramatic increase in acreage infested with glyphosate-resistant and glyphosate-tolerant weeds.

Many experts in the field recognize the escalating problem of weed resistance, and at least nine 

different weed species have been confirmed as glyphosate-resistant in 20 states. For example, 

glyphosate-tolerant horseweed has been reported in annual row crops in 13 states, including 

Arkansas, Mississippi, Kentucky and Tennessee.

Farmer response to glyphosate-resistant weeds is often to spray them with higher 

concentrations of glyphosate, more often; and to mix in other potent herbicides, with attendant 

impacts to wildlife. The response of biotechnology companies has been to develop a score of 

“next-generation” GE crops that are resistant to glyphosate as well as one to several other 

herbicides, like glufosinate, 2,4-D and/or dicamba. These new GE crops – likely to be 

introduced soon – will facilitate much greater use of these additional herbicides to kill 

glyphosate-resistant weeds, together with continued heavy spraying of glyphosate. Non-target 

organisms are at particular risk from drift with dicamba and 2,4-D, volatile herbicides that cause 

harm to wildflowers and other organisms a long ways from where they are applied.
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FWS has stated in the Southeast Region that its GMC policy requiring that farmed acres are to 

be rotated to non-Glyphosate GMC/non-GMC crop seed every four years will reduce weed 

resistance. However, there are no studies that this policy actually reduces weed resistance or 

that the policy is enforced at each refuge or applied in the Midwest Region. We encourage FWS 

to specifically analyze the efficacy of this policy if it intends to rely on it to mitigate environmental 

impacts.

It is unclear from the Draft EA/CCP the extent to which Bt crops are used on WMD land (or if 

they are allowed due to the WMD’s policy of no insecticide use), but FWS should consider that 

GE Bt crops have led to the rapid development of insects resistant to Bt in just a few years and 

will likely spawn new pesticide development to deal with this problem. Cry proteins in GE crops 

are made in most cells of the plants, and are expressed throughout the growing season. 

Constant exposure of insects to these Cry proteins in GE corn elevates the risk of target insects 

developing resistance to the insecticide, leading to more use of insecticides.

For example, Bt corn engineered to resist Western corn rootworm (WCR) is rapidly losing 

effectiveness as Bt-resistant WCR populations develop in response to the engineered Cry 

protein.3 This is already leading to increased use of insecticides in addition to the Bt within the 

corn plants4 and portends what will happen when insect pests eventually become resistant to 

other Cry proteins in corn.

3. Threatened and Endangered Wildlife in the Iowa WMD: The Iowa WMD is home to many 

threatened and endangered species, including: Indiana bat (Myotis sodalist), Topeka shiner 

(Notropis topeka), prairie bush clover (Lespedeza leptostachya), western prairie fringed orchid 

(Platanthera praeclara), as well as other state listed species. FWS should consider at the WMD 

the specific impacts of GE crops and concomitant herbicide use on each of these threatened 

and endangered species. 40 C.F.R. § 1508.27(b)(9). Because GE crops and concomitant 

herbicide use alter the weed and plant communities, they may also impact the habitat and 

feeding patterns of threatened and endangered species. For example, studies have shown that 

consumption of soybeans on wildlife refuges is actually harmful to migratory fowl.5 Furthermore, 

threatened and endangered aquatic wildlife may be impacted by the increased water pollution 

that results from greater herbicide use.

Response 4d: See the concluding paragraph under the Site-specific Effects Analysis for the 

Farming Program for the Iowa Wetland Management District section in

appendix K of the Iowa WMD Environmental Assessment and Draft Comprehensive 

Conservation Plan available online at 

http://www.fws.gov/midwest/planning/iowawetlands/index.html.

Comment 4e: 4. The Draft EA/CCP fails to include an analysis concerning the effects of 

pesticides. Despite discussing the impacts of pesticides used on neighboring lands, the Draft 

EA/CCP fails to analyze the effects of pesticides used on the WMD through cooperative 

farming. Rather, the draft EA/CCP merely states “[c]hemicals used on food plots must be 

approved through the pesticide use proposals. No insecticides will be allowed on food plots.” 

Draft EA/CCP at 130. Not only does this provide no analysis of the impacts of pesticides, it only 

applies to use of pesticides for food plots and not for other activities like GE crop farming for 

habitat restoration. FWS should consider the significant environmental impacts from pesticide 

applications at the WMD.

1. The Draft EA/CCP recognizes the harm posed by pesticides, but fails to analyze their effects 

when used on Refuge lands. In its section entitled “Drainage and Pesticides,” (Draft EA/CCP at 
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68) the Draft EA/CCP acknowledges the adverse effects that pesticides applied on neighboring 

lands have on Waterfowl Protection Areas (WPAs). FWS should consider that these same 

effects will occur when the pesticides are applied directly to WPAs through cooperative farming 

or food plots.

2. Increased Use of Herbicides and Associated Impacts Harm Refuge Wildlife.

FWS should also consider that GE crops cause a significant increase in the use of herbicides. 

Since GE crops were introduced in 1996, herbicide use increased by 527 million pounds.6 

Increased herbicide use harms the very wildlife that refuges were created to protect.

Iowa issued twelve PUPs in 2013, including ones authorizing 2,4-D, dimamba, and glyphosate. 

2,4-D and dicamba are particularly harmful pesticides. 2,4-D is a World War II-era pesticide and 

is the third most commonly used herbicide in North America. Forty-six million pounds of 2,4-D 

are applied every year in the United States. 2,4-D was also the major ingredient in Agent 

Orange. It is highly volatile and prone to spray drift that damages neighboring crops and wild 

plants. 2, 4-D remains contaminated with dioxins that are toxic to human health and is listed by 

the EPA as the seventh largest source of dioxin pollution in the United States. Exposure is 

linked to many negative health impacts including cancer, liver disease, reduced sperm count 

and Parkinson’s disease, as well as other health problems.7 2,4-D has also been linked to 

adverse impacts on threatened and endangered species.

Dicamba is a mobile and persistent herbicide and is thus found in surface and groundwater. 

Wetland plants are especially vulnerable to dicamba and spray drift and volatilization of dicamba 

impacts vegetation near application sites and also distant sites. Dicamba can volatilize from 

plant surfaces days after application and move long distances, damaging neighboring fields and 

plants. Dicamba has been tentatively linked to a variety of cancers, developmental and 

mutagenic problems. Endangered species and their habitat are particularly at risk1 from 

dicamba because of its high drift and volatile capacity.

Glyphosate resistant GE crops can harm and kill amphibians. Studies show that certain 

amphibian species exposed to low, field-relevant usage rates of the glyphosate-based Roundup 

herbicide experience much higher mortality than unexposed amphibians. Studies also indicate 

an adverse effect of GE crops on birds because the farming system associated with herbicide 

tolerant GE crops alters the plant and weed communities in farmed areas, thus affecting the 

diets of birds. Herbicides also harm aquatic ecosystems by killing some algae and water plants, 

with effects that can ripple through the food web.

Such impacts will only increase with the dramatically rising use of herbicides in GE crops. For 

example, from 1994 to 2005 USDA data demonstrates that aggregate use of glyphosate on 

soybeans, corn and cotton has risen from 7.9 million lbs. to 119.1 million lbs. – a 15-fold 

increase. Dramatically increased herbicide exposure to wildlife and the ecosystems contravenes 

the purpose of the refuge system to protect the ecosystem. In the past, FWS has relied on 

outdated studies by other agencies like APHIS and EPA to find that glyphosate does not harm 

wildlife. Reliance on old studies does not meet NEPA’s hard look requirement nor does it negate 

FWS’ duty to analyze the current impacts itself. Despite approving pesticides for use on the 

WMD, the Draft EA/CCP fails to analyze their impacts on the refuge.

3. Mitigation Premised on Compliance with Other Processes is Unrealistic. In other FWS 

regions where cooperative farmers are permitted to use GE crops, FWS states that the array of 

harms associated with GE crop cultivation is mitigated by cooperative farmers following 

pesticide label instructions to the letter and obeying all conditions laid out in the FWS 
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cooperative farming agreement. FWS further states that FWS Pesticide Use Proposals are 

faithfully executed, that its Integrated Pest Management Policy is implemented and that 

Integrated Pest Management Plans are designed and implemented for each refuge unit. In the 

Southeast Region, FWS has already stated it intent to rely on its crop rotation policy to mitigate 

herbicide resistance.

Such statements presuppose that this complete array of requirements and protocols will be 

carried out on every refuge unit without a lapse. This presupposition is not backed by any 

information about whether these measures are currently being implemented as envisioned. In 

addition, FWS policy does not lay out clear enforcement mechanisms to make sure that 

safeguards in cooperative agreements, IPM plans or refuge Pesticide Use Proposals are 

enforced. Without enforcement, confidence in compliance is misplaced. Any assertion that crop 

rotation will greatly reduce the development of resistant weeds must be supported by proven 

effectiveness and enforcement if it is to be relied upon as a mitigation measure. The WMD failed 

to address any of this and should consider these facts if it includes mitigation measures to limit 

environmental impacts from pesticides.

Response 4e: See bullets number 2, 4 and 5 under the Site-specific Effects Analysis for the 

Farming Program for the Iowa Wetland Management District section in appendix K of the Iowa 

WMD Environmental Assessment and Draft Comprehensive Conservation Plan available online 

at http://www.fws.gov/midwest/planning/iowawetlands/index.html. 

Comment 4f: 4. The Draft EA/CCP fails to consider the impacts of Neonicitonids. The Draft 

EA/CCP claims that insecticides are not used on the WMD. Draft EA/CCP at 130. However, 

almost all of the corn seed planted in North America, except for the 0.2% of total corn seed used 

for organic production, is coated with neonicotinoids. While the Draft EA/CCP does not specify 

that corn planted on NWR lands is treated with neonicotinoids, its pervasiveness leads PEER 

and CFS to conclude that, if, as the Draft EA/CCP permits, non-organic corn is used, the 

insecticides neonicintinoids are being used at the WMD. The Draft EA/CCP fails to acknowledge 

or address neonicintinoids despite their likely use on the WMD. Indeed, in order to comply with 

the no insecticide rule, the WMD should institute a policy of not growing corn at all.

Neonicotinoids insecticides may be causing a decline in pollinators. Neonicotinoids are 

systemic, that is, they are taken up by the plant’s vascular system as the seed grows and get 

expressed through its tissues, including flowers, pollen and nectar.11 Essentially, the whole 

plant is poisonous to insects. Once treated with neonicotinoids, a plant can become highly toxic 

to invertebrates such as bees. Furthermore, the damage caused by neonicotinoids are not 

limited to the treated plant. Neoonicotinoids are persistent with extremely long half-lives that 

vary widely according to soil type and weather conditions, ranging from 148 days to 1,155

days. The main exposure pathways for neonicotinoids are residues in pollen and nectar, dust 

from treated seeds and soils, planter exhaust, untreated but contaminated non-crop plants 

adjacent to treated fields, guttation droplets on both treated and untreated but contaminated 

plants and residues from foliar uses.

Neonicotinoids have been shown to adversely impact the survival, growth and health of 

pollinators vital to U.S. agriculture and the rising use of neonicotinoids coincides with dying 

honey-bee populations in a phenomenon known as Colony Collapse Disorder.15 Clothianidin 

and its parent compound thiamethoxam—the two most widely used neonicotinoids—are 

documented to be highly toxic to other bee species like the common Eastern bumble bee, alfalfa 

leafcutter bee, and blue orchard bee, all of which are valuable plant pollinators. More than 

fifteen threatened or endangered insects, ranging from beetles to butterflies to grasshoppers 
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and other taxa, are potentially directly affected by the use of clothianidin and thiamethoxam 

products. A recent study also found that neonicotinoids adversely impact a broad suite of birds 

and aquatic invertebrates.

Although neonicotinoids are extensively used in corn seed, FWS has not examined their impact 

on the refuge environment nor are they listed as an approved pesticide on the Pesticide Use 

Proposal Field Approved lists. Nor are they banned from use as they should be.

Response 4f: The Chief of Refuges in Region 3 has directed refuge managers to start the 

transition away from neonicotinoid treated seed in calendar year 2014 and be "neonicotinoid 

seed free" in calendar year 2016. 

Comment 4g: 5. The Draft CPP/EA improperly permits farming on refuge lands as farming will 

not meet the WMD’s stated purposes. The Preferred Alternative’s purpose is to encourage 

waterfowl breeding and restoring native grasslands. GE crops and farming generally are not 

required for either of these purposes. Indeed, the Draft EA/CCP seems to recognize this by 

setting goals of planting native grasses as a means to restore habitat. As noted preciously, it is 

unclear the extent to which the WMD plans to rely upon GE crops for habitat restoration 

because the Draft EA/CCP does not discuss it. However, if the WMD plans to use GE crops at 

all for restoring grasslands, it must carefully consider alternatives that would be much better at 

accomplishing this purpose at the WMD specific level.

The Draft EA/CCP states that the WMD is a haven for wildlife in a sea of row crops and notes 

the impacts surrounding row crop farming has had on the grasslands and wetlands needed for 

breeding and habitat, noting that row-crop farming decreased grassland habitat for birds 

resulting in a decrease in bird populations and suitable habitat for nesting birds (Draft EA/CCP 

at 33). Given this admittance regarding the unsuitability of farmed land for refuge purposes, the 

WMD should consider alternatives to farming in the CCP. Such alternatives should include no 

farming at all.

Response 4g: See the Description of the Farming Program for the Iowa Wetland Management 

District section and bullet number 5 under the Site-specific Effects Analysis for the Farming 

Program for the Iowa Wetland Management District section in appendix K of the Iowa WMD 

Environmental Assessment and Draft Comprehensive Conservation Plan available online at

http://www.fws.gov/midwest/planning/iowawetlands/index.html. 

Comment 4h: 6. Refuge Crops Illegally Bait Birds.

Furthermore, the Draft EA/CCP characterizes some harmful effects of farming, such as the 

baiting effect of cooperative farming, as positive effects. The draft EA/CCP states that food plots 

encourage activities such as hunting, but fails to discuss the underlying, harmful effects of 

farming that cause food plots to encourage hunting or that such baiting practices could violate 

the Migratory Bird Treaty Act, which makes it illegal to bait birds.

FWS should consider that the cooperative farming practices condition ducks and other 

waterfowl to feed on the bait of waste crops and then allow hunters to shoot them. Hunters refer 

to birds exposed to bait as “daffy ducks,” so blinded by the quest for food that these wild 

creatures ignore instinct by acting tame. Ducks have been known to fly into buckshot to reach 

grain to which they have become hooked.

Under the Migratory Bird Treaty Act, baiting is the illegal practice of using feed to attract game. 

A baited area is essentially no different than a bird feeder. As hunting is allowed, FWS should 
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analyze the impact on migratory birds which become hooked on “high-calorie” crops in the 

range of refuge-based hunters.

Response 4h: The EA and Draft CCP for the Iowa WMD contains a “Food plot Cultivation for 

Wildlife” Compatibility Determination. One of the stipulations included in that determination is: 

“Food plot farming and maintenance will comply with the Migratory Bird Treaty Act 16 U.S.C. 

703–712 P.L. 105–312 and 50 CFR 20.11–21 and not constitute baiting.” Furthermore, the 

Iowa WMD project leader works closely with both state and federal law enforcement officers to 

ensure food plot practices on WPAs comply with state and federal hunting regulations. Food 

plots have the intent of providing fall and winter food resources and will be left standing or unmanipulated until harvested in early spring. 

Comment 4i: CONCLUSION: NEPA requires a “hard look” at the environmental impacts of a 

proposed action before it is taken. And, where an action may significantly impact the 

environment, an environmental impact statement is required. PEER and CFS urge FWS to 

withdraw this Draft EA/CCP and engage in a robust, rigorous and high-quality scientific analysis 

to decide whether GE crops are essential to accomplishing refuge purposes and should be 

permitted at the Iowa WMD. FWS should also draft an EIS rather than an EA as it is evident that 

the Preferred Alternative may significantly impact the human environment. Kathryn Douglass, 

Public Employees for Environmental Responsibility (PEER)

Response 4i: See the concluding paragraph under the Site-specific Effects Analysis for the 

Farming Program for the Iowa Wetland Management District section in

appendix K of the Iowa WMD Environmental Assessment and Draft Comprehensive 

Conservation Plan available online at 

http://www.fws.gov/midwest/planning/iowawetlands/index.html.

Comment 5: This letter responds to your request for comments concerning the Draft 

Environmental Assessment (EA) and Comprehensive Conservation Plan (CCP) for the Iowa 

Wetland Management District (WMD), which covers 35 counties in north-central and northwest 

Iowa. Thank you for involving the Environmental Protection Agency (EPA) during the 

consideration of environmental impacts either to or from this project.

The Draft EA adequately outlines the purpose, need, and general conservation plan. The overall 

benefit of implementing an adaptive management plan to the WMD and Prairie Pothole Region 

(PPR) is sufficiently stated in this document. Though environmental impacts included in the EA 

& CCP were overall minimal, EPA offers the following comments for additional considerations of 

potential environmental impacts and a focus on minimization and mitigation of these impacts:

We would like to thank you for addressing the potential direct, indirect, and cumulative 

effects, as well as providing specific measurable objectives for the life of the CCP. EPA 

continues to support avoiding and minimizing adverse impacts to air, land, and water quality, 

including wildlife and their habitat. We would like to suggest that any potential effects or 

disturbance of fish and wildlife species be minimized to the extent possible through the use of 

BMPs for such activity.

We commend your coordination efforts with various other agencies and entities 

throughout the development of this project. We would encourage continued coordination with

local, state, and federal agencies to ensure that all laws, ordinances, and regulations are 

followed and all necessary permits acquired. Amber Tucker, US Environmental Protection 

Agency Region 7
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Response 5: Thank you for your comment and support of the EA and Draft CCP. Great effort 

will be invested to assure that coordination with local, state, and federal agencies continues into 

implementation of the Final CCP. Best management practices will be applied whenever and 

wherever possible during plan implementation. 

For example, as properties are acquired in the Iowa WMD, WPA plans will be developed by the 

unit managers in coordination with the project leader. These plans will make every effort to use 

restoration practices that reduce soil erosion and disturbance to wildlife and habitat. These 

practices include habitat management such as haying, burning, grazing, and farming. Timing of 

these activities can reduce the disturbance and displacement of wildlife. For example with 

haying and mowing, the nesting period from April 1 to July 15 is avoided. 

Typically the lands that are acquired in the Iowa WMD are in need of restoration to be 

completed by contractors or staff. Requirements that reduce pollution are stipulated in contracts 

including silt barriers and buffer zones. 

Farming is used on the Iowa WMD to accomplish habitat and wildlife goals and purposes. Both 

the Service and Iowa DNR strive to use the best management practices when implementing 

farming as a habitat management strategy. Examples of items that are considered in habitat 

management plans include: slope, distance to wetlands and ground water, habitat buffers, and 

disturbance of wildlife. When farming is used to prepare the seed bed of a newly acquired 

property (typically in row crop agriculture), both the Service and the Iowa DNR typically use 

farming cooperators and Habitat Management Lease Agreements or Special Use Permits. In 

these documents the Service articulates through stipulations the best management practices 

that will be used on the district property. Examples of agreement stipulations include the 

following: 

Note: These stipulations may change over time to reflect new information.

• Use of chemicals must be approved through a Pesticide Use Proposal.

• Manure applications are prohibited.

• Fall tillage is prohibited unless its use is specified in the management plan for the 

year of prairie seeding.

• Habitat management plan must be followed.

• Glyphosate tolerant corn and soybean seed may only be used for habitat restoration 

purposes.

• Farming for wildlife food production or other purposes will utilize non-genetically 

modified crop seed.

• No insecticides may be used.

Best management practices are also used when applying herbicides to district properties. They 

include the following:

• Allow pesticide application buffers around sensitive areas,

• Follow pesticide labels,
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• Spray only when winds are 12 mph or less (but not inversions),

• Control drift through use of low pressure and nozzles that create larger droplets, 

• Monitor current and predicted winds, 

• Monitor predicted rainfall,

• Be cautious around shallow groundwater, and

• Maintain a buffer around water and wetlands.
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Appendix K: Finding of No Significant Impact

Environmental Assessment and Comprehensive Conservation 

Plan for the Iowa Wetland Management District, Iowa

An Environmental Assessment (EA) and Comprehensive Conservation Plan (CCP) have been 

prepared to identify management strategies to meet the conservation goals of the Iowa Wetland 

Management District (WMD). The EA examined the environmental consequences that each 

management alternative could have on the quality of the physical, biological, and human 

environment, as required by the National Environmental Policy Act of 1969 (NEPA). The EA 

evaluated four alternatives for the future management of the Iowa Wetland Management 

District. 

The alternative selected for implementation in the district is Alternative D. Breeding waterfowl, 

primarily represented by Mallard and Blue-winged Teal, will be the focus for management 

activities. The dominant activity will be restoring cropland to perennial grassland and wetlands. 

Restoration efforts will be the same as current management with a focus on a variety of prairie 

pothole wetlands, in particular temporary and seasonal types, many of which will complement 

shallow lake restoration by the Iowa Department of Natural Resources. More diverse habitat will 

allow for more diversity in wildlife, in particular other grassland/wetland birds. Acquisition of the 

potholes will initially be the same as current management, working with partners to pursue 

perpetual protection of wetland and grassland of up to 112,000 acres in the Prairie Pothole 

Region, but may be modified by new landscape-level planning tools and models developed. 

Food plot use will be at levels that do not materially detract from breeding waterfowl. Additional 

public use opportunities found to be appropriate and compatible will occur. Environmental 

education, interpretation, and outreach, however, will remain similar to current levels with more 

effort placed on distributing a consistent message for the entire district through coordination 

meetings, additional kiosks, trails, pull-offs, etc., and an informational and regulatory brochure. 

Furthermore, the portions of three Waterfowl Production Areas—Jemmerson Slough (Dickinson 

County), Elk Creek Marsh (Worth County), and Rice Lake (Winnebago and Worth Counties)—

currently closed by state regulation as waterfowl refuges will remain closed. Also, within two 

years of CCP approval, it will be proposed through the federal rulemaking process to implement 

the following regulation on the Service’s fee title property within the Iowa WMD: “You may only 

use or possess approved nontoxic shot shells while in the field, including shot shells used for 

hunting wild turkey.” This requirement would be in line with current regulations at 50 CFR 

32.2(k).

For reasons presented above and below, and based on an evaluation of the information 

contained in the EA, we have determined that the action of adopting Alternative D as the 

management alternative for Iowa WMD is not a major federal action, which would significantly 

affect the quality of the human environment, within the meaning of Section 102 (2)(c) of the 

National Environmental Policy Act of 1969.

Additional Reasons:

• Future management actions will have a neutral or positive impact on the local economy.

• This action will not have an adverse impact on threatened or endangered species.
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Supporting References:

• EA and Draft CCP (separate document)

• Final CCP (attached)
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Appendix L: Standard Eligibility Questionnaire for the 

use of Genetically Modified Crops on National Wildlife 

Refuge System Lands
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Appendix L:Standard Eligibility Questionnaire for the use of Genetically Modified Crops on National Wildlife Refuge System Lands

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Appendix M: U. S. Fish and Wildlife Service Region 3 

2014 Pesticide Use Policy

1) This document provides updated Region 3 guidance for the preparation and submission of Pesticide

Use Proposals (PUPs), delegates approval authority for some pesticide uses to Project Leaders of

National Wildlife Refuges and other Service Programs, and describes measures that provide health 

protection for Service employees and their families.

2) The policies contained in this memorandum are effective immediately and will remain in effect

until terminated or amended by new guidance.

3) All use of chemical pesticides on U.S. Fish and Wildlife Service lands and facilities must conform

to Environmental Protection Agency regulations, chemical labels, Material Safety Sheets, and Service

and Department of the Interior policies and directives including 517 DM 1, 569 FW 1, and 242 FW 7.

4) These policies and directives are available at:

http://www.nature.nps.gov/biology/ipm/Documents/

DOI517DM1.pdf

http://www.fws.gov/policy/569fw1.html

http://www.fws.gov/policy/242fw7.html

5) PUPs are required for all pesticide applications the Service conducts, approves or funds; on or off

Service lands.

6) A complete PUP, containing an endangered species review, must be prepared by the station and 

electronically approved at the appropriate supervisory level before the pesticide can be applied or

distributed.

7) All PUPs will be prepared and reported utilizing the on-line system found at:

https://systems.fws.gov/pups/

8) A list of chemicals and application methods that can be approved by Project Leaders at the

field station level is included in the 2014 Attachment 1 PUP Uses Granted to Field.

9) To assist Project leaders with endangered species reviews, the Intra-Service Section 7 biological

evaluation form is provided as 2014 Attachment 2 R3 Section 7 form.

10) Point source discharges of biological and chemical pesticide residues into “waters of the United

States” may require a National Pollutant Discharge Elimination System (NPDES) permit. The

Environmental Protection Agency has delegated the authority to issue these permits to each of the states

in Region 3. The states vary considerably in their interpretation of what actions require an NPDES 

permit. Please check with the state agency issuing these permits for any over water or near water

pesticide applications.

11) Any PUP that includes a pesticide or application method that cannot be approved by the Project

Leader via the authorities delegated to them in the 2014 Attachment 1 PUP Uses Granted to Field, 

must be forwarded to the Regional Office with a detailed explanation in the comments section of the

PUP explaining why the chemicals on the Field Approval list will not meet station needs.
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12) National guidelines require Headquarters review of all PUPs for insecticide and fungicide seed

treatments unless the Region ensures that all treated seed is incorporated beneath the soil surface and no

treated seed remain on the ground. The Headquarters guidance is included as 2014 Attachment

7Headquarters PUP Guidance.

13) To comply with Headquarters requirements, all Region 3 PUPs authorizing plantings of insecticide

or fungicide treated seed must include Best Management Practices that describe monitoring activities 

and field stations must complete a Treated Seed Incorporation Monitoring Statement (2014 Attachment

6 Treated Seed Monitoring Form) that documents the monitoring activity.

14) Annual Pesticide Use Reports for CY 2014 should be submitted by February 28, 2015 utilizing

the PUPs on-line system.

15) Project Leaders and other supervisors are responsible for ensuring that all FWS employees

who are applying or overseeing the application of pesticides are properly trained and certified. 

State Certification is required for many applicators.

16) A decision tree providing R3 guidance on certification requirements is provided as 2014 

Attachment 3 Pesticide Certification Tree. A general summary of these guidelines is that anyone

who applies pesticides, or supervises the application of pesticides must have a State Certificate

unless all of the following conditions are met:

1. The pesticide is a general purpose pesticide, and

2. The person only makes infrequent application, and

3. The person is supervised by someone who holds a State Certificate, and

4. The person is in compliance with the State’s specific certification requirements

17) Some states may require Certification or Licensure of anyone who applies pesticides. The 2014 

Attachment 4 State Pesticide Certification Info provides general information and links to state licensing

agencies.

18) Mandatory measures that help protect Service employees and their families are listed in 242 FW

7. These measures include:

a) Personnel must change clothing they wear during applications before using vehicles

or entering office locations.

b) If personnel wear non-disposable clothing (i.e., uniforms or coveralls) when applying

pesticides, they must keep that clothing separate from the clothing they take home, and they

must not wash that clothing at home.

c) Instructions for washing of contaminated clothing are provided in 2014 Attachment 5 

Laundering Procedures. 

d) If suitable laundry equipment is not provided, then personnel who conduct pesticide-related 

activities must use disposable clothing.
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19) Personnel that handle, mix, or apply pesticides (with a Health Hazard Rating of 3 or higher) for 8 or

more hours in any week or 16 or more hours in any 30-day period, or use a pesticide in a manner that

requires a respirator, will be evaluated for medical examination and monitoring.

a) All PUPs that are submitted with a Health Hazard Rating of 3 or higher will

automatically be forwarded to Rob McGinn, R3 Division of Safety for review and 

coordination with the Project Leader for appropriate compliance with medical

examination and monitoring requirements.

b) A decision tree providing R3 guidance on medical monitoring is included: 2014 Attachment 8

Medical Surveillance.

If you have any questions please contact the Regional PUPs coordinator.
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Pesticide Uses Granted Field Station Level Approval for CY 2014 in Region 3

1) All pesticide uses on national wildlife refuges, national fish hatcheries, and private lands projects that are conducted, approved, or funded by the Service must

have an approved pesticide use proposal (PUP) before pesticide applications can be made. A completed PUP approved at the appropriate supervisory level,

consistent with applicable Service and Department of Interior policies (i.e., 517 DM 1, 569 FW 1) and appropriate environmental compliance (e.g., NEPA and

ESA), is required prior to the application or distribution of pesticides.

2) In accordance with 569 FW 1, PUPS are created, submitted, reviewed and approved/disapproved via the intranet-based Pesticide Use Proposal System

(PUPS) database

(https://systems.fws.gov/pups/). Pesticide use must be reported annually for approved PUPs. CY 2014 Pesticide Usage Reports must be completed by February

28, 2015.

3) The following Best Management Practices (BMPs) are recommended for all pesticide applications on areas greater than 0.1 acre that are be approved at

the field station level by the field (dis)approver in the PUPS database:

• Ground-based application only (e.g., ground-propelled hydraulic sprayers, backpack sprayers, hand sprayers, wick applicators, etc.).

• During treatment of grass or herbaceous targets, documented review of the label for herbicide activity on trees or other

non-target woody plants prior to use under their drip line.

• Do not apply pesticides to slopes >5% if significant rainfall is predicted within 24 hours.

• Do not apply pesticides when wind velocity exceeds 7 mph or when inversion conditions exist.

4) Project leaders are authorized to approve Pesticide Use Proposals for ground applications of one year duration of products containing the active ingredients

listed on Page two of this document so long as all label instructions and station BMPs are followed.

5) Project Leaders are also authorized to approve PUPs for:

a) Pest management solely related to controlling fish and wildlife pathogens and their vectors in hatchery situations or captive

breeding programs. b) Routine protection of Refuge buildings, structures, and facilities, so long as not involving Restricted Use

chemicals.

c) Use of common household pesticides to curb flies, mosquitoes, ants, cockroaches, hornets, houseplant aphids, clothes moths, and

similar situations in offices and residences

d) Use of livestock protection devices and veterinary techniques applied off-site to animals utilized in a grazing program including but not limited to ear tags

and insecticide or insect repellent applications.

6) All other types of applications or pesticide products not authorized to be approved by Project Leaders in Sections 4 or 5 of this policy require the PUP to

be submitted, reviewed and approved at the Regional level prior to use. Some products and applications may also require review and approval at the

Headquarters level.

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Intra-Service Section 7 Biological Evaluation Form

Region 3

Originating Person: Date Submitted: 

Telephone Number: 

For assistance with section 7 reviews, go to Region 3’s Section 7 Technical Assistance website: 

http://www.fws.gov/midwest/endangered/section7/s7process/

I. Service Program and Geographic Area or Station Name:

II. Location: Location of the project including County, State and TSR (township, section & range):

III. Species/Critical Habitat: List federally-listed, proposed, and candidate species or designated or 

proposed critical habitat that may occur within the action area:

IV. Project Description: Describe the proposed project or action, including all conservation elements. 

If referencing other documents, prepare an executive summary. Include map and photos of site, if 

possible. (Attach additional pages as needed):

V. Determination of Effects: 

A. Description of Effects: Describe how the action(s) will affect the species and critical habitats 

listed in item III, including how Part IV conservation elements benefit or avoid adverse effects. 

Your rationale for the Section 7 determinations made below (VB.) should be fully described here.
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B. Determination: Determine the anticipated effects of the proposed project on species and critical 

habitats listed in item III. Check all applicable boxes and list the species (or attach a list) associated with 

each determination. For assistance with making appropriate Section 7 determinations, go to Region 

3’s Section 7 Technical Assistance website: 

http://www.fws.gov/midwest/endangered/section7/s7process/

Determination

No Effect: This determination is appropriate when the proposed project 

will not directly or indirectly affect (neither negatively nor beneficially)

individuals of listed/proposed/candidate species or designated/proposed 

critical habitat of such species. No concurrence from ESFO required.

May Affect but Not Likely to Adversely Affect: This determination is 

appropriate when the proposed project is likely to cause insignificant, 

discountable, or wholly beneficial effects to individuals and designated 

critical habitat. Concurrence from ESFO required.

May Affect and Likely to Adversely Affect: This determination is 

appropriate when the proposed project is likely to adversely 

impact individuals of listed species or designated critical habitat 

of such species. Concurrence from ESFO required.

Not Likely to Jeopardize candidate or proposed species/critical habitat: 

This determination is appropriate when the proposed project is not 

expected to jeopardize the continued existence of a species proposed for 

listing or a candidate species, or adversely modify an area proposed for 

designation as critical habitat. Concurrence from ESFO required.

Likely to Jeopardize candidate or proposed species/critical habitat: 

This determination is appropriate when the proposed project is reasonably 

expected to jeopardize the continued existence of a species proposed for 

listing or a candidate species, or adversely modify an area proposed for 

designation as critical habitat. Concurrence from ESFO required.

Signature Date

[Supervisor at originating station]
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Reviewing Ecological Services Office Evaluation (check all that apply):

A. Concurrence _____ Nonconcurrence _____

Explanation for nonconcurrence:

B. Formal consultation required _____

List species or critical habitat unit

C. Conference required _____

List species or critical habitat unit

Name of Reviewing ES Office 

 

Signature Date

 
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*As identified on product label. EPA classifies pesticides into two categories: General use pesticides and restricted use 

pesticides. Restricted use pesticides may be applied only by or under the direct supervision of trained and certified 

applicators. 

Example 1 – Frequent or Routine: A Refuge Operations Specialist spends a minimum 8 hours each week during the field 

season, mixing, loading and applying herbicides using backpack spray, tractor/ATV mounted boom spray and other methods. 

The ROS is exposed weekly to a variety of herbicides. In addition to applying herbicides, the ROS is responsible for 

supervision of other employees and volunteers who occasionally are tasked with application of herbicides. This supervision 

includes briefing employees and volunteers on safety and the responsible use of herbicides.

Example 2 – Infrequent: A Biologist carries a spray bottle of Roundup® with them during a weekly survey of the refuge 

boundary for invasive plants. The Biologist has been previously briefed by an ROS who is a State Certified Pesticide 

Applicator on the safe and appropriate uses of Roundup®. If the Biologist encounters an invasive plant, she sprays it with 

Roundup®.

Example 3 – Infrequent: Once a month a group of volunteers under the supervision of a Biologist who is a State Certified 

Pesticide Applicator are briefed on the appropriate use of Roundup® and are provided the appropriate personal protective 

equipment to apply Roundup®. The volunteers are directed to a portion of the refuge, and under the supervision of the 

Biologist they spend the day cutting and stump treating buckthorn using handheld spray bottles.
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R3 STATE PESTICIDE APPLICATOR CERTIFICATION INFORMATION

Service and Regional policy require State Pesticide Applicator certification for employees or volunteers 

who frequently apply pesticides or who supervise the application of pesticides by others. State 

certification regulations vary considerably however. In some states, all applicators may require 

certification. In others, certification may not be required by state regulations or the regulations 

regarding refuge applications may be somewhat vague.

To best address these variations and to potentially improve the safety and effectiveness of their invasive 

species program, Project Leaders, in consultation with their Area Supervisor, are authorized to require 

State certification for all applicators at their field station(s). 

A general guide to the individual state certifications that comprise Region 3 and a few appropriate links 

are provided below. Please be sure to consult current state regulations for specific information. 

 

1. ILLINOIS

Specific state certification requirement for all applicators: YES 

• “Persons applying general-use or restricted-use pesticides in the course of employment must 

have a commercial applicator's license.”

WEBSITE: http://www.agr.state.il.us/Environment/Pesticide/training/privappl.html

2. INDIANA

Specific state certification requirement for all applicators: NO 

• “A person who is not a licensed public applicator may use a pesticide if the person is under the 

direct supervision of a licensed public applicator.”

WEBSITE: http://www.in.gov/legislative/ic/code/title15/ar16/ch5.html

3. IOWA

Specific state certification requirement for all applicators: YES 

• “A license is required for any state or county agency, municipal corporation, or any other 

governmental entity which during regular operating procedures performs or supervises pesticide 

applications (either non-restricted or restricted pesticides).”

WEBSITE: http://www.iowaagriculture.gov/Pesticide/forms/001_A_REV.pdf
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4. MICHIGAN

Specific state certification requirement for all applicators: YES

• Requirement for individuals “to be either a certified pesticide applicator or registered applicator 

to apply a pesticide for a commercial purpose or in the course of his or her employment.”

WEBSITE: http://www.michigan.gov/mda/0,1607,7-125-1569_16988_35289-11999--,00.html

5. MINNESOTA

Specific state certification requirement for all applicators: No

Misc. Information:

• Two types offered: 

• “Commercial pesticide applicator licenses are for pesticide applicators who apply any pesticide 

(including herbicides) “for hire”. For hire means you charge or invoice for the service.”

• “Noncommercial licenses are for all pesticide applicators that apply restricted use pesticides 

(RUP) as part of their job on property owned or contracted by their employer.”

WEBSITE: http://www.mda.state.mn.us/licensing/licensetypes/pesticideapplicator/licreqs.aspx

6. MISSOURI

Specific state certification requirement for all applicators: Perhaps

Misc. Information:

• “General-use pesticides may be used by anyone, so long as the pesticide is used only on lands 

owned or rented by that person or that person's employer. Pesticides that are classified as 

general use are not expected to cause adverse effects to humans or the environment if they are 

used in accordance with label directions.”

• Six different types of licenses 

WEBSITES: http://extension.missouri.edu/publications/DisplayPub.aspx?P=G855

 http://mda.mo.gov/plants/pesticides/licensing.php
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7. OHIO

Specific state certification requirement for all applicators: No

Misc. Information: 

• “Ohio law allows nonlicensed users to operate if they are under the direct supervision of a 

licensed applicator. The licensed applicator must work for the same business or agency and have 

a supervisory role. However, the nonlicensed applicator must be a trained serviceperson.” 

WEBSITE: http://pested.osu.edu/commfaq.html

8. WISCONSIN

Specific state certification requirement for all applicators: Ground: No 

Aquatic: Yes

Misc. Information: 

• “You must be certified if you apply or direct the use of restricted-use pesticides, pesticides on a 

for-hire basis, pesticides in public schools or on school grounds, or pesticides in aquatic 

environments”

• Two types offered, Private and Commercial Applicator. 

WEBSITE: http://ipcm.wisc.edu/pat/Certification/tabid/94/Default.aspx
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Laundering Procedures for Pesticide Contaminated Clothing

1. Label/MSDS - Always be aware of the pesticide that was used and ALWAYS read the 

label prior to laundering. 

2. Pesticide-Soiled Clothing shall be removed outdoors and away from traffic paths to 

prevent the transfer of chemicals on shoes. 

3. Heavily contaminated pesticide-soiled clothing shall be disposed of and not washed.

4. If a granular pesticide was used, all pockets and cuffs should be emptied. Remove as 

much of the pesticide as possible from garments at this time to lessen the chance of 

contaminating the washing machine.

5. Storage - Store Pesticide Clothing in a sealed labeled container and not with any other 

materials to be washed.

6. Gloves - Unlined rubber gloves shall always be worn when handling and laundering 

pesticide-soiled clothing. Carefully wash the gloves in hot water after each use and store 

and use them ONLY for this purpose.

7. Pre-rinsing is a very important step as it helps to remove pesticide residue. Pre-rinsing 

can be done by:

a. Presoaking in a suitable container before washing;

b. Pre-rinsing with agitation in an automatic washing machine;

c. Spraying or hosing garment(s) outdoors.

8. Load Size - Wash small loads of pesticide contaminated clothing with the washer 

setting on large load/high level. The more water used the better. Large amounts of 

water aid in thoroughly flushing pesticides from fabrics. Using a full washer also 

decreases the possibility that a pesticide would be redeposited back on the fabric. 

9. Use hot water. Washing in hot water removes more pesticides from clothing. Avoid 

cold-water washing! Although cold-water washing might save energy, research has 

shown that cold water is relatively ineffective in removing pesticides from clothing.

10. Laundry Detergent – Most Laundry detergents are similarly effective in removing 

pesticides from fabric in the pesticide is not oil based. Oil based (emulsifiable 

concentrate) pesticides should use a Heavy-Duty liquid detergent.

11. Washer Cleaning – Small amounts of pesticides residue will remain in the washing 

machine after the cycle is over, so it’s important to rinse the washing machine setting 

the cycle used for laundering the soiled clothing and run the machine an extra cycle.

12. Line Drying – Line dry the clothes to keep from contaminating the dryer. Sunlight and 

air movement will aid in decomposing or breaking down any pesticide residue not 

removed during laundering.
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13. Other equipment – Wash hard hat, goggles, respirator, gloves and neoprene boots in 

hot, soapy water after each use. Store the clean articles away from where pesticides 

are stored.
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Appendix A

Region 3 Treated Seed

Incorporation Monitoring Statement

Refuge or WMD:

Name of FWS representative inspecting the field(s):

Title of FWS representative inspecting the field(s):

Description and acreage of area to be planted with treated seed:

Purpose of the planting:

Trade and Active Ingredient Name(s) of seed treatment:

Pesticide Use Proposal number(s):

Date(s) of planting:

Date(s) of inspections:

Date and time of final comprehensive inspection:

I certify: ( check all that apply)

a) ____ refuge staff conducted random field spot checks when the treated seeds were being planted 

b) ____all crop seeds were planted in-furrow or picked-up and removed or replanted underground 

immediately.

c) ____ a final comprehensive inspection was made after planting was completed and no uncovered 

treated seeds remain on Refuge/WMD lands. 

Field Inspector Signature: Date:

Project Leader Signature: Date:

Project Leader printed name:
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U.S. Fish and Wildlife

Service

Headquarters Guidance for Pesticide Use

Proposals

Pesticides are one tool to manage pests on U.S. Fish and Wildlife Service (Service) facilities. 

Pesticides may also be used by Service staff when working cooperatively to restore habitat 

off- refuge. Some pesticides can potentially cause adverse effects to non-target resources. 

The Service uses Pesticide Use Proposals (PUPs) to document pesticide use and to help 

ensure we select and use pesticides with the least risk to non-target resources while still

achieving pest management objectives. The Service Director has delegated approval for most 

pesticide use to the Regions. For those pesticide uses that pose the greatest risk of causing 

adverse effects to non-target resources, PUPs are submitted to the Service’s National

Integrated Past Management (IPM) Coordinator for review/(dis)approval. For more

information, consult the Service’s Integrated Pest Management Policy, 569 FW 1 and the 

Departmental IPM Policy 517 DM 1.

Restricted Use Pesticides The U.S. Environmental Protection Agency (EPA) classifies 

pesticides into two categories: restricted use pesticides (RUP) and general use pesticides. A 

RUP is a pesticide that is available for purchase and use only by certified pesticide applicators 

or persons under their direct supervision. The EPA classifies a pesticide as a RUP when it has 

determined that the pesticide may generally cause unreasonable adverse effects on the 

environment, including injury to the applicator, even when used in accordance with the label. 

RUPs require Headquarters review/(dis)approval, except where the National IPM Coordinator 

has worked with Regional IPM Coordinator and adequate documentation is provided to ensure 

that site-specific mitigation for potential adverse effects to non-target resources is implemented

at the time of application.

Specific pesticide use cases:

Chlorophacinone and Diphacinone: When used in full accordance with the

label(s) for the following uses:

• endangered species protection,

• near facilities, new tree plantings, and

• on lawns using bait bars or a trigger-equipped bait applicator that places 

the

• pesticide in the mammal’s main tunnel,

may be approved at the Regional level if IPM control methods including but not 

limited to flooding, exclusion devices, and barn owl housing, are considered as 

alternatives and implemented, if appropriate. Applicators must immediately seal 

probe holes used to place bait with sod, rock, or other material to exclude entry

by non-target animals.

Rotenone used as a pesticide in closed loop, impermeable layer lined, artificial 
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systems in full accordance with all registration label requirements may be approved 

at the Field station level.

Zinc Phosphide placed within rodent burrows using drip-proof methods (1) 

when there is a documented human safety or human health concern and (2) staff

cannot safely or feasibly achieve rodent control with non-pesticide methods and 

may be approved at the Regional level. 

Other RUPs that require National IPM Coordinator review/(dis)approval: 

Any proposed uses (includes all ground and aerial) of acetochlor, atrazine, 

bentazon, bromacil, diuron, EPTC, metolachlor, metribuzin, norflurazon, 

prometon, simazine, and trifluralin due to their high leaching potentials, 

toxicological profiles, and/or frequent detections in surface or groundwater; 

Tank Mixes: All tank mixes of two or more restricted use insecticides, nematicides, 

or miticides or any other non-herbicide combinations. 

General Use Pesticides 

EPA classifies a pesticide, or the particular use or uses of the pesticide, as a General Use Pesticide, if 

the pesticide generally will not cause unreasonable adverse effects on the environment. In many 

cases, EPA does not require a certified applicator to purchase or apply a General Use Pesticide 

(agencies’ policies and individual states may differ on this). The Service encourages Service staff to 

become Certified Pesticide Applicators. All who apply pesticides on Service lands must have training 

and certification as required by federal and state laws. 

General Use Pesticides that require National IPM Coordinator Review: 

Mosquito Management. PUPs for mosquito management with the following 

proposed uses must receive National IPM Coordinator, or designee, review and 

(dis)approval: 

1). Larvicide temephos (Abate®) 

2) Adulticides (malathion, naled, all pyrethrins, and pyrethroids) 

3) Applications of surface films (e.g., Agnique® MMF) to areas that are 1,000 square 

meters (0.1 ha) or larger. 

General Use Pesticides “exempt” from National IPM Coordinator 

Review/(Dis)Approval: 

Ground and Aerial Applications. If Regions have implemented documented, 

quantitative IPM approaches including no-spray buffers around sensitive habitats and 

non-target organisms, then ground and aerial applications of general use pesticides do 

not require National IPM Coordinator review/(dis)approval.

Tank Mixes: If label requirements are followed, including and appropriate 

compatibility testing, tank mixes of General Use Pesticides do not require National 

IPM Coordinator review/(dis)approval.
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General Use Aquatic Herbicides. All general use aquatic herbicides with a LC50 

greater than 50 mg/L toxicity to aquatic life are exempt from National IPM 

Coordinator review/(dis)approval. For example, some herbicides that are harmful to 

aquatic life at labeled application rates, like 2, 4-D ester formulations, require 

Headquarters review. Warning: Aquatic pesticides, particularly herbicides, have the 

potential to create low dissolved oxygen conditions, which can cause fish kills. 

Mosquito Management. Larvicides containing Bacillus thuringiensis israelensis 

(Bti), Bacillus sphaericus (e.g., VectoLex®), and methoprene (e.g., Altosid®) are 

exempt from National IPM Coordinator review/(dis)approval

General: 

Pesticides with a High Leaching or Runoff Potential. All pesticides with a high potential 

to leach to groundwater or runoff to surface waters or which have been frequently found in 

surface or groundwater (listed in Table 1 in this document) require Headquarters 

review/(dis)approval if the proposed use is in any one of the following conditions: 

• leachable soils (less than 2% organic matter) 

• the depth to water table 10 feet or less 

• the underlying bedrock has high infiltration (e.g., limestone bedrock). 

Elevated Pesticide Concentrations in Surface Waters. If a refuge has drinking or surface 

waters with reported pesticides at possible risk levels to humans, aquatic plants, animals or 

other wildlife future use of these pesticides will require Headquarters review. Refuges can 

generally learn of elevated pesticide concentrations in their waters through Clean Water Act 

section 303(d) lists, U.S. Geological Survey reports, and literature searches conducted by the 

National Conservation Training Center (NCTC) or searching using the names of water, their 

state and/or county, plus "pesticide OR herbicide." 

High Probability of Adverse Impacts to Non-Target Organisms. Pesticides (see Table 1) 

with a high probability of adversely impacting non-target organisms based on toxicity, 

persistence, exposure potential, or site-specific conditions of the proposed applications 

require Headquarters review/(dis)approval, unless regions document an IPM approach and 

impose site-specific mitigation 

Petroleum-Based Pesticides and Solvents. All petroleum-based pesticides applied to water 

or wetlands and all pesticides with benzene, ethyl benzene, toluene, xylene, or polycyclic 

aromatic hydrocarbons (e.g., naphthalene) listed as active, inert, or other ingredients require 

Headquarters review/(dis)approval.

Insecticide and Fungicide Seed Treatments. Insecticide and fungicide seed treatments 

require Headquarters review/(dis)approval unless the Region ensures that all treated seed is 

incorporated beneath the soil surface and no treated seeds remain on the ground.
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• It is a violation of the Federal Insecticide, Fungicide, and Rodenticide Act to 

use a product in a manner inconsistent with its labeling. The conditions in this 

document do not substitute for pesticide registration label instructions or state 

specific regulations. 

• Regions always have the option to submit any PUP to Headquarters 

review/(dis)approval. Regions can confer with the Headquarters on any PUP 

under development, regardless of whether that PUP requires Headquarters 

review/(dis)approval. 

• Any mention of specific products does not constitute endorsement by the U.S. 

Fish and Wildlife Service. 

• Factors to consider when analyzing any pesticide use proposal are the 

persistence and toxicity of the product and the potential for exposure to nontarget organisms. 
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TABLE 1*. HERBICIDES, FUNGICIDES, AND GROWTH REGULATORS OFTEN

FOUND IN SURFACE AND/OR GROUND WATER AND/OR HIGHLY LIKELY 

TO LEACH AND PERSIST UNDER SOME CIRCUMSTANCES OR CAUSE NONTARGET IMPACTS.

2,4-D Daminozide Molinate

Acetochlor Dicamba Napropamide

Acifluorfen Dichlorprop, 2,4 -DP Napthalam

Alachlor Diclofop Norflurazon

Ametryn Diethatyl-ethyl Pebulate

Amitrole Diphenamide Pendimethalin

Asulam Diuron Picloram

Atrazine EPTC Prometon

Bensulide Ethofumesate Prometryn

Bentazon Hexazinone Propachlor

Brodifacoum Imazapyr Propazine

Bromacil Imazaquin Pyrazon

Butylate Imazethapyr Siduron

Chloramben Linuron Simazine

Chlorpropham Maleic Hydrazide Sulfometuron

Chlorsulfuron MCPA Tebuthiuron

Clomazone MCPB Terbacil

Clopyralid Metalaxyl or Mefenoxam Thibencarb

Clothianidin Metolachlor Triclopyr

Cyanazine Metsulfuron Trifluralin

Cycloate Metribuzin Vernolate

* Table 1 should guide Regions to develop site-specific application restrictions as needed to

protect against potential ground and surface water contamination or non-target impacts.
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1. Pesticides with a health hazard rating of 1 or 2 have no restrictions other than what the manufacture 

requires on the label/MSDS. Employees are not placed in a medical monitoring program. They may be

entered into program if they experience an acute exposure that results in symptoms.

2. The Regional Safety Manager, Project Leader/Supervisor/Manager, and occupational health 

professional(s) shall make decision about medical monitoring based on pesticide specific health risks,

how pesticide is being applied, potential route of entry, potential risks from other pesticide-related 

activities and individuals’ health and fitness.

3. Frequent Pesticide Use means when a person applying pesticides handles, mixes, or applies 

pesticide, with a Health Hazard rating of 3 or higher, for 8 hours in any week or 16 or more hours 

in any 30-day period. We consider any less frequent pesticide use to be infrequent use and

employees are not placed in a medical monitoring program. They may be entered into program if 

they results in experience an acute exposure that symptoms.

4. Employees that are not recommended for medical monitoring can request a review of the decision.

This request must be made in a written or e-mail format and sent to their Supervisor with a copy to the

Regional Safety Office. Requests should include a brief explanation as to why the employee feels 

medical monitoring is necessary.
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Appendix N: 2014 Region 3 Farm Program Guidance

I. Farming Program Plan

1. The use of farming as a management tool must be justified and managed as defined within a specific 

Farming Program Management Plan (FPMP) that supports the biological purposes for that unit and 

the biological integrity, diversity, and environmental health policy of the National Wildlife Refuge 

System and incorporates the current Region 3 Farm Program Guidance.

A. Each station’s FPMP will be completed and submitted to the Area Supervisor for approval by 

January 1, 2015. This plan will remain in effect until significant changes in the station’s farm 

program trigger an update.

B. This station-specific plan may be a stand-alone plan or incorporated as an appendix into a draft 

Comprehensive Conservation Plan (CCP) or Habitat Management Plan (HMP). 

i. All HMPs currently in the development process for stations with a farming program will have 

an associated station-specific FPMP included.

C. Stations utilizing force account farming (without the use cooperators) must follow the sections of 

the Farm Program Guidance pertaining to their farming program and must still complete a FPMP 

as described in I.1.

II. Selection of Farming Permittees

The Region 3 farming team recognizes the fact that the Refuge Manual (5 RM 17 Administration of Special 

Uses) addresses the following selection processes. However, the following recommendations are more 

restrictive to ensure a regionally consistent and transparent farming program.

1. Beginning in calendar year 2015, selection of farming permittees will be from one of the following 

three options:

A. Competitive Bid Process (recommended over other solicitation methods)

i. All parameters and special conditions/requirements shall be included in the announcement. 

This will preclude the need for any deductions as applicants for the farming opportunity will 

be offering their sealed bid based on the known special use conditions and other 

requirements.

ii. The announcement shall ensure that the opportunity to farm on USFWS lands is fairly 

distributed.

iii. All sealed bids will be opened on the same day at a time and place open to the public.

iv. The Refuge or District reserves the right to reject any or all bids. Appropriate justification 

and documentation is required if this action is pursued.

B. Lottery Process 
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i. All parameters and special conditions/requirements shall be included in the announcement.

ii. The announcement shall ensure that the opportunity to farm on USFWS lands is fairly 

distributed. 

iii. See Section III for establishment of farming rates. 

iv. Specific deductions that would deviate from the determined prevailing rate that will apply to 

the individual USFWS farm unit must be determined prior to and be part of the 

announcement for the farming opportunity. (See Section IX In-Kind Services for further 

guidance.)

v. The actual drawing for the permittee will be conducted at a time and place open to the 

public.

vi. The Refuge or District reserves the right to reject any or all permittee selections. 

Appropriate justification and documentation is required if this action is pursued. 

C. Priority System

i. After completing the bid or lottery process and a permittee has not been obtained, the 

refuge manager may utilize a priority system as described in Refuge Manual Chapter 5 RM 

17 – Administration of Specialized Uses. 

ii. In certain site-specific situations, the priority system may be utilized initially with sufficient 

justification and prior approval (concurrence) from the Area Supervisor. 

iii. See Section III for establishment of farming rates.

2. The selection process will be conducted at least once every five years, after the initial selection 

process is completed.

III. Establishment of Farming Rates

1. Through a Competitive Bid Process, the local market sets the farming rates.

2. The USFWS office shall establish the farming rate by consultation with other public agencies or 

agricultural extension agents within that county. This includes crop share rates and average cash 

rental rates. Documentation of this process is required.

3. Coordination with public agencies or agricultural extension agents to determine farming rates will be

made prior to Special Use Permit renewal to reflect rate changes.

IV. FSA Program Guidance

1. Cooperative farmers (permittees) operating on NWR’s/WMD’s may enroll and participate in 

Farm Service Agency (FSA) programs.
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2. Project Leaders are responsible for knowing if permittees are enrolled in any FSA programs 

for refuge system lands and, if enrolled, are receiving appropriate payments.

3. Project Leaders should provide local FSA office(s) with a copy of each farming special use 

permit for each crop year to use when calculating benefits based on the share split agreed 

upon in the special use permit.

4. Project Leaders have the option of working with the FSA office to eliminate/reduce base 

acres to take all/some refuge system tracts out of FSA programs.

V. Special Use Permits Required for Administering Farming Programs

The Region 3 team acknowledges that there is a farming agreement form in the Refuge Manual but we 

are striving for consistency among commercial activities on refuge lands.

1. A Special Use Permit (SUP) (FWS Form 3-1383-C) will be used to administer farming agreements on 

Region 3 FWS stations. The following site can be used to access the appropriate SUP: 

http://www.fws.gov/refuges/visitors/permits.html

2. The SUP will be signed by the refuge manager.

3. All attachments to the SUP must be signed and dated by the permittee.

4. Any changes to the existing original SUP must have prior approval by the refuge manager and 

permittee and must have a signed and dated addendum to document such changes.

5. Issuance of SUPs on annual basis is recommended.

6. The refuge manager is authorized to issue SUPs for multiple years if warranted under the following 

stipulations.

A. Refuge manager will not be required to get Refuge Supervisor approval for multiple year 

permits up to three years.

B. Refuge manager will be required to get Refuge Supervisor approval for permits proposed to 

last four or five years.

7. If SUPs are issued for multiple years, the permits will be reviewed annually.

8. If the SUP is written for multiple years, then specific language will be required in the special 

conditions of the permit, as indicated in Section XI.7.

9. Refuge manager should take measures to ensure that permittees understand general conditions and 

requirements prior to issuing the SUP.

10. Refuge manager is responsible for monitoring activities of the permittee to assure adherence to the 

SUP conditions and take corrective actions if needed.

VI. Farming on newly acquired properties with land use rights in purchase agreements
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1. Upon approval of the Region 3 Farm Program Guidance (2014) , the following will apply to newly 

acquired lands in R3.

A. When the Service is purchasing either fee title or easements, Realty negotiations with willing 

sellers for all new lands will include the following in reference to agricultural land use rights. 

(This will require the realty specialist and refuge manager to work closely together to make sure 

the landowner understands the requirements of the policy.)

i. The landowner/tenant is exempt from Region 3 farming policy through December 31 of 

the acquisition year. 

ii. If the purchase agreement allows the landowner agricultural land use rights beyond 

December 31 of the purchase year then the former landowner/tenant will be required 

to follow all Region 3 Farming Policies. In this case, the refuge manager will not be 

required to get Area Supervisor approval to select the former landowner/tenant as the 

cooperative farmer, since the agricultural land use provision is in the purchase 

agreement. However, the refuge manager will be required to inform the Area 

Supervisor that the former landowner/tenant is the permittee. 

iii. If the purchase agreement does not state the landowner retains agricultural land use 

rights into subsequent years, but the refuge manager wants to have the former 

landowner/tenant farm the property, then the refuge manager can use the Priority 

System for selection with Area Supervisor approval.

B. In the case that the land is being donated or transferred to the Service from another agency 

(federal or state), NGO or other partner, either in fee title, lease, easement, cooperative 

agreement or other legal instrument, existing agricultural agreements with the 

cooperator/farmer will be honored. The permittee will be exempt from Region 3 Farm Program 

Guidance through December 31 of the acquisition year. R3 Farming Policies will apply in the 

subsequent years covered by the initial farming agreement.

VII. Pesticide Use

The term pesticide is inclusive of both herbicides and insecticides.

1. Refuge managers must adhere to the current Region 3 Pesticide Use Policy.

2. Refuge managers are encouraged to minimize number and quantity of pesticides used.

3. An approved Pesticide Use Proposal (PUP) is required for every pesticide used prior to application. 

4. Refuge managers are authorized to approve PUPs of one-year duration for ground applications of 

pesticides containing the active ingredients on the current field station approval list according to 

current regional guidelines and all label conditions.

5. Pesticide use will be limited to the Field Station Approval List unless refuge manager provides 

justification to the Area Supervisor and receives written concurrence prior to initiating a PUP for 

pesticides not on the current Field Station Approval List.
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6. A valid Intra-Service Section 7 Consultation Form (coordinate with Ecological Services office as 

appropriate) must be completed and attached to the current year’s PUP for each pesticide used. 

7. A copy of the approved PUP must be provided to permittee prior to application of that pesticide.

8. Neonicotinoid treated seed guidance:

A. Refuge Managers will exhaust all alternatives before allowing the use of neonicotinoid 

treated seeds on National Wildlife Refuge System Lands in 2014 and 2015.

B. Refuge managers need to eliminate the use of neonicotinoid treated seed on National 

Wildlife Refuge System Lands in Region 3. The strategy is to start the transition in calendar 

year 2014 and be "neonicotinoid seed free" in calendar year 2016. In 2014 and 2015 there 

will be some flexibility for the transition and take in to account the availability of non-treated 

seed. During the two transition years refuge managers will need to have an approved PUP 

before allowing the planting of neonicotinoid treated seed on refuge lands under their 

management. Please give special attention to the "justification" section of the PUP. The PUP 

will become part of the official record and should clearly state the need to use treated seed 

during this transition period. Refuge Managers must provide justification to the Area 

Supervisor and receive written concurrence prior to initiating a PUP for the use of 

neonicotinoid treated seeds (see VII.5.).

C. All crop seeds treated with neonicotinoid chemicals must be planted (incorporated) beneath 

the soil surface due to having a high toxicity to birds. No residue seeds can be left above 

ground. Any treated seeds that are spilled and/or left above ground at the time of planting 

must be picked-up and removed or replanted underground immediately. The refuge/district 

must conduct random field spot checks at the time in which these treated seeds are planted 

in order to best ensure that the treated seeds are planted beneath the soil surface. To 

accommodate this process, any Region 3 field station that uses neonicotinoid treated seed 

must complete a Region 3 Treated Seed Incorporation Monitoring Statement (Appendix A). 

This Statement will document that all treated seed has been incorporated beneath the soil 

surface, thus adhering to Service policy. This guidance also applies to fungicide treated seed 

as indicated in the Region 3 Pesticide Use Policy.

D. Seeds treated with neonicotinoid chemicals are listed as toxic to aquatic invertabrates. 

Therefore, field stations using neonicotinoid treated seeds must develop specific Best 

Management Practice guidelines to be included in the submitted PUP and implemented in 

the special use conditions of the SUP.

E. Seed treatment chemicals cannot be mixed or applied to the crop seeds on refuge/district 

lands. Seeds must be treated off-site.

F. Neonicotinoids are a class of insecticides chemically similar to nicotine. They are marketed 

and distributed in various forms including sprays, powders and seed treatments. Trade 

names containing neonictinoids may include (but are not limited to) Acceleron®, 

Acetamiprid®, Actara®, Adage®, Adjust®, Admire®, Advantage®, Alpine®, Arena®, Assail®, 

Belay®, Calypso®, Celero®, Centric®, Clutch®, Confidor®, Cruiser®, Dinotefuran®, Encore®, 

Flagship®, Gaucho®, Helix®, Inside®, Intruder®, Ledgend®, Merit®, Meridian®, Nipsit®, 
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Platinum®, Poncho® , Pravado®, Premise®, Regent®, Safari®, Scorpion®, Titan®, Touchstone 

®, Tristar®, and Venom®.

Active ingredients include: acetamiprid, clothianidin, dinotefuran, imidacloprid, nithiazine, 

sulfoxaflor, thiacloprid, and thiamethoxam. 

9. Refuge manager may require permittee to provide notification prior to all pesticide applications. 

10. Refuge manager should evaluate posting of fields after pesticide application.

VIII. Use of Genetically- Modified (GMO) Crops

1. All use of genetically-modified crops will occur under the guidance of the 2011 Regional 

Environmental Assessment (Use of Row Crop Farming and Genetically-modified, Glyphosate-tolerant 

Corn and Soybeans on National Wildlife Refuges and Wetland Management Districts)

2. The use of genetically-modified crops will be limited to genetically-modified, glyphosate-tolerant 

(GMGT) corn and soybeans.

3. The use of GMGT corn and soybeans will be allowed only for the purpose of habitat restoration.

4. The use of GMO crops is not allowed for any other farming purposes, including, habitat management, 

supplemental food, and attracting wildlife for viewing and photography.

5. The use of GMGT corn and soybeans would be limited to five years for any individual tract in 

preparation for habitat restoration.

6. Refuge Managers are required to demonstrate that their proposed use of GMGT crops is essential for 

habitat restoration.

A. Refuge Managers proposing to use GMGT crops must complete an Eligibility Questionnaire for 

Genetically Modified Crops.

B. The Regional Chief of Refuges will review all requests for authorization to use GMGT corn and 

soybeans and will approve or deny requests based on the Questionnaire.

7. Refuge Managers proposing to use GMGT crops must have a current farming compatibility 

determination that addresses the use of GMGT crops for habitat restoration.

IX. In-Kind Services

1. Definition of in-kind services: Actions required of the permittee outside of the actual farming process 

of site preparation, planting, tending, and harvesting of crops that would typically be covered by 

station funds.

2. In-kind services are only allowed if related to the farming program on the specific unit in which the 

farming activity occurs as defined in the station’s FPMP.
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3. These are acceptable in-kind services:

A. Routine maintenance of refuge farm fields such as mowing or spraying field edges to reduce 

noxious weed encroachment (IPM technique). 

B. Routine maintenance of refuge farm roads and access points that are associated with the 

specific farm field, which are only open to refuge staff and the cooperative farmer(s). 

C. BMPs such as establishment of grass waterways, buffer strips, and/or fire breaks in order to 

better manage refuge agricultural fields. 

4. Consult with Area Supervisor on other proposed in-kind services.

5. In-kind services will be identified in the SUP and the station FPMP.

6. Stations that wish to utilize in-kind services as part of their farming operations are required to have 

Standard Operating Procedures (SOP) for administering in-kind services included in their FPMP and 

must use one of the two following methods;

A. In the lottery or priority permittee selection methods, the acceptable in-kind services may be 

identified in the SUP and the refuge manager may choose to allow appropriate deductions for 

these services. 

B. The competitive bid process for permittee selection is recommended if the cost for in-kind 

services resulting from IX.4. is to be considered in an SUP. However, with Regional Chief 

approval, the refuge manager may also apply appropriate deductions for these in-kind services 

for SUPs associated with lottery or priority system permittee selections.

7. Refuge manager will document the process (see 5 RM 17 and 6 RM 4).

X. Best Management Practices (BMPs)

1. The goal of Region 3 field stations should be to provide leadership in the implementation and 

demonstration of BMPs and other conservation practices in the farming program.

2. Each station with a farming program must document BMPs for their station in a habitat management 

plan, farm plan, or station SOP and must identify BMPs in special conditions of SUPs.

3. Refuge managers must coordinate with local extension office to develop site-specific BMPs.

4. Refuge managers are encouraged to implement sustainable agricultural practices.

XI. Standard Special Conditions to Be Included in All SUPs:

1. Permittees are required to implement and/or maintain site specific BMPs:

A. [INSERT LIST]

2. An approved Pesticide Use Proposal is required before pesticide application and permittee is required 

to follow the associated guidelines.
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3. Managers must use one of the statements below:

A. For habitat restoration: The only GMO crops allowed are glyphosate-tolerant corn and soybeans.

B. For all other purposes: GMO crop use is not allowed. 

4. No neonicotinoid-treated seed can be used (this statement to be included when the use of 

neonicotinoid treated seeds has actually ceased on the station in 2014, 2015, or 2016). 

5. Permittee is required to report pesticide use by [INSERT DATE].

6. Permittees are required to notify refuge manager if enrolled in FSA program(s).

7. If the SUP is written for multiple years then the following language is required:

A. The permittee agrees that agricultural crops of the type and acreages must be planted, 

cultivated, and harvested in accordance with special conditions specified above during the first 

year of operation. If this agreement is for more than one year the conditions (to include but not 

limited to) type of crop, acreage, herbicide use, approved seed treatment, etc. may be altered or 

modified annually, following the first year of operation. Changes in the agreement must be made 

prior to planting season by an addendum, which is attached to and becomes part of the 

agreement.

i. The Service must provide the permittee those changes to the agreement prior to [INSERT 

DATE] by a written addendum.

ii. The permittee then has until [INSERT DATE] to accept or turn down those changes.

iii. If the changes are agreed upon by the permittee, the addendum is signed and attached to 

the SUP and becomes part of the agreement. If the changes are not accepted, the selection 

process will begin again.

8. Suggested: Permittee may be required to post fields after pesticide application.

9. Suggested: Permittee will provide notification prior to pesticide application.

10. Suggested: A seed label for all crops planted must be provided to the refuge manager no later than 

two weeks prior to planting.

XII. Regional Office Support and Monitoring

1. Regional Office will provide an Annual Pesticide Use Policy and associated field approval list in 

January of each year even if there are no changes.

2. Regional Office should conduct a certain level of monitoring of submitted field station PUPs.

3. Regional Office will disseminate newly acquired lands farming guidance to realty specialists to include 

in purchase agreements and initial discussion with landowners.
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4. Pursue allocating appropriate proportions of collection receipts to the field stations where the 

collections originated. 

5. Regional Office will conduct station farming program reviews on a regular basis to evaluate Regional 

implementation of the farming guidelines (similar to safety audits).

6. Regional Office will conduct a yearly Project Leader call concerning farming issues at the close of each 

farming season, preferably in November.

7. Regional Office will evaluate whether there are contracting issues associated with in-kind services

8. The Farm Team is to remain intact and the team charter extended and reconvene at least annually to:

A. Address new/additional farming issues 

B. Amend farming guidelines and provide needed amended language to Regional Management 

Team by December 31 of each calendar year.

C. Assist the Regional Management Team as needed with pertinent farming issues, field reviews 

and Project Leader conference calls.

9. Regional Office will pursue any needed Solicitor review of suggested guideline that may be required.

10. Regional Office will develop a permanent Sharepoint site to store all pertinent farming documents. 
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Appendix A

Region 3 Treated Seed

Incorporation Monitoring Statement

Refuge or WMD:

Name of FWS representative inspecting the field(s):

Title of FWS representative inspecting the field(s):

Description and acreage of area to be planted with treated seed:

Purpose of the planting:

Trade and Active Ingredient Name(s) of seed treatment:

Pesticide Use Proposal number(s):

Date(s) of planting:

Date(s) of inspections:

Date and time of final comprehensive inspection:

I certify: ( check all that apply)

a) ____ refuge staff conducted random field spot checks when the treated seeds were being planted 

b) ____all crop seeds were planted in-furrow or picked-up and removed or replanted underground 

immediately.

c) ____ a final comprehensive inspection was made after planting was completed and no uncovered 

treated seeds remain on Refuge/WMD lands. 

Field Inspector Signature: Date:

Project Leader Signature: Date:

Project Leader printed name:

 

Iowa Wetland Management District

1710 360th Street

Titonka, Iowa 50480 

(515) 928-2523

http://www. fws.gov/refuge/iowa_wmd

U.S. Fish and Wildlife Service

http://www.fws.gov

Region 3, U.S. Fish and Wildlife Service

http://www.fws.gov/midwest