Ten Thousand Islands National Wildlife Refuge I

Introduction

Purpose of and Need for the Comprehensive Conservation Plan ______________ 1

Overview of the Fish and Wildlife Service __________________________________ 2

Mission of the Fish and Wildlife Service ___________________________________ 2

Description and Mission of the National Wildlife Refuge System ______________ 2

The Ten Thousand Islands National Wildlife Refuge

Refuge Location ________________________________________________________ 3

History of the Refuge ___________________________________________________ 4

Role of the Ten Thousand Islands National Wildlife Refuge __________________ 4

Refuge Function within the Ecosystem, and Ecosystem Priorities_____________ 5

Legel Policy, Administrative Guidelines, and Federal and State Mandates______ 7

Refuge Agreements_____________________________________________________ 7

Planning Issues and Opportunities

Overview of the Public Involvement Process _______________________________ 8

Scope of Issues and Opportunities_________________________________________ 8

Management Direction

Refuge Purpose ________________________________________________________ 9

Refuge Mission _________________________________________________________ 9

Refuge Vision Statement ________________________________________________ 9

The Management Action ________________________________________________ 9

Goals, Objectives, and Strategies to Support Management Action ____________ 20

Plan Implementation

Partnerships __________________________________________________________ 28

Annual Work Plans ____________________________________________________ 28

Step-Down Plans ______________________________________________________ 28

Funding ______________________________________________________________ 31

Volunteers ____________________________________________________________ 40

Staff _________________________________________________________________ 40

Monitoring and Evaluation ______________________________________________ 40

Table of 

Contents
II Ten Thousand Islands National Wildlife Refuge

Appendix A.

Finding of No Significant Impact ___________________________________________ 45

Environmental Assessment ________________________________________________ 49

Purpose and Need for Action ____________________________________________ 49

Introduction________________________________________________________ 49

Alternatives___________________________________________________________ 50

Alternative A: No Action_____________________________________________ 50

Alternative B: Ecosystem Approach___________________________________ 55

Alternative C: Maximize Public Use Programs on the Refuge _____________ 56

Affected Environment__________________________________________________ 63

Climate ____________________________________________________________ 63

Air Quality _________________________________________________________ 63

Water Resources____________________________________________________ 64

Geology and Soils ___________________________________________________ 65

Vegetative Habitats and Habitat Management __________________________ 65

Wildlife Diversity ___________________________________________________ 68

Threatened and Endangered Species __________________________________ 70

Public Use, Compatibility, and Environmental Education_________________ 72

Cultural Resources __________________________________________________ 72

Socioeconomic Environment __________________________________________ 72

Environmental Consequences ___________________________________________ 74

Alternative A: No Action_____________________________________________ 74

Alternative B: Ecosystem Approach___________________________________ 77

Alternative C: Maximize Public Use on the Refuge ______________________ 81

Cumulative Impacts____________________________________________________ 87

Mitigation and Residual Impacts of Alternative B __________________________ 87

Compatibility Determination ____________________________________________ 88

Appendix B. 

Legal Policy and Administrative Guidelines __________________________________ 92

Legal Mandates _______________________________________________________ 92

Service-wide Policy Directions ________________________________________ 99

Appendix C.

Scoping and Public Involvement Process____________________________________ 101

Part 1 - Service Responses to Issues, Concerns, and Opportunities __________ 104

Part 2 - Summary of Public Comments and Service Responses on Draft CCP _ 113

Part 3 - Participants___________________________________________________ 115

Part 4 - Stakeholders __________________________________________________ 115

Part 5 - Mailing List ___________________________________________________ 116

Appendix D.

Intra-Service Section 7 Consultation _______________________________________ 121

Appendix E.

Management Agreement for Certain Lands in Collier County _________________ 129

Appendix F.

References _____________________________________________________________ 133

Appendix G.

Glossary of Terms _______________________________________________________ 135

Appendices
Ten Thousand Islands National Wildlife Refuge III

1. Organization Chart, Fish and Wildlife Service, Department of the Interior_____ 2

2. Ten Thousand Islands National Wildlife Refuge Vicinity Map ________________ 3

3. South Florida Ecosystem Map ___________________________________________ 6

4. Duck Hunting Areas___________________________________________________ 11

5. Co-Managed Submerged Lands _________________________________________ 13

6. Non-Navigable Waters_________________________________________________ 14

7. The South Golden Gate Estates Canal System ____________________________ 15

8. South Golden Gate Estates Restoration __________________________________ 17

9. Ten Thousand Islands National Wildlife Refuge and Regional

Conservation Lands ___________________________________________________ 18

10. Proposed Lands for Acquisition _________________________________________ 34

11. Exotic Plant Control Areas _____________________________________________ 36

12. Non-Motorized Boat Trail ______________________________________________ 38

13. Proposed Location of Visitor Contact Station _____________________________ 41

14. Interpretive Trail and Observation Tower along Oil Pad Road_______________ 42

15. Project Cost Summary_________________________________________________ 43

16. Organizational Structure for Management of Ten Thousand Islands

National Wildlife Refuge _______________________________________________ 43

17. Organizational Structure for Management of Ten Thousand Islands

National Wildlife Refuge Under Alternative A ____________________________ 55

18. Project Cost Summary Under Alternative C _____________________________ 61

19. Organizational Structure for Management of Ten Thousand Islands

National Wildlife Refuge Under Alternative C ____________________________ 61

20. Issues and Alternatives Matrix _________________________________________ 62

21. Manatee Speed Zones__________________________________________________ 71

22. Summary of Environmental Consequenses by Alternative__________________ 85

23. Public Involvement Survey Form ______________________________________ 102

Figures
IV Ten Thousand Islands National Wildlife Refuge
Ten Thousand Islands National Wildlife Refuge 1

List of Preparers

U.S. Fish and Wildlife Service 

Personnel

Roger Beckham

James Clark

Terry Doyle

Andy Eller

Jennifer Harris

Rick Kanaski

Jim Krakowski

Wendell Metzen

Evelyn Nelson

Ben Nottingham

Larry Richardson

Alabama A&M University 

Student Interns:

Berrien Barks

Frederick Gardenier

Fesaaha Grebremikal

Phillip West

Research Management 

Consultants, Inc.

Louis J. Bridges

Introduction 

Purpose of and Need for the Comprehensive Conservation Plan

Under the provisions of the National Wildlife Refuge System 

Improvement Act of 1997, the Service is required to develop 

comprehensive conservation plans for all lands and waters of the National 

Wildlife Refuge System. These plans will guide management decisions and 

set forth strategies for achieving the purposes of each refuge unit. The 

National Environmental Policy Act ensures that the Service will assess the 

environmental impacts of any actions taken as a result of implementing the 

Comprehensive Conservation Plan.

This Comprehensive Conservation Plan and appended Environmental 

Assessment has been prepared for the Ten Thousand Islands National 

Wildlife Refuge, Collier County, Florida. Its purpose is to identify the 

role the refuge will play in support of the mission of the National Wildlife 

Refuge System and the South Florida Ecosystem, and how it will address 

public concerns for compatible commercial and recreational uses. 

The plan outlines issues, concerns, and opportunities expressed to the 

Service during a series of public meetings. It also provides a description 

of desired future conditions and long-range guidance to accomplish the 

purpose of the refuge. This guidance is presented in a listing of refuge 

goals, objectives, and strategies resulting from an analysis of various 

management alternatives. An environmental assessment of management 

alternatives may be found in Appendix A.

The plan will serve as an operational guide for the Refuge Manager over 

the next ten to fifteen years.

The plan is also needed to:

provide a clear statement of the desired future conditions when refuge 

purposes and goals are accomplished;

provide refuge neighbors and visitors with a clear understanding of the 

reasons for management actions on and around the refuge;

ensure that management of the refuge reflects policies and goals of the 

National Wildlife Refuge System;

ensure that refuge management is consistent with federal, state, and 

county plans;

provide long-term continuity in refuge management; and

provide a basis for operation, maintenance, and capital improvement 

budget requests.
2 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Figure 1. Organization Chart, Fish and Wildlife Service, Department of the Interior

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“...to conserve, protect, and enhance 

the Nation’s fish and wildlife and 

their habitats for the continuing 

benefit of people.”

...conserve, manage, and restore... 

fish, wildlife and plant resources 

and their habitats within the United 

States...

“...world’s largest collection of 

lands set aside specifically for 

the protection of fish and wildlife 

populations and habitats.”

Overview of the Fish and Wildlife Service

The Fish and Wildlife Service is a federal bureau operated under the 

Department of the Interior, the Nation’s principal conservation agency. The 

Department has responsibility for most of our nationally owned public lands 

and natural and cultural resources. This includes fostering wise use of our 

land and water resources, protecting our fish and wildlife, preserving the 

environmental and cultural values of our national parks and historical places, 

and providing for the enjoyment of life through outdoor recreation. 

Mission of the Fish and Wildlife Service

The Fish and Wildlife Service is the principal organization through which 

the Department of the Interior carries out its responsibilities of working 

with others to conserve, protect, and enhance the Nation’s fish and wildlife 

and their habitats for the continuing benefit of people. The Service has 

major responsibility for migratory birds, endangered species, anadromous 

and inter-jurisdictional fish, and certain marine mammals. 

Description and Mission of the National Wildlife Refuge System

The Service also manages the National Wildlife Refuge System, the 

world’s largest collection of lands set aside specifically for the protection of 

fish and wildlife populations and habitats. More than 510 national wildlife 

refuges provide important habitat for native plants and many species 

of insects, amphibians, reptiles, fish, birds, and mammals. These refuges 

also play a vital role in preserving threatened and endangered species 

as well as offer a wide variety of recreational opportunities. Many have 

visitor centers, wildlife trails, and environmental education programs. 

Nationwide, more than 25 million visitors annually hunt, fish, observe and 

photograph wildlife, or participate in interpretive activities on national 

wildlife refuges. 

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.
Ten Thousand Islands National Wildlife Refuge 3

 Comprehensive Conservation Plan

Figure 2. Ten Thousand Islands National Wildlife Refuge Vicinity Map

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The Ten Thousand Islands 

National Wildlife Refuge

Refuge Location

The refuge is located approximately 20 miles southeast of Naples, Florida, 

south of U.S. Highway 41 (Fig 2). The western boundary lies along County 

Road 92. The Gulf of Mexico borders the southern boundary, and the 

eastern boundary lies just west of Everglades National Park and the 

Faka Union Canal at the northern portion of that boundary. A 5-mile 

long, 1 1/2-mile wide extension into the Gulf of Mexico is present in 

the southeastern portion of the refuge. The Collier-Seminole State Park 

extends into the northwestern portion of the refuge from U.S. 41 south to 

Blackwater Bay, and encompasses the Royal Palm Hammock Creek and 

upper portion of Palm Bay, the upper portion of Blackwater River, and 

all of Mud Bay. 
4 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

History of the Refuge

The Ten Thousand Islands National Wildlife Refuge was established 

under the provisions of the “Arizona-Florida Land Exchange Act of 

1988,” authorized by Public Law 100-696. The Act authorized the 

Department of the Interior to convey 68 acres of the Department of 

the Interior Indian School property 

in Phoenix, Arizona, to Collier 

interests in exchange for 108,000 

acres in Collier County, Florida. 

In addition, the Department 

received $34.9 million to establish 

Indian education trust funds. 

Approximately 35,000 acres were 

conveyed to the Service to establish 

Ten Thousand Islands National 

Wildlife Refuge and the remaining 

acreage was added largely to Big 

Cypress National Preserve and 

Florida Panther National Wildlife 

Refuge. An additional 33.6 acres 

of land are under lease with the 

Florida Department of 

Transportation and lies adjacent to 

U.S. 41.

The initial authorization designated December 11, 1991, as the deadline 

to consummate the deal. The properties were expected to be transferred 

in 1992, however, unresolved issues involving Native American interests 

in Phoenix and other problems delayed the transfer. An agreement with 

new terms and conditions for closing in December 1992, was established. 

The new terms allowed the Collier interests to delay the initiation of $34.9 

million in payments into an Indian Education Trust Fund for four years. 

This amount, plus interest, will be paid in the form of annual payments 

over a period of thirty years. These funds will be used to supplement 

educational and child welfare programs, activities, and services for the 

benefit of Navajo and Arizona Tribes that were members of the Intertribal 

Council of Arizona in 1988. The conveyance of title on all lands was delayed 

until December 18, 1996.

Role of the Ten Thousand Islands National Wildlife Refuge

The refuge provides habitat for a wide range of invertebrates, fishes, 

amphibians, reptiles, birds, and mammals. The refuge and the adjacent 

Ten Thousand Islands area provide important habitat for several notable 

threatened and endangered species, including the Atlantic loggerhead, 

green, Kemp’s ridley, and Hawksbill sea turtles, American crocodile, wood 

stork, bald eagle, and West Indian manatee. More than 189 species of 

birds, 196 species of fish, 45 species of reptiles and amphibians, and 22 

species of mammals use the refuge. The refuge also plays an important 

role in the restoration of the South Florida Ecosystem. Lands and waters 

of the ecosystem have been critically altered due to environmental and 

economic impacts of urbanization, agriculture, and other human activities. 

Also important are the recreational uses of the refuge. The public uses 

the mangrove ecosystem and greater area of the refuge in a variety 

of pursuits, including sportfishing, birdwatching, camping, boating, and 

enjoying the aesthetics of the area.

American alligator

Photo by Larry W. Richardson
Ten Thousand Islands National Wildlife Refuge 5

 Comprehensive Conservation Plan

Anhinga

Photo by Larry W. Richardson

Refuge Function within the Ecosystem, and Ecosystem Priorities

The South Florida Ecosystem encompasses 16.5 million acres of richly 

diverse habitats covering the 19 southernmost counties in Florida (Fig. 3). 

It is a subtropical region that lies between the Caribbean and temperate 

North America. Environmental and economic impacts of urbanization, 

agriculture, and other human activities have altered the critical natural 

balance between land and water, and the region’s endemic flora and 

fauna. Today, the South Florida Ecosystem faces substantial habitat loss 

and fragmentation. 

The Departments of Interior, Commerce, Army, Justice, and Agriculture, 

and the Environmental Protection Agency created the South Florida 

Ecosystem Restoration Task Force for the purpose of halting or reversing 

ecological degradation. The task force has now expanded to include 

the State, Native American Tribes, and the Governor’s Commission for 

a Sustainable South Florida. The refuge plays an important role in 

integrating the requirements of the Interagency Agreement on South 

Florida Ecosystem Restoration and the mission of the National Wildlife 

Refuge System.

The following priorities have been determined by the Service for the South 

Florida Ecosystem, which includes the Ten Thousand Islands National 

Wildlife Refuge:

Protect and manage units of the National Wildlife Refuge System and 

other national interest lands.

Protect, restore, and manage migratory birds and their habitats.

Protect, restore, and manage candidate, threatened, and endangered 

species and their habitats.

Protect, restore, and manage wetlands and other freshwater habitats.

Protect, restore, and manage fish and other aquatic species and their 

habitats.

Protect, restore, and enhance coastal and estuarine habitats.

Protect, restore, and manage for biodiversity.
6 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Figure 3. South Florida Ecosystem Map

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Ten Thousand Islands National Wildlife Refuge 7

 Comprehensive Conservation Plan

Legal Policy, Administrative Guidelines, and Federal and State Mandates

Administration of the Department of the Interior, the Fish and 

Wildlife Service, and the National Wildlife Refuge System is guided by 

International treaties, Federal laws, and Presidential Executive Orders. 

Management options of the refuge are further refined by administrative 

guidelines established by the Secretary of the Interior and policy 

guidelines established by the Director of the Fish and Wildlife Service.

Treaties, laws, administrative guidelines, and policy guidelines assist the 

Refuge Manager in making decisions pertaining to soil, water, air, flora, 

fauna, and other natural resources, historical and cultural resources, 

research, and recreation on refuge lands. They also serve as a framework 

for cooperation between the refuge and other South Florida Ecosystem 

partners. These partners include the National Park Service, National 

Resource Conservation Service, Indian Tribes, Florida Department 

of Environmental Protection, Florida Fish and Wildlife Conservation 

Commission, South Florida Water Management District, Florida Division 

of Forestry, Collier County, and private landowners and organizations.

Select legal summaries of treaties and laws relevant to administration of 

the National Wildlife Refuge System and management of the refuge are 

provided in Appendix B.

Refuge Agreements

The refuge also operates under the following agreements with state and 

local entities:

Interagency Agreement between the Department of the Interior, Big 

Cypress National Preserve, and the Ten Thousand Islands National 

Wildlife Refuge for law enforcement;

Local Operational Agreement between the Big Cypress National 

Preserve and Florida Panther and Ten Thousand Islands National 

Wildlife Refuges for wildfire suppression and prescribed burning;

Memorandum of Understanding between the Department of the Interior 

and the State of Florida, Department of Environmental Protection for 

wildfire suppression and prescribed burning;

Memorandum of Understanding between the Department of the Interior 

and the State of Florida, Department of Agricultural and Consumer 

Services, Florida Division of Forestry for wildfire suppression and 

prescribed burning;

Management Agreement and Memorandum of Understanding with the 

State of Florida for co-management of refuge waters below mean high tide 

(pending); 

Memorandum of Understanding between the Florida Panther and Ten 

Thousand Islands National Wildlife Refuges and Collier County Sheriff’s 

Office for law enforcement;

Lease Agreement between the State of Florida Department of 

Transportation and the Fish and Wildlife Service along U.S. 41; and

Endangered Species Cooperative Agreement between the State of 

Florida and the Fish and Wildlife Service to coordinate recovery 

activities for federally listed species in Florida.

Red-shouldered hawk

Photo by Larry W. Richardson
8 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Photo by Larry W. Richardson

Planning Issues and 

Opportunities

Overview of the Public Involvement Process

Issue identification provides a basis for initiating the development 

of some management objectives and strategies. To ensure that the 

future management of the refuge 

is reflective of the issues, concerns, 

and opportunities expressed by 

the public, a variety of scoping 

mechanisms was used.

A survey was used to gather 

general information on current and 

potential refuge operations. This 

survey was distributed to 

participants of the initial scoping 

meeting, and mailed to other 

interested and affected parties.

Personal interviews were 

conducted during several public 

scoping meetings and letters were 

mailed to affected and interested 

parties to inform them of the 

planning process and invite their 

participation. 

A series of stakeholder meetings and community forums were held to 

develop components of the draft plan. The meetings and forums also 

allowed for consensus testing of the draft plan components. All stakeholder 

meetings and community forums held by the Service were advertised and 

opened to the public.

Details of the scoping and public involvement process are provided in 

Appendix C.

Scope of Issues and Opportunities

The following key issues that require management decisions were 

identified during the scoping process:

Commercial and recreational uses on the refuge

Use of personal watercraft and airboats on the refuge

Habitat protection and wildlife management

Partnerships and cooperative management of resources 

Education and public outreach

Research and monitoring

Protection of archaeological resources

Staffing needs

A detailed discussion of the issues, concerns, and opportunities can be 

found on pages 104 - 112.

All issues and opportunities posed by the public regarding refuge 

management have been addressed in Appendix C, Part 2; and through the 

development of comprehensive goals, objectives, and strategies found on 

pages 20 - 27. 
Ten Thousand Islands National Wildlife Refuge 9

 Comprehensive Conservation Plan

West Indian manatee

Photo by Larry W. Richardson

...essential habitat for 

threatened and endangered 

species ... noted for its cultural 

resources.

...to develop, advance, manage, 

conserve and protect the refuge’s 

unique estuarine ecosystem and 

its fish and wildlife resources

...conserve, protect, and manage 

the refuge’s unique subtropical 

estuarine ecosystem,

Management Direction

Refuge Purpose

The Ten Thousand Islands National Wildlife Refuge was established 

under the authority of the Florida/Arizona Land Exchange Act in order 

to develop, advance, manage, conserve and protect the refuge’s unique 

(subtropical) estuarine ecosystem and its fish and wildlife resources

(Fish and Wildlife Act of 1956). The refuge represents a variety of 

coastal habitats, including mangrove forests (the most dominant habitat on 

the refuge), both freshwater and saltwater marsh systems, interspersed 

brackish ponds, and small islands or hammocks of upland habitat.

Refuge Mission

To conserve, protect, and manage the refuge’s unique subtropical estuarine 

ecosystem, especially its endangered species, its natural biological 

diversity, and its rich cultural resources for the continuing, sustained 

benefit of the American people. 

Refuge Vision Statement

The Ten Thousand Islands National Wildlife Refuge will be a model for 

natural systems management, featuring unique coastal marshes, islands, 

and subtropical estuarine mangrove ecosystems. The refuge will provide 

essential habitat for threatened and endangered species and be an area 

noted for its cultural resources. Through effective management and 

partnering, the refuge will provide outstanding recreational opportunities 

for present and future generations. 

The Management Action 

The management action for the refuge is discussed in the following pages. 

This approach recognizes the importance of the refuge within the Big 

Cypress Watershed of southwest Florida. It also considers actions taken 

outside the refuge that may affect the refuge environment, as well as 

how refuge programs affect adjacent lands and waters. The alternatives 

considered and their impacts, along with the impacts of the management 

action, are described in Appendix A.

An ecosystem approach to manage the refuge was chosen due to its 

proactive nature of allowing for management of all biological systems. This 

results in fewer conflicts between refuge resources and users of the refuge 

by identifying potential conflicts early on and resolving them before they 

become crises. In the long run, this approach is less disruptive to the 

users of the refuge and less costly than a crisis-oriented approach. This 

approach primarily meets the needs of the resources, allows for many 

of the expressed commercial needs of the public, and allows for public 

access to hunting, fishing, wildlife observation, photography, interpretation 

and environmental education. The basis of this action stems from desired 

future conditions of the refuge, and was developed from stakeholder 

consensus and as a result of public forums held during the planning 

process. The end result is a set of goals, objectives, and strategies related 

to key issues which will guide the management of the refuge.

The following pages address how key issues, identified during the scoping 

process, will be addressed utilizing an ecosystem approach. 
10 Ten Thousand Islands National Wildlife Refuge

Waterfowl in flight

Photo by Larry W. Richardson

 Comprehensive Conservation Plan

Commercial and Recreational Uses on the Refuge:

The refuge was established to protect the important mangrove and marsh 

habitats, the rich diversity of native wildlife, and the threatened and 

endangered species of the area. Utilizing an ecosystem approach, the dayto-day management of the refuge will not change significantly. However, 

commercial and recreational use will be reviewed and evaluated by the 

Service at the end of a 5-year period. The Service cannot predict whether 

or not studies will be funded; if they will occur in a timely manner; or, if 

research will produce the results needed to make decisions.

A variety of commercial uses occurs on the refuge. Blue and stone crabs 

are caught with traditional underwater cage traps. Netting for mullet, 

as well as hook and line for other species of fish, occurs on a seasonal 

and less frequent basis. Charter fishing is the predominant use with 

probably more than thirty fishing guides taking clients to the refuge. 

Tour businesses include canoe/camp trips, boat cruises, and shell collection 

trips. The Service, in consultation with the State of Florida, will allow all 

commercial activities to continue. These activities will be monitored with 

the Florida Department of Environmental Protection in order to make 

future decisions on whether to continue, discontinue, expand, or reduce 

their practices. 

The refuge is well known to residents and visitors alike who enjoy a 

variety of recreational pursuits in its remote waters. Throughout the year, 

thousands of sport fishermen pursue a multitude of game fish. Canoe and 

kayak float trips and motorized watercraft are common during the winter 

months. Overnight stays (camping) at Panther, Hog, and Round Keys also 

occur during the winter by boaters mentioned above and by recreational 

fishermen. Prior to the refuge’s establishment, duck hunting occurred in 

refuge marshes south of U.S. 41 (Fig. 4).

West Indian manatees use refuge waters throughout the year. Collier 

County is the third highest area of watercraft-related manatee mortality 

in the state. With the predicted boat traffic increase in county waters, it 

will be important for the refuge to monitor the impacts of this traffic and 

enforce manatee protection areas.

Camping typically is not a preferred use within the National Wildlife 

Refuge System. Refuge camping is limited, for the most part, to the 

coastal beaches of the Keys mentioned above during the winter months, 

when the mosquitoes and flies are limited in number. This use does 

not conflict with sea turtle nesting, which occurs in the summer months. 

Currently, the number of campers does not appear to have an adverse 

affect on the environment of the Keys. Camping has been a long standing 

tradition and the area is nationally advertised for this experience. Refuge 

camping is directly associated with the primary purposes for which boaters 

visit the refuge, which are wildlife observation, fishing, and aesthetic 

apreciation of the natural wonders of the Ten Thousand Islands. Camping 

will continue to be allowed at present levels on the coastal islands of the 

refuge. Refuge usage, including camping, will increase as our recreating 

population increases. The impacts of this usage will be continually 

monitored, and camping will be addressed in a long-term Public Use 

Plan to be coordinated with the Florida Department of Environmental 

Protection (Strategy 2.1.4). The Public Use Plan may regulate or restrict 

the camping that does occur. 

Sport fishing, wildlife observation, and limited, high quality duck hunting 

complement the mission and goals of this refuge and will continue to be 

allowed and promoted, coupled with monitoring and research to further 

evaluate their uses. 
Ten Thousand Islands National Wildlife Refuge 11

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Figure 4. Duck Hunting Areas

 Comprehensive Conservation Plan
12 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

White ibis

USFWS Photo by Sue Wall

Use of Personal Watercraft and Airboats on the Refuge:

Presently, personal watercraft and airboats occur infrequently on the 

submerged lands of the refuge due to its remoteness. However, these 

uses are expected to grow with Collier County’s predicted increase in 

population. Both of these access modes are characteristically loud, fast, and 

capable of cruising in extremely shallow water. The Service has consulted 

with the Florida Department of Environmental Protection, which is a 

co-manager of the adjoining submerged lands (Fig. 5), and has determined 

that airboat and personal watercraft use will be allowed to continue. 

However, these uses will be studied to better determine whether they 

produce negative effects on wildlife, 

vegetation, and the aesthetics of 

the refuge, and to make informed 

decisions on whether to continue, 

discontinue, expand or reduce their 

practices in the future. 

Airboat, swamp buggy, personal 

watercraft, and other off-road 

vehicles will not be allowed in 

shallow freshwater marshes of the 

refuge, south of U.S. 41 (Fig.6). 

Historical uses of this nature have 

been found to disturb vegetation, 

wildlife, and drainage of the 

wetland marshes in the northern 

portion of the refuge.

Habitat Protection and Wildlife 

Management:

Routine field work will include 

monitoring sea turtle nesting and 

manatee activity, collecting baseline information on refuge resources, 

managing public use, and monitoring the effects of secondary uses. Habitat 

management will focus on the coastal, estuarine, and freshwater marsh 

habitats for the protection and enhancement of native wildlife populations; 

migratory bird habitats; and threatened, endangered, or candidate species 

that rely on these systems. This management approach will also help to 

facilitate the restoration of the South Florida Ecosystem, and work to 

mitigate the region’s impacts resulting from urbanization, agriculture, and 

other human activities. Utilization of an ecosystem approach will help to 

provide a haven for threatened and endangered species which permanently 

and/or temporarily utilize the area, and maintain a quality recreational 

area for compatible public uses of the refuge.

Perhaps the most significant long- and short-term impacts to the refuge’s 

habitat and wildlife resources concern the proposed South Golden Gate 

Estates Hydrologic Restoration Plan. During the period from 1963-71, the 

Gulf American Corporation excavated a series of canals that drastically 

drained the area and changed its ecology (Fig. 7). The canal system drained 

the South Golden Gate Estates and increased freshwater flows into the 

Faka Union Canal and consequently, that portion of the Ten Thousand 

Islands National Wildlife Refuge area. State biologists, working for the 

Florida Department of Environmental Protection, have concluded that 

the increased freshwater flows have severely impacted the Ten Thousand 

Islands estuary. The estuary now has problems with water turbidity, lack 

of sea grass growth, and a reduction in fish numbers and sizes. Local 

fishing guides claim the same and blame the increased freshwater flow. 

Those who fished the area before the construction of the canals talk of clear 

water, more grass, and more fish.
Ten Thousand Islands National Wildlife Refuge 13

 Comprehensive Conservation Plan

Figure 5. Co-Managed Lands and Submerged Lands

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14 Ten Thousand Islands National Wildlife Refuge

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Figure 6. Non-Navigable Waters

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Ten Thousand Islands National Wildlife Refuge 15

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Figure 7. The South Golden Gate Estates Canal System

 Comprehensive Conservation Plan
16 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Fishing from canoe

USFWS Photo

Through Florida’s “Save our Everglades Program” and funding from the 

Department of the Interior, the state is buying thousands of 5-,10- and 

20-acre lots from individual landowners to preserve the area as part 

of the Picayune Strand State Forest. The South Golden Gate Estates 

Hydrologic Restoration Plan (Fig. 8) proposes to restore the hydrology 

and sheetwater flow to the area by blocking canals, removing roads, and 

pumping water out of canals. The plan will not take effect until all of 

the private lots are acquired by the State of Florida. The refuge is in 

favor of restoring the South Golden Gate Estates area to its historic flow, 

but concerns remain about whether sufficient culverts exist along U.S. 41 

to handle the sheetwater flow and whether pumping excess water from 

the North Golden Gate Estates 

area would flood the South Golden 

Gate Estates area with more water 

than historically occurred prior to 

the canals. The refuge also receives 

fresh water in the form of rainfall 

and runoff from Fakahatchee and 

Picayune Strands.

The refuge will carefully review 

and minimize impacts of oil and gas 

exploration plans and operations, 

moreover, it will make every effort 

to gain mineral rights to oil and gas 

resources found on the refuge.

Partnerships and Cooperative 

Management of Resources:

The refuge overlaps and is 

surrounded by other protected 

state and federal lands (Fig. 9). 

These areas have different 

mandates and regulations for protection of this important coastal area. 

The agencies will need to work together to share information and 

resources to facilitate natural resource protection and quality public use. 

An ecosystem approach emphasizes working with the local community, 

private land owners, and other jurisdictions to ensure coordinated efforts 

toward comprehensive watershed and coastal management as well as 

cultural resource protection. This approach will also help maximize the 

use of applied research to help partners manage for the rich diversity of 

habitats and fish and wildlife resources. 

Developing partnerships with entities that lead to overall land and 

watershed protection and stewardship of the resources will be a primary 

focus. Management and research on the refuge will focus on public 

use, fish and wildlife monitoring, habitat and water quality assessments, 

partnerships, and watershed restoration. The refuge will distribute 

management and applied science information to other agencies and private 

land owners. 

The Florida Department of Environmental Protection’s Cape Romano-Ten 

Thousand Islands and Rookery Bay Aquatic Preserves (Fig. 9) overlay 

much of refuge’s submerged lands. A cooperative agreement between the 

Service and the State of Florida will be needed for the management of 

these submerged lands (Appendix E). The proposed South Golden Gate 

Estates Hydrologic Restoration Plan will likely have a major impact on the 

refuge. The Service will participate in the planning of this project to ensure 

that the resources of the refuge are not compromised. 
Ten Thousand Islands National Wildlife Refuge 17

 Comprehensive Conservation Plan

Figure 8. South Golden Gate Estates Restoration 

The Florida Fish and Wildlife Conservation Commission will have an 

increased role in the cooperative management of this refuge. Coordinated 

efforts will include law enforcement, protected species management, and 

other conservation activities.

Through periodic meetings, communication and coordination with land 

managers within the watershed will also occur to effectively conserve 

the diverse resources of the ecosystem. In order to protect the natural 

resources of the refuge and the South Florida Ecosystem, the public will be 

informed of current issues and protection efforts that are needed by way of 

news releases to media outlets, along with public meetings and workshops 

for major issues. The development of an environmental education program 

at Ten Thousand Islands National Wildlife Refuge will be actively pursued.

Education and Public Outreach:

Opportunities for increased environmental education and outreach will be 

increased with the ecosystem approach. An Outdoor Recreation Planner will 

work with the Rookery Bay National Estuarine Research Reserve, Collier 

County Environmental Education Consortium, school groups, volunteers, 

and local agencies to educate youth and adults of southwest Florida on the 

plight of threatened and endangered species and about refuge activities. 

An Information Specialist will ensure the same message is delivered to 

the public by way of the media. Outreach efforts off the refuge will be 

supplemented with the assistance of volunteers and other agencies.
18 Ten Thousand Islands National Wildlife Refuge

Figure 9. Ten Thousand Islands National Wildlife Refuge and Regional Conservation Lands

 Comprehensive Conservation Plan
Ten Thousand Islands National Wildlife Refuge 19

Prairie warbler

Photo by S. Maslowski

 Comprehensive Conservation Plan

Research and Monitoring:

Priority will be placed on monitoring, applied research, and studies that 

will provide information on the management of coastal systems and 

endangered species. This will include monitoring the status and trends 

of plant and animal communities, the effect that the proposed South 

Golden Gate Estates Hydrologic 

Restoration Plan will have on 

refuge resources, water quality 

monitoring, conducting fire effects 

studies, and studies on the impacts 

of airboat and personal watercraft 

use on refuge resources. The 

refuge will distribute management 

and applied science information 

to other agencies and private 

landowners.

Protection of Archaeological 

Resources:

There are several documented 

archaeological sites on the refuge, 

primarily ancient Calusa Indian 

shell middens. The Archaeological 

and Public Use Management Plans 

will include an assessment of the 

impacts of public visitation to 

these sites and determine how 

best to protect them as prescribed 

by law. The refuge will work 

in close association with state 

officials to ensure their protection. 

Interpretation and educational programs will be developed to incorporate 

these cultural resources. In addition, funding will be pursued to conduct 

additional investigation of these sites.

Staffing Needs:

The Ten Thousand Islands National Wildlife Refuge was established 

in 1996, and has a staff consisting of a seasonal Park Ranger and a 

Wildlife Biologist. This is a young refuge without an adequate budget 

or staff. New initiatives are needed to successfully address Service 

responsibilities for the refuge and the South Florida Ecosystem over the 

next 15 years. These initiatives include an enhanced biological and habitat 

monitoring program, a public use management and public education 

program, increased coordination with land managers off the refuge, and an 

expanded management program for flora and fauna. This action identifies 

seven new positions for the refuge (in addition to converting the temporary 

Park Ranger to permanent status), and an additional four new positions 

to be shared with Florida Panther National Wildlife Refuge to carry 

out Service responsibilities. New positions for Ten Thousand Islands 

National Wildlife Refuge include an Assistant Refuge Manager, Biological 

Science Technician (Wildlife), Fishery Biologist, Outdoor Recreation 

Planner, Mechanic, Maintenance Worker and an Administrative Assistant. 

Shared positions with Florida Panther National Wildlife Refuge include a 

Hydrologist, Botanist, Computer Specialist, and Information Specialist.
20 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Wildlife and Habitat 

Conservation

Goals, Objectives, and Strategies to Support the Management Action

The following list of goals, objectives, and strategies will be used to 

implement the management action. It was developed to reflect the needs 

of both the Service and the public (i.e., issues, concerns, and opportunities). 

The list of goals, objectives, and strategies specifies not only what the 

Refuge Manager will do if funding requirements are met, but also specifies 

activities to produce the desired results. Thus, the breakdown of activities 

forms a hierarchy for refuge management that encompasses the mission of 

the Service, the refuge system, ecosystem priorities, the refuge’s purpose, 

and the expressed needs of the public.

Goal

1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south 

Florida coastal ecosystem.

Objective

1.1 Identify and determine the status of imperiled species and their 

use of the refuge and its habitats.

Strategies

1.1.1 By the year 2001, compile a comprehensive literature 

review of past research, monitoring records, and 

incidental observations of listed species to document 

historical use of the area.

1.1.2 By 2003, conduct a comprehensive inventory of refuge 

habitats for listed species, to include, but not limited to, the 

following: plants, Florida tree snail, sea turtles, American 

crocodile, wood stork, and other wading birds, bald eagle, 

white-crowned pigeon, and West Indian manatee.

Objective

1.2 Establish baseline inventory and monitoring procedures for 

other refuge species and habitats. 

Strategies

1.2.1 By 2002, develop a Wildlife Inventory Plan for the 

refuge. Employ a permanent Biological Science 

Technician (Wildlife) to assist with inventory projects. 

(Special Project 1)

1.2.2 By 2005, develop a comprehensive inventory of refuge 

wildlife and habitats, to include, but not limited to, 

mammals, migratory and resident birds, fish, reptiles 

and amphibians, aquatic insects, and habitat delineations 

including submerged grass bed areas.

1.2.3 By 2005, complete a water elevation (surface and ground) 

and water quality (salinity and contaminants) monitoring 

program on the refuge. (Special Projects 3 and 4)

1.2.4 By 2005, initiate a fisheries inventory program to 

establish baseline data. The program would include 

creel census, commercial monitoring, and independent 

sampling conducted by the refuge or cooperator. (Special 

Project 5)

1.2.5 By 2007, develop a Geographic Information System 

for the refuge to include vegetation cover, hydrology, 

resource locations, soils, and archaeological and historic 

sites. (Special Project 2)

1.2.6 Monitor the impacts of sea level rise on refuge habitats. 

(Special Project 4)
Ten Thousand Islands National Wildlife Refuge 21

 Comprehensive Conservation Plan

Objective

1.3 Develop and implement management strategies to protect or 

enhance endangered species, other wildlife, and their habitats.

Strategies

1.3.1 Enforce boat speed regulations established by the State 

to protect manatees and manatee critical habitat.

1.3.2 Initiate a law enforcement program to protect refuge 

resources from poaching and over-harvest.

(Special Project 6)

1.3.3 By 2000, develop a plan, with other agencies, to restore 

natural sheetwater flows to the refuge in conjunction 

with the proposed South Golden Gate Estates Hydrologic 

Restoration Plan. By 2001, establish an initial monitoring 

protocol to evaluate the restoration effort.

(Special Project 4)

1.3.4 By 2002, develop a Fire Management Plan, incorporating 

a fire effects study, for the upper freshwater marsh 

system to enhance habitat for wintering waterfowl and 

other wildlife. (Special Project 7)

1.3.5 By 2003, reduce the incidence of raccoon depredation 

on sea turtle nests on Panther Key and adjacent coastal 

islands to ensure greater than 60 percent hatchling 

success.

1.3.6 Initiate a cooperative program with Collier County 

to remove derelict boats from refuge waters that are 

potential navigation and contamination threats. By 2005, 

have all derelict boats removed from refuge waters. 

(Special Project 9)

1.3.7 By 2006, develop a Fisheries Management Plan in 

coordination with Florida Fish and Wildlife Conservation 

Commission to maintain and/or enhance fishery resources 

and their habitats. (Special Project 5)

1.3.8 Using funds from the sale of Federal duck stamps, 

the Federal Land and Water Conservation Fund, and 

Everglades funding initiatives, acquire approximately 

1,640 acres adjacent to the refuge boundary.

(Special Project 8)

1.3.9 Minimize the impacts of oil and gas exploration and 

extraction on the refuge by acquiring mineral rights.

1.3.10 Review oil exploration plans to ensure that adverse 

impacts to refuge natural and cultural resources are 

minimized.

Objective

1.4 Implement an invasive exotic species inventory, monitoring, 

and control program. 

Strategies

1.4.1 By 2000, further identify and quantify the acreage of 

invasive exotic plants on the refuge coastal keys. (Special 

Project 10)

1.4.2 By 2004, develop and implement an invasive exotic plant 

control program aimed at eradicating 50 percent of the 

combined total acreage of the most prolific and/or difficult 

to control species on the coastal Keys including lather 

leaf, Australian pine, and Brazilian pepper. (Special 

Project 10)
22 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Public Use

1.4.3 Identify and quantify acreage of invasive exotic plants in 

the area north of the mangrove system. (Special Project 9)

1.4.4 Continue to organize and host an annual invasive 

exotic plant workshop for southwest Florida area land 

managers. Workshops would continue to focus on new 

invaders to the area, control techniques, opportunities 

for control equipment and labor cooperation, and other 

exotic plant issues. (Special Project 10)

1.4.5 Assess the status of fire ants on sea turtle nesting 

beaches and their impact on turtle nest success. If 

necessary, implement control measures including the 

feasibility of using pesticides during non-nesting months.

1.4.6 Assess the status of other exotic animals on the refuge 

through literature review, unpublished data, and direct 

observations. By 2007, provide a GIS-based inventory of 

species, status, and location. 

Goal

2.0 Provide visitors with quality recreational opportunities, guided by 

the refuge’s vision and mission, and compatible with its purpose.

Objective

2.1 Manage recreational activities that affect wildlife and native 

habitats. 

Strategies

2.1.1 Employ an Assistant Refuge Manager to assess and manage 

public use and resource management activities. (Special

Project 11)

2.1.2 By 2000, develop and implement a Waterfowl Hunt Plan. Use 

input from local hunters to help develop a quality hunt plan. 

2.1.3 By 2000, develop a cooperative management agreement with 

the State covering the submerged lands of the refuge (area of 

overlapping state/federal jurisdiction) to manage recreational 

and other activities.

2.1.4 By 2001, design and implement a study to assess the impacts of 

powered watercraft operating in shallow water environments 

within the Ten Thousand Islands region on wildlife and 

submerged land resources. The study would occur on and off 

the refuge within this area. Results would be used to assist 

the Service and the Florida Department of Environmental 

Protection/Rookery Bay National Estuarine Research Reserve 

in determining future site management options. Incorporate 

findings into the Public Use Management Plan. 

(Special Project 12)

2.1.5 By 2003, develop a Public Use Management Plan that addresses 

the needs of wildlife and their habitat, protects significant 

cultural resources, and provides quality visitor opportunities for 

present and future visitors. (Special Project 11)

2.1.6 By 2003, develop two brochures; a general brochure containing 

a map and information on resources and management, and 

a back country use brochure to help visitors navigate and 

recreate in the refuge. (Special Project 13 )

2.1.7 By 2004, develop a designated non-motorized boat trail for the 

refuge. Incorporate within the trail a wide variety of habitat 

types and wildlife observation opportunities. (Special Project 14) 

2.1.8 Provide limited signs and markers at strategic locations within 

the refuge to assist visitor navigation.
Ten Thousand Islands National Wildlife Refuge 23

Commercial Use

 Comprehensive Conservation Plan

Goal

3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

Objective

3.1 By 2002, establish a special use permit process to regulate 

commercial activities including co-managed lands and waters. 

Strategies

3.1.1 Gather information on current uses within the 

co-managed area and assess compatibility.

3.1.2 Explore the feasibility of a common charter fishing guide 

permit with Everglades National Park. The permit 

would allow a guide who fishes both areas to be covered 

by one permit.

3.1.3 Establish application procedures for a refuge special use 

permit.

3.1.4 Gather new biological information on commercial uses to 

facilitate compatibility determinations as needed.

Objective

3.2 By 2006, develop a program to assess commercially harvested 

resources within the refuge.

Strategies

3.2.1 Obtain biennial data by species from the Florida Marine 

Research Institute on harvested quantities of finfish, 

sport fish, and shellfish from the town of Goodland 

and Everglades City. Assess the utility of these data 

to determine whether the refuge needs additional 

information. (Special Project 5)

3.2.2 Promote, establish, and evaluate commercial monitoring 

surveys of finfish, sport fish, and shellfish with state 

agencies and local and private entities. Collaborate with 

the Florida Department of Environmental Protection 

and Florida Fish and Wildlife Conservation Commission 

on their periodic stock assessments of sport fish and 

finfish in the Ten Thousand Islands area. Enlist fishing 

guides and fishing club members to report creel statistics 

and establish a database. (Special Project 5)

3.2.3 On an annual basis, evaluate harvest and survey 

information, along with other environmental data, to 

determine population trends of harvested species. 

Consult with Florida Department of Environmental 

Protection and Florida Fish and Wildlife Conservation 

Commission biologists to jointly assess whether refuge 

stocks are in danger of depletion. (Special Project 5)
24 Ten Thousand Islands National Wildlife Refuge

Environmental

Education

 Comprehensive Conservation Plan

Goal

4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the 

importance of conserving them.

Objective

4.1 By 2008, increase local awareness of south Florida ecosystems, 

the Rookery Bay National Estuarine Research Reserve, and 

the refuge through the development and implementation of an 

outreach program. (Special Project 16)

Strategies

4.1.1 Establish partnerships with support groups and the 

Rookery Bay National Estuarine Research Reserve 

to assist with outreach, events, and environmental 

education. Work with partners to participate in at 

least two outreach events each year that feature 

refuge resources (e.g., National Wildlife Refuge Week, 

International Migratory Bird Day, Earth Day, Estuary 

Day, Fishing Tournaments, etc.).

4.1.2 Become an active member of the Collier Environmental 

Education Consortium. Work to increase the 

Consortium’s involvement and collaboration in refuge 

outreach efforts.

4.1.3 By 2008, collaborate with refuge eco-tour concessionaires 

to disseminate refuge and state aquatic preserve 

resources and management information to the public. 

Encourage permitted eco-tour vendors to attend 

orientation programs hosted by Rookery Bay National 

Estuarine Research Reserve that promote responsible 

and informed commercial use of the area.

4.1.4 By 2008, develop at least four lesson plans with Rookery 

Bay National Estuarine Research Reserve for school 

teachers and/or environmental organizations. Subjects 

may include, but not limited to, endangered species, 

mangrove ecology, responsible public use (i.e., fishing, 

boating, camping, etc.), and migratory birds. (Special 

Project 15)

4.1.5 Add two new personnel to the Ten Thousand Islands and 

Florida Panther National Wildlife Refuge Complex staff. 

A Visual Information Specialist is needed to coordinate 

news events, press releases, and information transfer 

to local, state, and national news outlets. An Outdoor 

Recreation Planner is needed to coordinate activities 

for the proposed Southwest Florida Environmental 

Information Center and Goodland visitor contact station, 

to develop refuge interpretive displays, outreach 

programs for schools and the general public, and to 

coordinate refuge volunteer activities. (Special Project 16)
Ten Thousand Islands National Wildlife Refuge 25

Cooperative

Management

 Comprehensive Conservation Plan

Objective

4.2 By the year 2010, develop facilities and associated amenities to 

promote public education of the ecosystem and refuge program.

Strategies

4.2.1 Enhance interpretive facilities at a proposed U.S. 

41 multi-agency Southwest Florida Environmental 

Information Center. Seek cooperative grants to upgrade 

exhibits and maintain the center. (Special Project 17)

4.2.2 Establish a visitor contact station and a small office and 

dock facility in Goodland to educate visitors on refuge 

management and resources, promote appropriate visitor 

use, and facilitate refuge operations. Enlist a partner to 

acquire the building site by 2002, and establish other 

partners to construct facilities by 2004. (Special Project 17)

4.2.3 By 2009, develop the U.S. 41 Oil Pad road into a 

walking interpretive trail. Construct trailhead parking 

and a wildlife observation tower along the road. Pursue 

cost share opportunities with the Florida Department 

of Transportation to construct roadside parking.

(Special Project 19)

Goal

5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural 

and cultural resources within the Big Cypress Watershed.

Objective

5.1 By 2000, implement a Cooperative Agreement with the 

Florida Department of Environmental Protection concerning 

management of submerged lands and state islands. The 

agreement would allow cooperative designation of law 

enforcement authority, resource management responsibilities, 

research and monitoring activities, and management of public use.

5.2 Develop agreements and Memorandums of Understanding with 

other state, federal, and private entities on management of 

resources and human activities. Develop a Memorandum of 

Understanding with the Florida Department of Environmental 

Protection and The Florida Fish and Wildlife Conservation 

Commission that would address cooperative resource 

management responsibilities, research and monitoring 

activities, and management of public use.

Strategies

5.2.1 Continue to maintain the established prescribed and 

wildfire agreements with the state, including refuge 

neighbors such as Collier Seminole State Park, 

Fakahatchee Strand State Preserve, and Picayune 

Strand State Forest.

5.2.2 Establish a Memorandum of Understanding with 

Everglades National Park for emergency services to 

include, but not limited to, law enforcement, search 

and rescue, fire management, and collaborative resource 

management (e.g., general permit for fishing guides, 

turtle surveys, and raccoon control on turtle beaches).

5.2.3 Develop challenge cost share agreements to offset cost of 

refuge educational/interpretive materials and facilities.
26 Ten Thousand Islands National Wildlife Refuge

Archaeological

Resources

 Comprehensive Conservation Plan

5.2.4 By 2001, establish a plan with Rookery Bay National 

Estuarine Research Reserve to coordinate search 

activities conducted on the refuge and surrounding areas.

5.2.5 Collaborate with other agencies and universities to 

conduct water quality and hydrologic studies on the 

refuge to assess rehydration efforts and pollutant runoff 

from upper reaches of the watershed. (Special Projects 

3 and 4)

Objective

5.3 Establish a citizens’ group to promote private and 

governmental cooperation and information exchange.

Strategies

5.3.1 Encourage stakeholders involved in the comprehensive 

conservation planning process and others to become 

involved with this group.

5.3.2 Solicit community involvement and group membership 

through local media outlets.

5.3.3 Develop rules and protocols for the citizens’ group to 

ensure it does not violate regulations established under 

the Federal Advisory Committee Act of 1972.

Goal

6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

Objective

6.1 Comply with federal and state historic preservation legislation 

and regulations to protect refuge archaeological resources. The 

Regional Archaeologist will be responsible for the following 

strategies, with the exception of Strategy 6.1.9.

Strategies

6.1.1 Develop a scope of work for a comprehensive 

archaeological survey, including a cost estimate 

and ranking factors for contractor selection by 

September 2001.

6.1.2 Secure funding to conduct a comprehensive refuge-wide 

survey which evaluates the status of recorded 

archaeological sites, develops a site predictive model, and 

identifies research potential.

6.1.3 Develop and implement a site protection plan in 

consultation with the State Historic Preservation Office, 

federally recognized Native American Nations, and the 

professional archaeological community.

6.1.4 Approach the Miccosukee and Seminole Nations for 

information on and input into the management of 

significant cultural and sacred sites located within the 

refuge. 

6.1.5 Work with the State Historic Preservation Office to 

ensure confidentiality of cultural resource data within the 

refuge and the State of Florida.

6.1.6 By 2000, work with the State Historic Preservation 

Office to formally establish which refuge management 

actions require its review and comment.
Ten Thousand Islands National Wildlife Refuge 27

 Comprehensive Conservation Plan

6.1.7 Develop a GIS layer for refuge archaeological and 

historic sites. The archaeological/historic layer would 

mesh with existing layers for habitat types and 

vegetative cover, hydrology, resource locations, and 

soils being developed by the refuge staff. The cultural 

parameters would be defined by 2000. 

6.1.8 Assess the impact of camping and other related activities 

on significant cultural resources of the refuge.

6.1.9 By 2000, ensure that all refuge law enforcement officers 

take the Archaeological Resources Protection Act 

training course.

6.1.10 By 2001, negotiate an agreement with the Florida 

State Museum, or other appropriate facilities, for the 

permanent curation of archaeological collections and 

associated documentation derived from archaeological 

investigations on the refuge.

Objective

6.2 By 2008, develop a cultural resources interpretation and 

education program. 

Strategies

6.2.1 By 2002, compile a comprehensive literature review 

of past archaeological, anthropological, and historical 

investigations within and near the refuge. Produce an 

annotated bibliography to document the region’s history 

and the utility of the scientific methodology. (Regional 

Archaeologist)

6.2.2 By 2002, work with local Native American communities 

to develop an education program regarding their cultural 

heritage. (Regional Archaeologist)

6.2.3 By 2008, develop an interpretive exhibit on refuge 

cultural resources and history for use in refuge’s visitor 

center.

Objective

6.3 Promote and secure funding for additional scientific 

investigations of refuge cultural resources.

Strategies

6.3.1 Identify potential avenues of archaeological and historic 

investigations and promote interdisciplinary research 

such as the Southwest Florida Project directed by Dr. 

Marquardt of the University of Florida, Gainesville. 

(Regional Archaeologist)
28 Ten Thousand Islands National Wildlife Refuge

Yellow-crowned night heron

Photo by Larry W. Richardson

 Comprehensive Conservation Plan

Plan Implementation

The future of this refuge, like most national wildlife refuges, is dependent 

upon a public constituency that is aware of refuge resources, mandates, 

and environmental issues, and is willing to work towards resolving them. 

The expanded educational, recreational, and partnership opportunities 

outlined in this plan will help build and maintain this needed constituency. 

Promoting the refuge as a natural and recreational asset of Collier County 

will enhance the refuge’s image and help expand local support.

Partnerships

Implementation of this plan will rely on partnerships formed with 

landowners in the watershed, volunteers and interested citizens, farm 

and conservation organizations, and appropriate governmental agencies. 

Cooperating landowners within the refuge watershed will be offered 

incentives and/or compensation 

through cost-sharing agreements 

for applying conservation and 

environmental friendly farming 

practices, and for creating, 

maintaining, or enhancing habitat 

for wildlife.

Annual Work Plans

Future annual work plans will be 

written to reflect the priorities 

and intent of the plan. When 

discretionary funding and staff 

resources are available, they will be 

used to implement components of 

the plan.

Step-Down Plans

This plan provides conceptual 

guidance for future expansion, 

management, and development of 

the refuge. Additional plans will 

be needed in order to implement 

some of the strategies. These range 

from wildlife inventory and site 

development plans to a fire management plan. Refuge staff will need to look 

for innovative partnerships with local professional and business groups to 

assist in preparing and implementing some of the step-down plans.

Future step-down plans for the refuge include:

Wildlife Inventory Plan

Vegetation Inventory Plan

Biological Research Plan

Habitat Management Plan

Fire Management Plan

Pest and Invasive Exotic Plant Control Plan

Public Use Management Plan

Waterfowl Hunt Plan

Sign/Exhibit Plan

Visitor Contact Station Site Plan

Fishery Management Plan

Archaeological Plan
Ten Thousand Islands National Wildlife Refuge 29

Green Treefrog

Photo by Larry W. Richardson

 Comprehensive Conservation Plan

The following goals along with their related objectives and strategies will 

form the basis of individual management plans:

Archaeological Plan

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Goal 6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

Biological Research Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 2.0 Provide visitors with quality recreational opportunities, guided 

by the refuge’s vision and mission, and compatible with its purpose.

Goal 3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Fire Management Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Fishery Management Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Habitat Management Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.
30 Ten Thousand Islands National Wildlife Refuge

Pest and Invasive Exotic Plant Control Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Public Use Management Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 2.0 Provide visitors with quality recreational opportunities, guided 

by the refuge’s vision and mission, and compatible with its purpose.

Goal 3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

Goal 4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the importance 

of conserving them.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Goal 6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

Sign/Exhibit Plan

Goal 2.0 Provide visitors with quality recreational opportunities, guided 

by the refuge’s vision and mission, and compatible with its purpose.

Goal 4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the importance 

of conserving them.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Vegetation Inventory Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

 Comprehensive Conservation Plan
Ten Thousand Islands National Wildlife Refuge 31

Visitor Contact Station Site Plan

Goal 4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the importance 

of conserving them.

Waterfowl Hunt Plan

Goal 2.0 Provide visitors with quality recreational opportunities, guided 

by the refuge’s vision and mission, and compatible with its purpose.

Goal 5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural and 

cultural resources within the Big Cypress Watershed.

Wildlife Inventory Plan

Goal 1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south Florida 

coastal ecosystem.

Goal 3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

Funding

While the Ten Thousand Islands National Wildlife Refuge was formally 

established on December 18, 1996, it has received no organizational funding 

to date. Rather, a portion of the budget allocated to Florida Panther 

National Wildlife Refuge has been used for funding projects on the 

refuge. Limited funding has been available to conduct some sea turtle nest 

monitoring since 1991 and aerial manatee surveys since 1997.

In 1993, $75,000 of no-year money was allocated to fund a “Hurricane 

Andrew Damage Assessment” of the Ten Thousand Islands area. This study 

assessed the impacts of Hurricane Andrew to nesting sea turtle habitat 

and to evaluate flora and fauna within the Ten Thousand Islands. In 1994, 

the Rookery Bay National Estuarine Research Reserve was contracted 

to conduct the flora and fauna surveys. A final report entitled, “Resource 

Damage Assessment of the Ten Thousand Islands National Wildlife Refuge 

Following Hurricane Andrew” was completed in March 1997. In 1995, 

the Fish and Wildlife Cooperative Unit of the University of Florida in 

Gainesville was contracted to conduct a sea turtle study. In 1997, Graduate 

Student Ahjond S. Garmestani completed his masters thesis on the study 

entitled, “Sea Turtle Nesting in the Ten Thousand Islands of Florida.”

In addition, Everglades funding was used in 1996 to purchase a shallow 

draft boat and motor to conduct research and law enforcement on the new 

refuge. An additional boat was purchased in 1998.

The first staffing for the refuge occurred in 1997 when a temporary Park 

Ranger (GS-7) was employed. A permanent Wildlife Biologist (GS-11) was 

employed in 1998.

 Comprehensive Conservation Plan
32 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

The following summary provides a list of refuge projects as identified in 

the goals, objectives, and strategies for Ten Thousand Islands National 

Wildlife Refuge:

Project 1. Enhance Biological Assessment 

Baseline resource assessment will be a high priority task for this new 

refuge. A Biological Science Technician (Wildlife) is needed to assist 

with the actual collection and processing of field data. Initial equipment 

requirements include a vehicle ($20,000); a boat and motor ($20,000); and 

computer hardware ($3,000) for a subtotal of $43,000. The recurring base 

funds including salary, employee benefits, training needs, and survey flight 

time are estimated at $110,000/year. Total startup costs for this project 

total $153,000.

Project 2. Establish a Geographic Information System (GIS) 

To meet the refuge goal of assessing wildlife, habitat, and the impacts 

of management, a Computer Specialist with experience in geographic 

information systems is needed. This person will digitize wildlife use and 

habitat type on and off the refuge. This system type analysis will also 

be used to evaluate the impacts of the proposed South Golden Gate 

Estates Hydrologic Restoration Plan that will likely have a major impact 

on this refuge. This person will also assist other staff members and 

cooperating agencies with their GIS needs. This position will be shared 

with Florida Panther National Wildlife Refuge. New hardware will also 

be required including digitizing equipment, computer, printer, and plotter. 

The estimated initial startup for hardware, software, and training costs are 

$30,000 and the recurring base funds including salary, employee benefits, 

and administrative and equipment needs are estimated at $100,000/year.

Project 3. Water Contaminants Monitoring and 

Evaluation Program

Freshwater flows from sources north of the refuge are suspected to 

contain compounds from agricultural and urban influences. A water quality 

monitoring program is needed to document these potential contaminants 

and to establish a baseline water quality index for the refuge. An 

outside contractor will be employed to collect the samples and test for 

levels of heavy metals, organo-phosphates, mercury, and other suspected 

contaminants. A 2-year sampling protocol will begin by 2002, with a report 

furnished by 2004. The cost of the study is estimated at $120,000.

Project 4. Enhance Watershed Assessment Capabilities

A Hydrologist is needed to fully assess the impacts of various surface 

projects planned on and off the refuge within the watershed. One such 

project is the re-hydration of the South Golden Gate Estates, which will 

affect both Ten Thousand Islands and Florida Panther National Wildlife 

Refuges. In addition, there is a need to monitor surface and ground 

water elevations, salinity, and sea level rise on the refuge, especially as it 

relates to refuge habitats. The Hydrologist will also provide information 

to adjacent land managers, as well as county, state, and federal land 

planning efforts for south Florida. This position will be shared with Florida 

Panther National Wildlife Refuge. The recurring base funds including 

salary, employee benefits, and administrative and equipment needs are 

estimated at $100,000/year.
Ten Thousand Islands National Wildlife Refuge 33

 Comprehensive Conservation Plan

Project 5. Enhance Fishery Management Capabilities

A Fishery Biologist is needed to fully assess the impacts of various 

recreational and commercial fishing activities, and to evaluate the effects 

of the South Golden Gate Estates Hydrologic Restoration Plan on refuge 

fisheries. This person will work closely with adjacent land management 

agencies to ensure proper management of the fishery resource in the area. 

Initial equipment requirements include a vehicle ($20,000), collection and 

monitoring apparatus such as nets, seines, etc., ($15,000), and computer 

hardware ($3,000) for a subtotal of $38,000. The recurring base funds 

including salary, employee benefits, and administrative and equipment 

needs are estimated at $100,000/year. Total startup costs for this project 

total $138,000.

Project 6. Increase Law Enforcement Assistance

The refuge receives a large amount of public use, both recreational and 

commercial, while providing essential habitat for a number of endangered 

species. A permanent Park Ranger position is needed to ensure that 

secondary use activities remain compatible with refuge resources. In 

addition, since drug trafficking has been documented to occur in the area, 

this position will also help protect the safety of refuge visitors. The refuge 

already has a temporary Park Ranger on staff. This temporary position 

will be converted to a permanent position. The recurring base funds 

including salary, employee benefits, and equipment and training needs are 

estimated at $70,000 year.

Project 7. Develop a Fire Effects Study For the Coastal Marsh

The coastal marshes within the northern portions of the refuge contain 

grasses, sedges, rushes, and other wetland species that require occasional 

burns to maintain healthy communities. These marshes also contain animal 

species that require these habitats for food and cover. A fire effects study 

is needed to ascertain the timing, frequency, and required fuel and weather 

conditions for prescribed burning of these areas. The study will also focus 

on timing the fires to promote healthy plant and animal communities. 

This study will be contracted out to a university for research under the 

direction of refuge staff. The 3-year study will be initiated by the year 2002 

and will cost approximately $20,000 per year, for a total of $60,000.

Project 8. Acquire 1,640 Acres Adjacent To The Refuge Boundary

Several private land parcels exist adjacent to the refuge that, if acquired 

(under the condition of willing sellers), will facilitate the administration 

and management of the refuge and the ecosystem (Fig. 10). The proposed 

lands for acquisition are as follows:

Area 1. Section 32, Township 52 South, Range 27 East: 640 acres (lands 

and waters associated with Tripod Key);

Area 2. Southwest quarter of Section 36, Township 51 South, Range 27 

East: 194 acres (wetlands surrounded by state and federal holdings);

Area 3. Portions of Sections 29 and 30, Township 51 South, Range 27 

East: approximately 800 acres (lands that could provide additional 

recreational possibilities, but will need some restoration); and

Area 4. One-to-two acres within the town of Goodland. The Service will 

rent or purchase a site on the water. The site will serve as a visitor 

contact station, office site for staff, boat and equipment storage, 

and a ready launch area for Service activities. Alternatively, the 

Service may work toward enhancing the existing Rookery Bay 

National Estuarine Research Reserve-Goodland Bay Research 

Facility for use by both agencies.

The estimated funds needed for these acquisitions total $1.6 million.
34 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

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Ten Thousand Islands National Wildlife Refuge 35

Project 9. Remove Derelict Boats From Refuge Waters

Several derelict (abandoned, dumped) boats occur on the refuge which 

are potential navigation hazards and sources of contamination. Many of 

the vessels are located in a narrow bay between Goodland and Palm Bay, 

however, other vessels are scattered throughout the refuge. The Service 

will work cooperatively with Collier County and the State of Florida to 

remove these vessels. An estimated $25,000 is needed in cost share funds 

to safely remove these vessels.

Project 10. Enhance Refuge Habitats

A Botanist is needed to conduct plant surveys, develop a Vegetative 

Inventory Plan, and coordinate invasive exotic plant control on the refuge. 

This position will be shared with Florida Panther National Wildlife Refuge. 

At least seven invasive exotic species of plants occur on the refuge. Lather 

leaf, Australian pine, and Brazilian pepper are found along coastal areas 

and Brazilian pepper is commonly found inland (Fig. 11). These species 

typically grow in dense stands that crowd out the native species. In 

addition, Australian pine interferes with sea turtle nesting as the extensive 

root system prohibits turtles from digging nests. This project will assist 

in stopping the encroachment of these invasive plants by supporting a 

control program including a seasonal plant control crew consisting of two 

seasonal workers ($20,000), spray equipment ($5,000), and herbicide costs 

($5,000). In addition, the Service will sponsor an annual Invasive Exotic 

Plant Workshop. The workshop will provide a forum where state, federal, 

and private land managers of southwest Florida can meet and discuss 

problem plants, successful control techniques, equipment and project 

partnerships, and network on the invasive exotic plant problem. The 

estimated cost for this project is $30,000 annually for four consecutive 

years and additional recurring base funds including salary, employee 

benefits, administrative and equipment needs of $110,000. 

Project 11. Enhance Refuge Administrative and 

Public Use Programs

Additional staff are required to manage the recreational and commercial 

activities on the refuge. An Assistant Manager will be hired to develop 

a Public Use Management Plan, Waterfowl Hunt Plan, and cooperative 

agreements for management of submerged lands. One of the first tasks of 

this assistant will be to conduct a survey of commercial and recreational 

uses of the refuge, and administer special use permits for commercial 

uses and other activities that require a permit. This position will be 

stationed at the proposed Goodland Visitor Contact Station. In addition, 

a permanent Administrative Assistant is needed to handle the increased 

administrative workload associated with this and other new positions. The 

Assistant Manager’s salary, benefits, training, and annual equipment needs 

are estimated at $70,000/year and those for the Administrative Assistant 

are estimated at $30,000/year.

 Comprehensive Conservation Plan
36 Ten Thousand Islands National Wildlife Refuge

Figure 11. Exotic Plant Control Areas

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 Comprehensive Conservation Plan
Ten Thousand Islands National Wildlife Refuge 37

USFWS Photo

 Comprehensive Conservation Plan

Project 12. Assessment of Watercraft Impacts on Wildlife and 

Shallow Water Estuarine Resources in the Ten Thousand Islands

This cooperative study, in conjunction with the Rookery Bay National 

Estuarine Research Reserve, will assess the impacts of powered 

watercraft operating in shallow water environments within the Ten 

Thousand Islands region on wildlife and submerged land resources. The 

study area will include coastal areas from Rookery Bay to Everglades 

National Park including the submerged lands of the refuge. Potential 

parameters for impact assessment include wildlife/bird populations, 

seagrass, non-vegetated substrate, and user conflict. Results of this 

study will assist state and federal managers in determining future site 

management options. The cost for this project will be cooperatively 

secured through state and federal funding and is estimated at $170,000 per 

year for a total of $510,000. 

Project 13. Develop Refuge Brochures

Along with the expected increase in public use on the refuge will come 

a need to provide more information to users. This project will include 

the development of two refuge brochures for general distribution to 

the public. The first brochure will contain a map of the refuge with 

printed information on natural resources and management activities. The 

second brochure will contain a more detailed map of the back country 

areas of the refuge. The map will display navigational aids, deep water 

channels, and other aids to help visitors navigate and recreate on the 

refuge. Partnerships will be sought to assist in the production of these 

informational brochures. The estimated cost is $15,000.

Project 14. Develop a Non-motorized Boat Trail

The refuge coastal marsh south of U.S. 41 contains abundant wildlife 

resources which are largely inaccessible to the public. A non-motorized 

boat trail through this area will provide additional compatible wildlife 

observation opportunities. The trail will originate from the oil pad road 

in Section 1 of Township 52 South, Range 27 East, and will be designed 

to loop back to this starting point (Fig. 12). An extension of the trail 

may terminate at a take out point close to the Port of the Islands Hotel. 

The trail can only be used during high water periods. Post markers will 

be installed along the route to guide those unfamiliar with the area. The 

estimated cost for the project is $5,000.

Project 15. Develop Lesson Plans On Refuge Natural Resources 

For Collier County Schools

Education of the public is the key to the protection and sustainability 

of our natural resources. In cooperation with Rookery Bay National 

Estuarine Research Reserve and the Collier County Environmental 

Education Consortium, the refuge will develop at least four lesson plans 

for area schools and environmental organizations by 2003. The lesson 

plans will target the unique resources of the refuge and how responsible 

public use is important to their health. The estimated cost for the plan 

development, illustrations, and printing is $5,000.
38 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Figure 12. Non-Motorized Boat Trail

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Ten Thousand Islands National Wildlife Refuge 39

 Comprehensive Conservation Plan

Project 16. Address Additional Staffing Needs of the Refuge

The Ten Thousand Islands National Wildlife Refuge was established 

with neither funding nor staff. This project addresses staffing needs not 

included in other Special Projects. An Outdoor Recreation Planner is 

needed to coordinate activities at a multi-agency visitor center along

U.S. 41 and the Goodland Visitor Contact Station. In addition, the 

Planner will develop interpretive displays, educational outreach material 

for schools and the public, and coordinate refuge volunteer activity. 

This planner will be stationed at the Proposed Goodland Visitor Contact 

Station. A Mechanic and Maintenance Worker are needed to maintain 

boats, equipment, and facilities. An Information Specialist is needed to 

coordinate news events, press releases, and information transfer to local, 

state, and national news outlets. This position will be shared with the 

Florida Panther National Wildlife Refuge. The estimated annual cost to 

maintain these four positions including salary, benefits, equipment, and 

training is $280,000.

Project 17. Contribute to a Multi-Agency Visitor Center Along U.S. 41

In December 1997, a multi-agency environmental information center was 

established at the Port of the Islands Hotel adjacent to the refuge. In 

September 1998, the agreement with the hotel was terminated when the 

hotel closed. The Service plans to continue this effort at this hotel or at 

another site along U.S. 41. Exhibits used during the first year of operation 

were quickly designed, constructed, and installed by refuge staff. There 

is a need for exhibits that are more interactive and professional, and 

that display the central water theme agreed upon by center cooperators. 

Service cooperative funding will be needed for this project in the amount 

of $25,000. An additional $2000/year is needed in recurring base funds to 

maintain exhibits.

Project 18. Establish a Goodland Visitor Contact Station

The town of Goodland is the nearest community with access to the refuge. 

The Service will rent or purchase a small lot, on the water, with ready 

access to the refuge (Fig. 13). This project includes funds needed to 

convert a house or building into an office center to house an Assistant 

Refuge Manager, Wildlife Biologist, Park Ranger, and Outdoor Recreation 

Planner, and to serve as a visitor contact station for the refuge. A small 

portion of the center will be supplied with interpretive and educational 

exhibits on refuge resources and management. The center will need a 

storage building for boats, equipment, and maintenance supplies. The 

estimated cost for the construction of the visitor contact station is $500,000. 

Recurring annual maintenance costs are $20,000.

Project 19. Develop a Walking Interpretive Trail

Along the Oil Pad Road

The only reasonable access to the refuge’s northern marshes is along the oil 

pad road within Section 1 of Township 52 South, Range 27 East (Fig. 14). 

This road is approximately 1mile in length and terminates at an abandoned 

oil pad location. The ditches and marshes along the road are used by a 

variety of wildlife species throughout the year. This interpretive trail will 

originate at U.S. 41, where a gravel parking area and a waterless restroom 

facility will be installed. The parking area location and highway ingress/

egress will be coordinated with the Florida Department of Transportation. 

This will be a foot-access only trail. Interpretive exhibits will be placed 

in strategic areas along the road. A wildlife observation tower will be 

installed along the trail to overlook the marsh system and the variety 

of habitats. Costs for this project include $80,000 for a parking area and 

restrooms, $20,000 for exhibits, and $20,000 for an observation tower for a 

total of $120,000. Recurring annual maintenance costs are $5,000.
40 Ten Thousand Islands National Wildlife Refuge

 Comprehensive Conservation Plan

Volunteers

Volunteer assistance to the refuge has grown appreciably since 1995, 

due, in part, to substantial contributions of AmeriCorps volunteers. Most 

assistance is in resource management, primarily in completing sea turtle 

nest surveys. Volunteers will continue to play a critical role in assisting 

staff with fulfilling the future vision of the refuge.

Staff

A staff of thirteen permanent and six temporary/seasonal positions has 

been approved for the Florida Panther and Ten Thousand Islands National 

Wildlife Refuge Complex, three of which work exclusively on the Florida 

Panther National Wildlife Refuge. Eleven additional positions are needed 

to implement this plan (Fig. 16), in addition to converting one current 

temporary position to permanent status (Park Ranger). Four of the 

eleven proposed positions would be shared between Ten Thousand Islands 

and Florida Panther National Wildlife Refuges (Hydrologist, Botanist, 

Computer Specialist, and Information Specialist), and seven would work 

exclusively on the Ten Thousand Islands National Wildlife Refuge 

(Assistant Refuge Manager, Biological Science Technician, Fishery 

Biologist, Outdoor Recreation Planner, Administrative Assistant, 

Mechanic, and Maintenance Worker).

Monitoring and Evaluation

The organization of the goals, objectives, and strategies in this plan 

provide a ready means of monitoring and evaluating its success, since 

it flows from the Refuge Purpose, Mission, and Vision Statement. Each 

completed strategy will be one step closer to completion of this plan. 

Ultimately, completion of all strategies will result in completion of all 

objectives, consequently, meeting all goals.

This plan will be augmented by detailed step-down plans to address 

completion of specific strategies that support the refuge goals and 

objectives as identified in this plan. Establishing clearly defined goals, 

objectives, and strategies in each of these step-down plans will assist in 

evaluating the success of those plans and consequently this plan.
Ten Thousand Islands National Wildlife Refuge 41

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 Comprehensive Conservation Plan
42 Ten Thousand Islands National Wildlife Refuge

Figure 14. Interpretive Trail and Observation Tower along Oil Pad Road

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Ten Thousand Islands National Wildlife Refuge 43

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Figure 15. Project Cost Summary

Project One Time Cost Recurring Base First-Year Need

1. Enhance Biological Assessment 43,000 110,000 153,000

2. Establish GIS 30,000 100,000 130,000

3. Initiate Water Monitoring Program 120,000 0 120,000

4. Assess Watershed Impacts 0 100,000 100,000

5. Fishery Biologist 38,000 100,000 138,000

6. Enhance Law Enforcement 0 70,000 70,000

7. Initiate Fire Effects Study 60,000 0 60,000

8. Acquire Additional Lands 1,600,000 0 1,600,000

9. Remove Derelict Boats 25,000 0 25,000

10. Enhance Refuge Habitat 120,000 110,000 230,000

11. Enhance Administrative Program 0 100,000 100,000

12. Assess Watercraft Impacts 510,000 0 510,000

13. Produce Refuge Brochures 15,000 0 15,000

14. Develop Non-motorized Boat Trail 5,000 0 5,000

15. Develop Lesson Plans 5,000 0 5,000

16. Provide Additional Staff 0 280,000 280,000

17. Enhance Interpretive Facilities 25,000 2,000 27,000

18. Establish Goodland Office 500,000 20,000 520,000

19. Develop Interpretive Trail 125,000 5,000 125,000

Total Costs 3,216,000 997,000 4,213,000

 Comprehensive Conservation Plan
44 Ten Thousand Islands National Wildlife Refuge
Ten Thousand Islands National Wildlife Refuge 45

Finding of No

Significant Impact

The U.S. Fish and Wildlife Service proposes to publicly disclose the possible 

environmental consequences that implementation of the Ten Thousand 

Islands National Wildlife Refuge Comprehensive Conservation Plan could 

have on the quality of the physical, biological, and human environment, as 

required by the National Environmental Policy Act of 1969.

The Service has analyzed the following alternatives to the proposal in an 

Environmental Assessment.

1. Alternative A (No Action) advocates that the refuge be managed with 

minimal monitoring and management direction. Public and commercial 

uses would continue with no assessment of adverse effects. Airboat, 

swamp buggy, and other off-road vehicles would not be allowed in the 

refuge shallow water marshes south of U.S. Highway 41. The refuge

would establish a Management Agreement with the State of Florida, 

however, other partnerships and off-refuge environmental assessments 

would be limited.

2. Alternative B (Ecosystem Approach) would allow recreational and 

commercial activities to continue coupled with extensive monitoring 

programs to assess the quality of the environment. Recreational uses 

would be assessed to determine what impacts they may be having on 

refuge resources. Environmental education would be increased. Refuge 

monitoring and interest would extend beyond the refuge boundaries and 

into the watershed to further protect refuge resources. Partnerships and 

cooperative efforts would be emphasized to accomplish refuge goals and 

watershed protection.

3. Alternative C (Maximum Public Use) emphasizes fishing as well as 

many other recreational pursuits for the refuge. Airboat and personal 

watercraft use would continue with study to determine their impacts to the 

natural resources. Environmental education would be promoted, however, 

biological monitoring would only emphasize listed species as it pertains to 

recreational uses. The refuge would establish a Management Agreement 

with the State of Florida, however, other partnerships and off-refuge 

environmental assessments would be limited.

For all three alternatives, airboats, swamp buggies, and other off-road 

vehicles would not be allowed in the refuge shallow water marshes south 

of U.S. Highway 41. The Refuge Manager has determined that these 

uses have a deleterious impact on the marshes of this area. All three 

alternatives would also establish a Management Agreement with the State 

of Florida over adjacent submerged lands.

The preferred alternative selected for implementation is Alternative B 

which will implement the Comprehensive Conservation Plan for Ten 

Thousand Islands National Wildlife Refuge. This alternative was selected 

because it best meets the primary purposes for which the refuge was 

established – protecting and enhancing the refuge’s unique estuarine 

ecosystem. This alternative recognizes the importance of the refuge within 

the Big Cypress Watershed and defines refuge actions to protect and 

enhance the natural features of this ecosystem. This alternative would 

continue to provide the public with access to the refuge. Visitation 

Ten Thousand Islands

National Wildlife Refuge

Comprehensive Conservation Plan 

Collier County, Florida

 Appendix A - FONSI
46 Ten Thousand Islands National Wildlife Refuge

would be monitored for its impacts on flora and fauna of the refuge. 

Environmental education and partnership efforts would increase with this 

alternative. Development of new refuge facilities would cause minimal 

disturbance to refuge lands. It would not adversely impact threatened or 

endangered species or adversely impact wetlands, neither would it harm 

nor cause the loss or destruction of archaeological or historical resources. 

The preferred alternative would aid in the restoration of sheetwater flow 

within the South Golden Gate Estates area, the immediate headwaters 

for the refuge. This alternative would have a positive effect on visitor 

use, environmental education, conservation of natural resources, and the 

local communities. The program should prove to be a major step in the 

conservation of critical resources within the South Florida Ecosystem.

Measures to mitigate and/or minimize adverse effects have been 

incorporated into the proposal. Where site development activities will 

be proposed during the next 15 years, each activity would be given 

the appropriate NEPA consideration. At that time, any required 

mitigation activities would be designed into the specific project to reduce

any significant adverse impacts to the environment. Long-term 

monitoring would help in determining actual effects and how the Service 

should respond.

The proposal is not expected to have any significant adverse effects on 

wetlands and floodplains, pursuant to Executive Orders 11990 and 11988.

The preferred alternative has been thoroughly coordinated with all 

interested and/or affected parties. A list of parties contacted may be found 

in Appendix C.

It is my determination that the preferred alternative would not have a 

significant impact on the human environment in accordance with Section 

102 (2)(c) of the National Environmental Policy Act, and in accordance 

with the Service’s Administrative Manual (30 AM.913(2)(d), and further 

conclude that an Environmental Impact Statement is not necessary. This 

determination is based on the following factors (40 CFR 1508.27):

1. Both beneficial and adverse effects have been considered and this 

action would not have a significant effect on the human environment. 

(Environmental Assessment, pages 77-80.)

2. The actions would not have a significant effect on public health and 

safety. (Environmental Assessment, pages 77-80.)

3. The project would not significantly affect any unique characteristics 

of the geographic area such as proximity to historical or cultural 

resources, wild and scenic rivers, or ecologically critical areas. 

(Environmental Assessment, pages 77-80.)

4. The effects on the quality of the human environment are not likely to 

be highly controversial. (Environmental Assessment, pages 77-80.)

5. The actions do not involve highly uncertain, unique, or unknown 

environmental risks to the human environment. (Environmental 

Assessment, pages 77-80.)

6. The actions would not establish a precedent for future actions 

with significant effects nor would they represent a decision in 

principle about a future consideration. (Environmental Assessment, 

pages 77-80.)

 Appendix A - FONSI
Ten Thousand Islands National Wildlife Refuge 47

7. There would be no cumulatively significant impacts on the 

environment. Cumulative impacts have been analyzed with 

consideration for other similar activities on adjacent lands, in 

past action, and in foreseeable future actions. (Environmental 

Assessment, pages 77-80.)

8. The actions would not significantly affect any site listed in, or eligible 

for listing in, the National Register of Historic Places, nor would they 

cause loss or destruction of significant scientific, cultural, or historic 

resources. (Environmental Assessment, page 80)

9. The actions are not likely to adversely affect threatened or 

endangered species, or their habitats. (Environmental Assessment, 

page 78.)

10. The actions would not lead to a violation of federal, state, or local 

laws imposed for the protection of the environment. (Environmental 

Assessment, pages 92-98.)

Supporting References:

Comprehensive Conservation Plan

Environmental Assessment

______________________________ ______________________

Sam D. Hamilton Date

Regional Director

 Appendix A - FONSI
48 Ten Thousand Islands National Wildlife Refuge
Ten Thousand Islands National Wildlife Refuge 49

Environmental Assessment

Introduction

Purpose and Need for Action

The U.S. Fish and Wildlife Service proposes to implement a 

Comprehensive Conservation Plan to guide the management of the Ten 

Thousand Islands National Wildlife Refuge, Collier County, Florida, over 

the next ten to fifteen years.

The purpose of this Environmental Assessment is to analyze and evaluate 

the environmental effects of implementing a range of management 

alternatives for the refuge. 

The proposed action is to implement Alternative B: Ecosystem Approach, 

as described in the Management Direction of the Comprehensive 

Conservation Plan.

Formal consultation for this Environmental Assessment did not occur. 

However, this planning effort and the Refuge Manager’s ongoing dialogue 

with various federal and state jurisdictions, interest groups, and private 

landowners has provided important elements in the synthesis of the goals, 

objectives, and strategies found in the plan. Implementation of the plan 

will necessitate further coordination and cooperation with these entities.

Ten Thousand Islands 

National Wildlife Refuge

U. S. Department of the Interior

Fish and Wildlife Service

3860 Tollgate Blvd., Suite 300

Naples, Florida 34114

June 2000

Royal terns

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
50 Ten Thousand Islands National Wildlife Refuge

Alternatives 

The following alternatives address the major issues regarding Ten 

Thousand Islands National Wildlife Refuge. Each alternative is analyzed 

for its appropriateness in meeting the needs of the public and the purpose 

and mission of the refuge. The end result is a set of goals, objectives,

and strategies related to each issue which will assist in making 

management decisions.

Alternative A: No Action

Habitat Protection and Wildlife Management

Day-to-day activities would include some field work on threatened and 

endangered species. Routine field work would include monitoring sea 

turtle nesting activity and ecosystem impacts resulting from commercial 

activities. Baseline inventory and monitoring of other species, participation 

in the South Golden Gate Estates Hydrologic Restoration Plan, water 

quality monitoring, and control of exotic plants and animals on the refuge, 

including prescribed burning, would be limited due to staffing constraints. 

Proposed oil and gas plans would be reviewed to minimize impacts to 

habitat and wildlife. 

Commercial and Recreational Uses on the Refuge Including the 

Use of Personal Watercraft and Airboats

Although the refuge is in its infancy, this management alternative would 

advocate that the refuge be managed in the same manner as it is managed 

today, that is, with minimal staff and management direction. Current 

management guidance is undertaken by allowing many of the existing 

commercial and recreational practices to continue on the refuge without 

monitoring to assess the potential adverse affects to refuge resources. 

Subject to constraints by the State of Florida, co-manager of refuge 

submerged lands, airboat and personal watercraft use would continue on 

the refuge. Airboat, swamp buggy, personal watercraft, and other off-road 

vehicles would not be allowed in shallow water marshes on the refuge 

south of U.S. 41 (Fig. 6, Comprehensive Conservation Plan).

Partnerships and Cooperative Management of Resources

Management coordination would occur between the refuge and the 

Florida Department of Environmental Protection-Rookery Bay National 

Estuarine Research Reserve. However, it would be limited due to staffing 

constraints. The public use program would not be improved. Opportunities 

for increased environmental education and interpretation would not be 

promoted. Partnering for improved watershed management and habitat 

conservation would be limited to issues involving only threatened and 

endangered species. 

Education and Public Outreach

Opportunities for increased environmental education would not be 

promoted. Exhibits for a Southwest Florida Environmental Information 

Center would not be upgraded, facilities along the oil pad road and in 

Goodland would not be constructed, and refuge brochures and lesson plans 

would not be developed. Outreach efforts off the refuge would be pursued 

solely through the assistance of volunteers and other agencies. 

Research and Monitoring

Monitoring of threatened and endangered species would continue, but 

research opportunities would be limited to providing support for others 

interested in conducting studies on the refuge. Monitoring the population 

status of other species, monitoring the affect that the South Golden Gate 

Estates Hydrologic Restoration Plan would have on refuge resources, and 

water quality monitoring would be limited due to staffing constraints. The 

initiation of a fire effects study and a study on the impacts of airboat and 

personal watercraft use on refuge resources would most likely not occur.

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 51

Protection of Archaeological Resources

Archaeological sites within the refuge would have limited accessability to 

the public due to lack of an improved public use program. In addition, these 

sites would not be as widely protected as prescribed by law, due to lack 

of staff and training. Opportunities for further investigation of these sites 

would be dependent upon interest from outside parties.

Staffing Needs

The refuge staff currently consist of a seasonal Park Ranger and a Wildlife 

Biologist. Without additional funding and staffing, the refuge would be 

unable to implement programs to address its responsibilities for the refuge 

and the South Florida Ecosystem over the next 15 years. 

Management Goals, Objectives, and Strategies under Alternative A

Goal

1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south 

Florida coastal ecosystem.

Objective

1.1 Identify and determine the status of imperiled species and their 

use of the refuge and its habitats.

1.2 Establish baseline inventory and minitoring procedures for 

other refuge species and habitats. 

Strategy

1.2.2 By 2010, develop a comprehensive inventory of refuge 

wildlife and habitats, to include, but not limited to, 

mammals, migratory and resident birds, fish, reptiles 

and amphibians, aquatic insects, and habitat delineations 

including submerged grass bed areas.

Objective

1.3 Develop and implement management strategies to protect or 

enhance endangered species, other wildlife, and their habitats.

Strategies

1.3.1 Enforce boat speed regulations established by the State 

to protect manatees and manatee critical habitat.

1.3.3 By 2000, develop a plan, with other agencies, to restore 

natural sheetwater flows to the refuge in conjunction 

with the proposed South Golden Gate Estates Hydrologic 

Restoration Plan. By 2001, establish an initial monitoring 

protocol to evaluate the restoration effort. (Special Project 4)

1.3.10 Review oil exploration plans to ensure that adverse impacts 

to refuge natural and cultural resources are minimized.

Objective

1.4 Implement an invasive exotic species inventory, monitoring, and 

control program.

Strategies

1.4.1 By 2010, further identify and quantify the acreage of 

invasive exotic plants on the refuge coastal keys. (Special 

Project 10)

1.4.3 Identify and quantify acreage of invasive exotic plants in 

the area north of the mangrove system. (Special Project 9)

1.4.5 Assess the status of fire ants on sea turtle nesting 

beaches and their impact on turtle nest success. If 

necessary, implement control measures including the 

feasibility of using pesticides during non-nesting months.

 Appendix A - Environmental Assessment

Wildlife and Habitat 

Conservation
52 Ten Thousand Islands National Wildlife Refuge

Commercial Use 

 Appendix A - Environmental Assessment

Goal

2.0 Provide visitors with quality recreational opportunities, guided by 

the refuge’s vision and mission, and compatible with its purpose.

Objective

2.1 Manage recreational activities that affect wildlife and native 

habitats.

Strategy

2.1.8 Provide limited signs and markers at strategic locations 

within the refuge to assist visitor navigation.

Goal

3.0 Co-manage sustained-yield commercial harvesting, guiding, and other 

enterprises that are compatible with the purpose of the refuge.

Objective

3.1 In 2002, establish a special use permit process to regulate 

commercial activities including co-managed lands and waters.

Strategies

3.1.1 Gather information on current uses within the 

co-managed area and assess compatibility.

3.1.3 Establish application procedures for a refuge special use 

permit.

Goal

4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the 

importance of conserving them.

Objective

4.1 By 2008, increase local awareness of south Florida ecosystems, 

the Rookery Bay National Estuarine Research Reserve, and 

the refuge through the development and implementation of an 

outreach program.

Strategies

4.1.1 Establish partnerships with support groups and Rookery 

Bay National Estuarine Research Reserve to assist with 

outreach, events, and environmental education. Work with 

partners to participate in at least two outreach events 

each year that feature refuge resources (e.g., National 

Wildlife Refuge Week, International Migratory Bird Day, 

Earth Day, Estuary Day, Fishing Tournament, etc.).

4.1.3 By 2008, collaborate with refuge eco-tour concessionaires 

to disseminate refuge and state aquatic preserve 

resources and management information to the public. 

Encourage permitted eco-tour vendors to attend 

orientation programs hosted by Rookery Bay National 

Estuarine Research Reserve that promote responsible 

and informed commercial use of the area.

Public Use 

Environmental

Education
Ten Thousand Islands National Wildlife Refuge 53

 Appendix A - Environmental Assessment

Goal

5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural 

and cultural resources with the Big Cypress Watershed.

Objective 

5.1 By 2000, implement a Cooperative Agreement with the 

State of Florida concerning management of submerged lands 

and state islands. The agreement would allow cooperative 

designation of law enforcement authority, resource management 

responsibilities, research and monitoring activities, and 

management of public use.

5.2 Develop agreements and Memorandums of Understanding with 

other state, federal, and private entitites on management of 

resources and human activities. Develop a Memorandum of 

Understanding with the Florida Department of Environmental 

Protection, and the Fish and Wildlife Conservation Commission 

that would address cooperative resource management 

responsibilities, research and monitoring activities, and 

management of public use.

Strategies

5.2.1 Continue to maintain the established prescribed and 

wildfire agreements with the state, including refuge 

neighbors such as Collier Seminole State Park, 

Fakahatchee Strand State Preserve, and Picayune 

Strand State Forest.

5.2.2 Establish a Memorandum of Understanding with 

Everglades National Park for emergency services to 

include, but not limited to, law enforcement, search 

and rescue, fire management, and collaborative resource 

management (e.g., general permit for fishing guides, 

turtle surveys, and raccoon control on turtle beaches).

5.2.4 By 2001, establish a plan with Rookery Bay National 

Estuarine Research Reserve to coordinate search 

activities conducted on the refuge and surrounding areas.

5.2.5 Collaborate with other agencies and universities to 

conduct water quality and hydrologic studies on the 

refuge to assess rehydration efforts and pollutant runoff 

from upper reaches of the watershed.

Cooperative

Management
54 Ten Thousand Islands National Wildlife Refuge

Goal

6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

Objective

6.1 Comply with federal and state historic preservation legislation 

and regulations to protect refuge archaeological resources. The 

Regional Archaeologist will be responsible for the following 

strategies:

Strategies

6.1.3 Develop and implement a site protection plan in 

consultation with the State Historic Preservation Office, 

federally recognized Native American nations, and the 

professional archaeological community.

6.1.5 Work with the State Historic Preservation Office to 

ensure confidentiality of cultural resource data within the 

refuge and the State of Florida.

6.1.6 By 2000, work with the State Historic Preservation 

Office to formally establish which refuge management 

actions require its review and comment.

Objective

6.2 By 2008, develop a cultural resources interpretation and 

education program.

Strategy

6.2.1 By 2002, compile a comprehensive literature review 

of past archaeological, anthropological, and historical 

investigations within and near the refuge. Produce an 

annotated bibliography to document the region’s history 

and the utility of the scientific methodology.

 Appendix A - Environmental Assessment

Archeological

Resources
Ten Thousand Islands National Wildlife Refuge 55

Funding Under Alternative A

A total of $75,000 was allocated for the Biologist and seasonal Park 

Ranger positions in FY 1999. This figure would not change under the “no 

action” alternative. The Refuge Managers, along with limited support from 

fire personnel and administration, would be shared with Florida Panther 

National Wildlife Refuge.

Project Cost Summary under Alternative A

There are no projects to support Alternative A

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Alternative B: Ecosystem Approach (Alternative to be Implemented)

A description of the Ecosystem Approach may be found in the 

Comprehensive Conservation Plan, pages 9-43.

Figure 17. Organizational Structure for Management of Ten Thousand Islands National Wildlife Refuge under Alternative A.

 Appendix A - Environmental Assessment
56 Ten Thousand Islands National Wildlife Refuge

Alternative C: Maximize Public Use Programs on the Refuge

Commercial and Recreational Uses on the Refuge Including the 

Use of Personal Watercraft and Airboats

Under this alternative, commercial fishing and recreational activities 

such as sport fishing, hunting, boating, camping, and wildlife observation 

would be promoted without further investigation, except as they relate 

to impacts to threatened and endangered species. In consultation with 

the State of Florida, co-manager of refuge submerged lands, airboat 

and personal watercraft use would continue on the refuge (Fig. 5, 

Comprehensive Conservation Plan). These activities would be coupled 

with research to better determine whether they produce negative effects 

on listed species found within the refuge, and to make future decisions 

on whether to continue, expand, reduce, or discontinue their practices. 

Airboat, swamp buggy, and other off-road vehicles would not be allowed in 

shallow water marshes on the refuge south of U.S. 41 (Fig. 6).

Public use and environmental education programs would be stepped up 

considerably. Tours, self-guided school groups, and a broader general 

public use of the refuge (e.g., hunting, fishing, camping, and boating) 

would be encouraged under this management scheme, while attempting 

to minimize the impacts to threatened and endangered species and their 

habitats. Facilities such as parking lots, trails, and restrooms would 

be developed on the refuge to accommodate the increased public use. 

Locational and informational signs would be installed to assist visitors in 

accessing remote areas of the refuge. 

Habitat Protection and Wildlife Management

Day-to-day activities would include some field work on threatened 

and endangered species. Routine field work would include monitoring 

sea turtle nesting activity and ecosystem degradation resulting from 

increased public use. Baseline inventory and monitoring of other species, 

participation in the South Golden Gate Estates Hydrologic Restoration 

Plan, water quality monitoring, and control of exotic plants and animals on 

the refuge would be limited due to staffing constraints. Proposed oil and 

gas plans would be reviewed to minimize impacts to habitat and wildlife. 

Mitigation for exploration may include habitat restoration and public use 

enhancement projects.

Partnerships and Cooperative Management of Resources

Emphasis would be placed on partnerships to enhance public use 

opportunities. Management coordination would occur between the refuge 

and the Florida Department of Environmental Protection-Rookery Bay 

National Estuarine Research Reserve. However, it would be limited due to 

staffing constraints. Partnering for improved watershed management and 

habitat conservation would be limited to issues involving threatened and 

endangered species. 

Education and Public Outreach

Opportunities for increased environmental education and outreach would 

be maximized. An Outdoor Recreation Planner would work with the 

Rookery Bay National Estuarine Research Reserve, Collier County 

Environmental Education Consortium, school groups, volunteers, and local 

agencies to educate youth and adults of southwest Florida on the plight of 

threatened and endangered species and about refuge activities. Volunteers 

and public and private agencies would be actively recruited to assist 

with these efforts. An Information Specialist would ensure that the same 

message was delivered to the public by way of the media. 

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 57

 Appendix A - Environmental Assessment

Research and Monitoring

Research and monitoring on the refuge would focus on the impacts of 

public use on threatened and endangered species, including the effects of 

airboat and personal watercraft use on refuge resources. Monitoring the 

population status of other species, monitoring the effect that the South 

Golden Gate Estates Hydrologic Restoration Plan would have on 

refuge resources, and water quality monitoring would be limited due to 

staffing constraints. 

Protection of Archaeological Resources

Archaeological sites within the refuge would be accessible to the public 

as part of the Public Use Management Plan and would be protected from 

looting and vandalism. Interpretation and educational programs would 

be developed to incorporate these cultural resources. There would be 

relatively little coordination between federal and state archaeologists 

to provide additional protection or conduct additional investigations of 

these areas, since primary emphasis would be placed on public use and 

environmental education programs.

Staffing Needs

The refuge staff currently consist of a seasonal Park Ranger and a 

Wildlife Biologist. Without additional funding or staffing for the biological 

program, the refuge would be unable to implement projects to address its 

responsibilities and those of the South Florida Ecosystem over the next 

15 years. However, a Public Use Management Plan would be developed 

and implemented.

Management Goals, Objectives and Strategies Under Alternative C

Goal

1.0 Conserve, enhance, and protect the fish and wildlife resources, 

especially threatened and endangered species, and the other natural 

values supported within the refuge portion of this unique south 

Florida coastal ecosystem.

Objective

1.1 Identify and determine the status of imperiled species and their 

use of the refuge and its habitats.

1.2 Establish baseline inventory and monitoring procedures for 

other refuge species and habitats.

Strategy

1.2.2 By 2010, develop a comprehensive inventory of refuge 

wildlife and habitats to include, but not limited to, 

mammals, migratory and resident birds, fish , reptiles 

and amphibians, aquatic insects, and habitat delineations 

including submerged grass bed areas.

Objective

1.3 Develop and implement management strategies to protect or 

enhance endangered species, other wildlife, and their habitats.

Strategies

1.3.1 Enforce boat speed regulations established by the State 

to protect manatees and manatee critical habitat.

1.3.3 By 2000, develop a plan with other agencies to restore 

natural sheetwater flows to the refuge in conjunction 

with the proposed South Golden Gate Estates Hydrologic 

Restoration Plan. By 2001, establish an initial monitoring 

protocol to evaluate the restoration effort.
58 Ten Thousand Islands National Wildlife Refuge

1.3.10 Review oil exploration plans to ensure that adverse 

impacts to refuge natural and cultural resources are 

minimized.

Objective

1.4 Implement an invasive exotic species inventory, monitoring, and 

control program.

Strategies

1.4.1 By 2010, further identify and quantify the acreage of 

invasive exotic plants on the refuge coastal keys.

1.4.3 Identify and quantify acreage of invasive exotic plants in 

the area north of the mangrove system.

1.4.5 Assess the status of fire ants on sea turtle nesting 

beaches and their impact on turtle nest success. If 

necessary, implement control measures including the 

feasibility of using pesticides during non-nesting months.

Goal

2.0 Provide visitors with quality recreational opportunities, guided by 

the refuge’s vision and mission, and compatible with its purpose.

Objective

2.1 Manage recreational activities that affect wildlife and native 

habitats.

Strategies

2.1.1 Hire an Assistant Refuge Manager to assess and manage 

public use and resource management activities.

2.1.8 Provide limited signs and markers at strategic locations 

within the refuge to assist visitor navigation.

Goal

3.0 Co-manage sustained-yield commercial harvesting, guiding, and other 

enterprises that are compatible with the purpose of the refuge.

Objective

3.1 In 2002, establish a spcial use permit process to regulate 

commercial activities including co-managed lands and waters.

Strategies

3.1.2 Explore the feasibility of a common charter fishing guide 

permit with Everglades National Park. The permit 

would allow a guide who fishes both areas to be covered 

by one permit.

3.1.3 Establish application procedures for a refuge special use 

permit.

Goal

4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the 

importance of conserving them.

Objective

4.1 By 2008, increase local awareness of south Florida ecosystem, 

the Rookery Bay National Estuarine Research Reserve, and 

the refuge through the development and implementation of an 

outreach program.

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 59

Strategies

4.1.1 Establish partnerships with support groups and Rookery 

Bay National Estuarine Research Reserve to assist with 

outreach, events, and environmental education. Work with 

partners to participate in at least two outreach events each 

year that feature refuge resources (e.g., National Wildlife 

Refuge Week, International Migratory Bird Day, Earth 

Day, Estuary Day, Fishing Tournament, etc.).

4.1.2 Become an active member of the Collier Environmental 

Education Consortium. Work to increase the 

Consortium’s involvement and collaboration in refuge 

outreach efforts.

4.1.3 By 2008, collaborate with refuge eco-tour concessionaires 

to disseminate refuge and state aquatic preserve 

resources and management information to the public. 

Encourage permitted eco-tour vendors to attend 

orientation programs hosted by Rookery Bay National 

Estuarine Research Reserve that promote responsible 

and informed commercial use of the area.

4.1.5 Add two new personnel to the Ten Thousand Islands and 

Florida Panther National Wildlife Refuge Complex staff. 

A Media Specialist is needed to coordinate news events, 

press releases, and information transfer to local, state, 

and national news outlets.

Objective

4.2 By the year 2010, develop facilities and associated amenities to 

promote public education of the ecosystem and refuge program.

Strategies

4.2.1 Enhance interpretive facilities at a proposed U.S. 

41 multi-agency Southwest Florida Environmental 

Information Center. Seek cooperative grants to upgrade 

exhibits and maintain the center.

4.2.2 Establish a visitor contact station and a small office and 

dock facility in Goodland to educate visitors on refuge 

management and resources, promote appropriate visitor 

use, and facilitate refuge operations. Enlist a partner to 

acquire the building site by 2002, and establish other 

partners to construct facilities by 2004. (Special Project 17)

4.2.3 By 2009, develop the U.S. 41 Oil Pad road into a 

walking interpretive trail. Construct trailhead parking 

and a wildlife observation tower along the road. Pursue 

cost share opportunities with the Florida Department of 

Transportation to construct roadside parking.

Goal

5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural 

and cultural resources within the Big Cypress Watershed.

Objective

5.1 By 2000, implement a Cooperative Agreement with the 

State of Florida concerning management of submerged lands 

and state islands. The agreement would allow cooperative 

designation of law enforcement authority, resource management 

responsibilities, research and monitoring activities, and 

management of public use.

 Appendix A - Environmental Assessment
60 Ten Thousand Islands National Wildlife Refuge

 Appendix A - Environmental Assessment

5.2 Develop agreements and Memorandums of Understanding with 

other state, federal, and private entities on management of 

resources and human activities. Develop a Memorandum of 

Understanding with the Florida Department of Environmental 

Protection, and the Fish and Wildlife Conservation Commission 

that would address cooperative resource management 

responsibilities, research and monitoring activities, and 

management of public use.

Strategies

5.2.1 Continue to maintain the established prescribed and 

wildfire agreements with the state, including refuge 

neighbors such as Collier Seminole State Park, 

Fakahatchee Strand State Preserve, and Picayune 

Strand State Forest.

5.2.4 By 2001, establish a plan with Rookery Bay National 

Estuarine Research Reserve to coordinate research 

activities conducted on the refuge and surrounding areas.

Goal

6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

Objective

6.1 Comply with federal and state historic preservation legislation 

and regulations to protect refuge archaeological resources. The 

Regional Archaeologist will be responsible for the following 

strategies:

Strategies

6.1.3 Develop and implement a site protection plan in 

consultation with the State Historic Preservation Office, 

federally recognized Native American nations, and the 

professional archaeological community.

6.1.5 Work with the State Historic Preservation Office to 

ensure confidentiality of cultural resource data within the 

refuge and the State of Florida.

6.1.6 By 2000, work with the State Historic Preservation 

Office to formally establish which refuge management 

actions require its review and comment.

6.1.9 By 2000, ensure that all refuge law enforcement 

officers take the Archaeological Resources Protection 

Act training course.

Objective

6.2 By 2008, develop a cultural resources interpretation and 

education program.

Strategy

6.2.1 By 2002, compile a comprehensive literature review 

of past archaeological, anthropological, and historical 

investigations within and near the refuge. Produce an 

annotated bibliography to document the region’s history 

and the utility of the scientific methodology.
Ten Thousand Islands National Wildlife Refuge 61

 Appendix A - Environmental Assessment

Funding Under Alternative C

A total of $75,000 was allocated for the Biologist and seasonal Park Ranger 

positions in FY 1999. This alternative is supported by the following special 

projects:

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Figure 19. Organizational Structure for Management of Ten Thousand Islands National Wildlife Refuge under Alternative C.

Figure 18. Project Cost Summary under Alternative C

Project One Time Cost Recurring Base First-Year Need

5. Fishery Biologist 38,000 100,000 138,000

11. Enhance Administrative Program 0 100,000 100,000

12. Assess Watercraft Impacts 510,000 0 510,000

13. Produce Refuge Brochures 15,000 0 15,000

15. Develop Lesson Plans 5,000 0 5,000

16. Provide Additional Staff 0 280,000 280,000

17. Enhance Interpretive Facilities 25,000 2,000 27,000

18. Establish Goodland Office 500,000 20,000 520,000

Total Costs 1,093,000 502,000 1,595,000
62 Ten Thousand Islands National Wildlife Refuge

Figure 20. Issues and Alternatives Matrix

 Alternative A: Alternative B: Alternative C:

 Issues No Action Ecosystem Approach Maximize Public Use Programs

Allow existing recreational practices 

without monitoring their impacts on 

refuge resources.

Allow existing commercial uses 

without monitoring their impacts on 

refuge resources.

Allow airboat and personal 

watercraft use on submerged lands 

within the refuge contingent upon 

decisions made by the State of 

Florida.

Airboat, swamp buggy, and other 

off-road vehicles prohibited in 

freshwater marsh areas of refuge.

Emphasis on listed species only.

No partnering to improve watershed 

or protect cultural resources, except 

with Rookery Bay National 

Estuarine Research Reserve and to 

protect listed species.

Pursue through the assistance of 

volunteers and other agencies.

Monitor status of listed species.

Encourage others to do research.

Limited protection, education, and 

investigation of cultural resources.

Focus on listed species issues.

Increase recreational and public use 

opportunities, including sport fishing 

and duck hunting, and monitor their 

impacts on refuge resources.

Commercial uses to continue along with 

monitoring to determine their impacts 

on refuge resources.

Allow airboat and personal watercraft 

use on the refuge subject to results of 

a cooperative study with the State of 

Florida to determine impacts on refuge 

resources.

Airboat, swamp buggy, and other offroad vehicles prohibited in freshwater 

marsh areas of refuge.

Collect baseline information on refuge 

resources including vegetation, fish, and 

wildlife.

Participate in South Golden Gate 

Estates Hydrologic Restoration Plan 

and water quality monitoring.

Control exotic plants and animals on the 

refuge.

Develop partnerships to help protect 

and manage watershed and cultural 

resources and encourage use of applied 

research.

Develop agreements to manage refuge 

submerged lands.

Partner with landowners to help 

conserve and restore South Florida 

Ecosystem.

Increase off-refuge outreach.

Educate the youth and adults of 

southwest Florida.

Ensure the same message is delivered 

to the public via the media.

Recruit the assistance of other agencies 

and volunteers.

Monitor status and trends of plant and 

animal communities, South Golden Gate 

Estates Hydrologic Restoration Plan, 

and water quality.

Conduct a cooperative study with the 

Rookery Bay National Estuarine 

Research Reserve on the impacts of 

airboat and personal watercraft use on 

refuge resources.

Conduct a fire effects study.

Protect refuge archaeological resources.

Develop a cultural resources 

interpretation and education program.

Promote additional investigations of 

refuge cultural resources.

Provide enhanced biological and habitat 

monitoring program.

Develop public use and environmental 

education programs.

Increase coordination with off-refuge 

land managers.

Increase recreational and public use 

opportunities and monitor their impacts 

on threatened and endangered species. 

Encourage sport fishing and duck 

hunting.

Allow existing commercial uses and 

monitor their impacts on threatened and 

endangered species.

Allow airboat and personal watercraft 

use on the refuge subject to results of 

a cooperative study with the State of 

Florida to determine impacts on refuge 

resources.

Airboat, swamp buggy, and other offroad vehicles prohibited in freshwater 

marsh areas of refuge.

Emphasis on listed species, especially as 

it pertains to public use impacts.

Develop partnerships to protect listed 

species.

Develop partnerships to enhance public 

use opportunities.

Maximize off-refuge outreach.

Educate the youth and adults of 

southwest Florida.

Ensure the same message is delivered to 

the public via the media.

Recruit the assistance of other agencies 

and volunteers.

Monitor impacts of public use on listed 

species.

Conduct cooperative study with the 

Rookery Bay National Estuarine 

Research Reserve on the impacts of 

airboat and personal watercraft use 

on refuge resources.

Protect refuge archaeological resources 

to some extent.

Develop a cultural resources 

interpretation and education program.

Develop public use and environmental 

education programs.

 Appendix A - Environmental Assessment

Commercial and Recreational 

Uses on the Refuge

Use of Personal Watercraft 

and Airboats on the Refuge

Habitat Protection and Wildlife 

Management

Partnerships and Cooperative 

Management of Resources

Education and Public Outreach

Research and Monitoring

Protection of Archaeological 

Resources

Lack of Funding
Ten Thousand Islands National Wildlife Refuge 63

Affected Environment

The refuge provides habitat for a wide range of invertebrates, fishes, 

amphibians, reptiles, birds, and mammals. The refuge and the adjacent 

Ten Thousand Island areas provide important habitat for several notable 

threatened and endangered species, including the Atlantic loggerhead, 

green, Kemp’s ridley, and Hawksbill sea turtles, American crocodile, wood 

stork, bald eagle, piping plover, and West Indian manatee. Roughly 198 

species of fish and more than 189 species of birds use the refuge. The 

refuge also plays an important role in the restoration of the South Florida 

Ecosystem. Lands and waters of the ecosystem have been critically altered 

due to environmental and economic impacts of urbanization, agriculture, 

and other human activities. Also important are the recreational uses of 

the refuge. The public uses the mangrove ecosystem and greater area of 

the refuge in a variety of pursuits, including sportfishing, birdwatching, 

camping, boating, and enjoying the aesthetics of the area.

Climate

The subtropical/tropical climate with strong marine influence from the Gulf 

of Mexico is responsible for many of the refuge’s features. It is warm 

enough to permit year-round growth of many forms of plant life and wet 

enough to replenish areas of standing water during the rainy season. More 

than 75 percent of the rain normally falls during the 6-month wet season of 

May through October. Rainfall averages 55 inches per year, but has ranged 

from 35 to 80 inches. During the summer rainy season, shallow depressions 

fill with water and because of the poor drainage, most of the water remains 

standing until it evaporates or slowly drains. Thus, as much as 90 percent 

of the area is inundated to depths ranging from a few inches to more than 

3 feet at the height of the rainy season. During the winter drydown, water 

is concentrated in depressions formed by low spots in the bedrock or the 

deepest parts of the strands. Temperatures occasionally fall below freezing 

in winter and rise above 90°F during the summer with an average annual 

temperature of about 73°F.

The effects of global warming are likely to impact this coastal refuge. 

Indications are that sea levels are rising on the order of 1-2 mm per year. 

Global warming raises the sea level by releasing water contained in ice 

caps and glaciers, and by heating the sea water which, in turn, increases 

the water volume by reducing its density. Ultimately, a rise in sea level 

would alter the habitats of the refuge by increasing salinity in freshwater 

and brackish wetlands. This would also impact the species that depend 

upon those habitats.

Air Quality

With the exception of smoke and particulate matter from infrequent 

prescribed burns for habitat management, the air quality of the refuge is 

generally good, however, relatively unknown. Partnerships will be sought 

with U.S. Geological Survey, Environmental Protection Agency, South 

Florida Water Management District, and National Oceanic and Atmospheric 

Administration to provide some level of analysis to help determine potential 

sources of nitrogen, phosphorus, atrazine and other elements that may be 

delivered to the system through airborne resources. The refuge, situated in a 

rural area, is generally not affected by air pollution. 

 Appendix A - Environmental Assessment

Osprey

Photo by Larry W. Richardson
64 Ten Thousand Islands National Wildlife Refuge

 Appendix A - Environmental Assessment

Water Resources

The refuge lies within the southwestern portion of the Big Cypress 

Watershed that is important to both man and the environment. The 

Corkscrew Regional Ecosystem Watershed and the Okaloacoochee Slough 

form the two northern origins of the watershed. Waters from these 

wetlands flow through the refuge and south through the Fakahatchee 

and Picayune Strands into the Ten Thousand Islands area. These 

wetlands provide flood protection to the urban and agricultural areas of 

southwest Florida by filling up and holding water from the major rainfall 

events that frequently occur in 

south Florida. These wetlands also 

filter and cleanse these waters 

before they enter the aquifer and 

storage reservoirs that are tapped 

for drinking water. In addition, the 

Big Cypress Watershed provides 

habitat for a diverse system of 

plants and animals unique to 

Florida and the United States. Most 

of the remaining Florida panthers, 

Big Cypress fox squirrels, and 

Everglades minks can only be found 

in this system. Subtropical palms, 

orchids, and other plants, as well 

as large expanses of cypress and 

sawgrass prairies, describe this 

area that can be found nowhere else 

in the United States.

The refuge receives its freshwater 

inflow from the Big Cypress 

Watershed, which contains 

approximately 1,009,925 acres. Natural drainage patterns in Collier 

County, within this watershed, have been significantly altered by the 

construction of canal systems designed to lower annual peak water levels 

during the rainy season to prevent flooding. The system includes the 

Golden Gate Estates and Henderson Creek canals and Faka Union and 

borrow canals used for the construction of U.S. 41, Interstate 75, and State 

Road 92.

The refuge is characterized as an estuarine system which is defined as a 

coastal body of water with a measurable freshwater inflow. The southern 

one-third consists of mangrove islands situated in the saline waters of 

the Gulf of Mexico. The northern one-third is made up of marshes that 

predominately contain fresh water. The middle one-third is the area of 

greatest mixing of salt and fresh water. The salinity gradient depends upon 

tide, freshwater inflow, and other meteorological events.

The Ten Thousand Islands estuarine ecosystem contains bays, 

interconnected tidal embayments, lagoons, and tidal streams. The estuary 

has a mean depth of 3 meters. Salinities, affected by tidal and freshwater 

inflow, range from 18.5 o/oo to 39.4 o/oo with the lower values occurring 

during the wet season from May through October. Highest values occur 

during the dry (winter) season and can exceed those of the open Gulf

(35-36 o/oo). The estuary has a mixed semi-diurnal tide. Tidal range 

averages 0.6 meters with higher and lower extremes during periods of 

spring tides.

Bottlenose dolphin

Photo by Larry W. Richardson
Ten Thousand Islands National Wildlife Refuge 65

Geology and Soils

The Ten Thousand Islands area is a combined result of Floridian geology 

and oceanology. The Miocene Tamiami Limestone formation underlies all 

of Collier County, including the Ten Thousand Islands National Wildlife 

Refuge. Lying on this limestone is the Pleistocene Anastasia Formation, 

a combination of subaerially lithified sands and shell hash. Pamlico sands, 

deposited during sea level transgressions in the late Pleistocene, are mixed 

with decaying organic material and mangrove peats to form the mixtures 

of soils found in the refuge. The two most abundant soils, peat and 

peaty-sand, are associated with the mangrove swamps and saltmarshes, 

respectively. Both soils have poor drainage capabilities.

Quartz sand and shell hash, produced by erosion of marine and subaerial 

limestones to the north and subsequently carried southward into the 

refuge by longshore currents, have been deposited on some of the refuge’s 

coastal islands. Round, Panther, Hog and Coon Keys have beach areas as 

a result of this process.

Another unique upland feature of the refuge and the region is shell 

mounds. These are mostly kitchen middens and refuse sites used by 

the aboriginal Calusa Indians. They often form prominent topographical 

features above the low-lying contiguous tidelands. Dismal Key is such a 

formation and, at an elevation of 13 feet, is the highest point on the refuge.

Vegetative Habitats and Habitat Management

The Service and others are concerned for the refuge’s long-term 

environmental health and wildlife 

productivity. Nationwide studies 

have documented declines in 

numerous grassland- and wetlanddependent wildlife populations, 

most of which have been attributed 

to habitat loss and alteration. 

Adjoining land uses exert influences 

that alter refuge habitats. It is 

evident that the long-term 

biological health of the refuge 

is highly dependent upon the 

ecological health of habitats within 

the watershed.

The refuge is located within the 

West Indian Biogeographic Region 

and represents a nearly pristine 

mangrove estuary system. The 

refuge is part of the larger Ten 

Thousand Islands system, one of the 

largest mangrove-forested regions 

in the New World. Pine/Cabbage 

Palm/Oak, Freshwater Marsh, Saltwater Marsh, Mangrove Forest, 

Submerged Vegetated Bottom, Submerged Non-vegetated Bottom, Coastal 

Strand, Coastal Hammock, and Open Water are the nine habitats that 

occur on the refuge. The three dominant habitats are Freshwater Marsh, 

 Appendix A - Environmental Assessment

Blue-winged teal

Photo by Larry W. Richardson
66 Ten Thousand Islands National Wildlife Refuge

Saltwater Marsh, and Mangrove.

Descriptions of the habitats are as follows:

Pine/Cabbage Palm/Oak

This habitat consists of southern slash pine and scattered mixed 

hardwoods including live and laurel oaks, red maple, red bay, cabbage 

palm, and a variably dense understory of saw palmetto, wax myrtle, 

and numerous other shrubs. Mesic and hydric pine flatwoods occur in 

the refuge. Hydric pine flatwoods are dominated by slash pine with an 

understory of wetland plants. Hydric pine flatwoods are distinct from 

mesic pine flatwoods by the absence of an understory of saw palmetto 

and other species that are more xeric in nature. Hydric pine flatwoods 

have the highest plant species diversity of any habitat in south Florida. 

Scattered islands of this dryer habitat are found within the northern onethird of the refuge.

Freshwater Marsh

This is the dominant habitat type within the northern one-third of the 

refuge. The predominant plants in this type are bulrushes, cattails, assorted 

grasses and sedges, and submerged wigeon grass. The freshwater marsh 

often intergrades into the salt marsh with little noticeable transition.

This transitional marsh area is often characterized by small ponds, prairies, 

creeks, rock outcrops, and advancing white and red mangrove saplings. 

Within the northern marsh area, palms and palmettos grow on slightly 

higher elevations. Some of the marshes up to U.S. 41 are affected to some 

extent by brackish water during extreme high tides. Near U.S. 41, fresher 

conditions exist, especially during periods of heavy rain and rapid runoff 

from the Big Cypress Swamp. Vegetation in this transitional area consists 

of saltgrass, cordgrass, switchgrass, and needlegrass with black rushes, 

broomsedge, cattails, waterlily, and ferns.

Saltwater Marsh

This marsh is found between the freshwater marsh and the mangrove 

forest habitat types. Although it may not have a direct tidal connection, 

it invariably contains brackish water and is periodically inundated at the 

higher spring tides and during storm events. The predominant plants are 

cordgrasses, black needle rush, and saltgrass. Salt marshes are among the 

most productive systems for organic matter in any estuary and support 

large numbers of vertebrate and invertebrate species. These wetlands 

are also important feeding areas for many resident and migratory wading 

birds, waterfowl, raptors, and mammals.

Mangrove Forest

Mangrove forest is the dominant habitat type within the intertidal zone on 

the southern half of the refuge. Red, black, and white mangrove species 

occur within this type, as does buttonwood, a mangrove associate species, 

which is often grouped with this forest assemblage. Red mangroves 

comprise the dominant vegetation on most of the islands, particularly on 

the fringe along the bays and tidal creeks. Black and white mangroves 

comprise mixed forests on island interiors and in the tidally flushed basins 

located more landward. Buttonwood is common on beach strands of outer 

islands and on natural and man-made levee ridges about the mainland 

margins. The understory in some areas contain saltmarsh species such as 

glasswort and saltwort, while ferns form a ground cover in more interior 

areas. Conditions that limit the distribution of mangroves include climate, 

salinity, tidal fluctuation, substrate, and available nutrients. Nearly all of 

the mangrove forests on the refuge are second growth, ranging from 30 

to 100 years old. This is a result of destructive hurricanes in 1918 and 

1960, which caused extensive deforestation along the southwest Florida 

coast. In 1992, Hurricane Andrew caused scattered blowdowns and topped 

 Appendix A - Environmental Assessment

Roseate spoonbill

USFWS Photo
Ten Thousand Islands National Wildlife Refuge 67

crowns of inferior trees throughout 

the refuge.

There are a few areas within 

the mangrove zone that are high 

enough to support upland 

vegetation. Dismal Key, for 

example, is an old shell mound 

which supports subtropical 

hammock species such as gumbo 

limbo and white stopper. Some of 

the outer islands have sand dunes 

high enough to be invaded by 

railroad vine, prickly pear cactus, 

and spider lily. Australian pine is a 

common invasive exotic species on 

these islands.

The mangrove forests of the refuge 

are of significant value to the 

estuarine system. Leaves from the 

mangroves are constant sources of 

detritus for small organisms. The complex branching prop roots of the 

red mangrove support a large number of animals and epiphytic plants. 

The root structures capture and stabilize sediments and retard erosion. 

Mangroves cleanse inflowing water and aid in nutrient cycling. They 

function as the primary producer in the food chain and therefore serve 

as the base for productivity and life within this ecosystem. The mangrove 

canopy and root tangle also serve as protected habitat for nursery-stage 

fish, crustaceans, and shellfish. Red mangrove islands within the bay 

provide important habitat for nesting and roosting colonial water birds.

Submerged Vegetated Bottom

Seagrasses associated with open water areas are not extensive on the 

refuge, but occur in certain areas. The dominant species include cuban 

shoal grass, manatee grass, snook grass, and turtle grass. These grasses 

are submerged flowering plants which stabilize sediments, entrap silt, 

recycle nutrients, provide shelter, habitat, and substrate for animals and 

other plant forms, provide important nursery grounds, and are important 

direct food sources. They are important not only for their productivity 

but also for the important animal life associated with the community. 

These beds serve as food sources for the endangered manatee, important 

nursery areas for juvenile forms of shellfish, and as substrate for many 

algal species fed on by invertebrates, which are in turn eaten by fishes. 

Many commercially important fishes spend at least a portion of their lives 

in these grassbeds.

Submerged Non-vegetated Bottom

This habitat is also associated with open water areas and is comprised 

primarily of marl or soft mud (very fine sand and silt/clay), with occasional 

oyster bars and sandbars which are not stabilized by vegetation. The nonvegetated bottom is more extensive on the refuge than the vegetated 

bottom. This bottom provides habitat for various benthic invertebrates 

including polychaetes, assorted crustaceans, and mollusks. Live bottom 

reefs of oysters or other mollusks are scattered throughout the refuge. 

When exposed at low tides, these areas are commonly called “tidal 

flats”and are used extensively by shore and wading birds as feeding and 

loafing areas. 

Red-breasted merganser on the edge of 

mangrove shoreline

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
68 Ten Thousand Islands National Wildlife Refuge

Coastal Strand

These include the high energy 

coastal barrier islands that are 

exposed to moderate and high 

energy wave action, and sediment 

transport via littoral currents. 

Coastal strand communities are 

highly adapted to harsh 

environments of high temperature 

extremes, porous coastal sands, salt 

spray, and abrasive aeolian sand. 

Sea oat, sea rocket, and railroad 

vine are typical pioneer plants 

on the beaches and foredunes. 

Endangered sea turtles nest within 

these systems during the summer 

months.

Coastal Hammock

This habitat occurs within the 

scattered shell mounds of the mangrove forests and marsh habitats. 

This assemblage is dominated by stoppers, gumbo limbo, oaks, bay 

trees, cabbage palms, and sea grape. Depending upon the location, the 

understory contains a variety of lesser hardwood species and ferns. 

Some areas have been invaded by exotic plants such as Brazilian pepper, 

Australian pine, and lather leaf.

Open Water

Numerous open water bays exist on the refuge. Commonly called “deep 

water habitat,” these areas provide a safe haven for larger fishes and 

marine mammals when the tide is low. Seagrasses grow in areas where 

sufficient sunlight reaches the bay bottom. The very deepest portion of the 

subtidal zone is utilized by boaters as a means of ingress and egress. These 

areas are used extensively by fish and consequently piscivorous birds.

 Wildlife Diversity

The Ten Thousand Islands National Wildlife Refuge is known for its 

diversity and abundance of wildlife. The South Florida Ecosystem is 

located along one of the primary migratory routes for bird species that 

breed in temperate North America and winter in the tropics of the 

Caribbean and South America. A total of 189 breeding and non-breeding 

bird species have been documented on the refuge and an additional 109 

species occur in the vicinity. Forty-five species of reptiles and amphibians, 

22 species of mammals, and 198 species of fish are known to occur on the 

refuge. The following information lists some of the more common species 

of wildlife found on the refuge.

Land Birds

More than 116 species of neotropical migrants have been recorded in the 

South Florida Ecosystem. Both resident and migratory land birds utilize 

refuge habitats. The refuge is home to at least 30 resident species with 

the red-bellied woodpecker, white-eyed vireo, fish crow, Carolina wren, 

common yellowthroat, and red-winged blackbird being most common. 

The white-crowned pigeon, mangrove cuckoo, gray kingbird, and blackwhiskered vireo have limited breeding distributions in North America and 

all are found on the refuge. Migratory species comprise the majority of 

land birds that frequent the refuge. Common migrants that winter on the 

refuge include the belted kingfisher, tree swallow, blue-gray gnatcatcher, 

American robin, yellow-rumped warbler, and palm warbler.

Loggerhead sea-turtle nesting in coastal 

strand habitat

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 69

Waterfowl

Waterfowl use is mainly in the ponded areas just north of the mangrove 

forest. However, waterfowl also use the inland bay system where stands of 

widgeon grass occur after periods of increased freshwater flow. Waterfowl 

wintering in the area include blue-winged teal, northern pintail, greenwinged teal, ring-necked duck, lesser scaup, hooded merganser, and redbreasted merganser. Mottled ducks can be found on the refuge throughout 

the year.

Marsh and Water Birds

Although only one colonial water bird rookery is known to occur on the 

refuge, the shallow waters are used extensively for feeding. All species 

of Florida herons, the great, snowy, reddish, and cattle egrets, as well as 

the white ibis, roseate spoonbill, and wood stork use the area. Other fish 

eating birds use the offshore areas and range into the island bays. These 

include the brown pelican, double-crested cormorant, and various gulls 

and terns. Shorebirds, such as the black-bellied plover, sanderling, willet, 

spotted sandpiper, and ruddy turnstone, utilize beach areas and tidal flats 

for feeding and roosting, especially during spring and fall migration and 

the winter months.

Raptors

The osprey, swallow-tailed kite, bald eagle, and red-shouldered hawk are 

the most common raptors frequenting the refuge. Peregrine falcons can be 

found on the refuge during fall, winter, and spring.

Mammals

The most conspicuous mammals observed in the open water areas of the 

refuge are the West Indian manatee and bottlenose dolphin. Raccoons 

are common throughout the refuge. No Florida panthers have been 

observed on the refuge although white-tailed deer, their dominant prey, are 

occasionally found in the northern portion of the refuge. Black bear use the 

mangrove forests and northern portions of the refuge.

Fish

The estuarine waters of the Ten Thousand Islands are used by many 

species of marine animals. More than 198 species of fish occur in the area. 

Sport fish found include gray snapper, snook, sea trout, redfish, tarpon, 

and sheepshead.

Reptiles and Amphibians

Nearly all amphibians depend on aquatic habitats for reproduction and 

overwintering, and many species are specifically adapted and restricted to 

the aquatic environments. The most commonly encountered frogs are the 

Florida cricket frog, green treefrog, and Florida leopard frog. Although 

reptiles are generally less dependent on water, a clear preference to 

aquatic systems is displayed by many turtles, snakes, and alligators. The 

American alligator is the largest reptile on the refuge and American 

crocodiles may have occurred. The southern black racer, mangrove water, 

and Florida cottonmouth snakes are probably the most abundant on the 

refuge. The most commonly encountered sea turtles are the loggerhead, 

green, Kemp’s ridley and Hawksbill sea turtles. Loggerhead sea turtles 

nest on the coastal strand beaches of the outer islands of the refuge. 

Wintering broad-winged hawk

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
70 Ten Thousand Islands National Wildlife Refuge

Oyster Beds

The oyster community is an 

important substrate and link in 

the bay’s food web. The rock-like 

substrate formed by oyster colonies 

is the only hard substrate found 

in the open water areas of the 

refuge. Consequently, “oyster bars” 

provide an increased habitat 

diversity within those areas. The 

oyster’s position in the food web 

is as a secondary consumer, 

converting zooplankton, detritus, 

and dissolved organics into animal 

protein, which is then available 

to higher levels of consumers 

through predation. The oysters and 

associated animals are utilized by other animals which feed on or around 

the oyster bars. There have been reports of as many as 31 species of 

invertebrates found on oyster bars in other areas of the Gulf coast.

Threatened and Endangered Species 

The high degree of endemism among south Florida’s plants, animals, and 

biotic communities, combined with extensive land conversion and habitat 

degradation by humans, have imperiled many of the region’s species. The 

South Florida Ecosystem supports 70 federally threatened or endangered 

species. Seven of these species are known to occur on the refuge including:

Loggerhead Sea Turtle (Caretta caretta)

Green Sea Turtle (Chelonia mydas)

Kemp’s Ridley Sea Turtle (Lepidochelys kempii)

Hawksbill Sea Turtle (Eretmochelys imbricata)

Wood Stork (Mycteria americana)

Bald Eagle (Haliaeetus leucocephalus)

West Indian Manatee (Trichechus manatus)

The State of Florida has designated manatee protection zones in Collier 

County, including areas within the refuge boundary (Fig. 21).

Nine other federally threatened and endangered species are known to 

occur near the refuge including:

Leatherback Sea Turtle (Dermochelys coriacea)

Eastern Indigo Snake (Drymarchon corais couperi)

American Crocodile (Crocodylus acutus)

Snail Kite (Rostrhamus sociabilis)

Piping Plover (Charadrius melodus)

Red-cockaded Woodpecker (Picoides borealis)

Florida Scrub Jay (Aphelocoma coerulescens coerulescens)

Cape Sable Seaside Sparrow (Ammodramus maritimus mirabilis)

Florida Panther (Puma concolor coryi)

In addition, 4 federal candidate and 34 state listed species also occur on 

or near the refuge. The Fish and Wildlife Service Multi-Species Recovery 

Plan for the South Florida Ecosystem describes in detail these species, 

their habitat components, and the actions needed for recovery.

West Indian manatee

USFWS Photo by Gaylen Rathburn

Short-billed dowitcher on oyster bed

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 71

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 Appendix A - Environmental Assessment
72 Ten Thousand Islands National Wildlife Refuge

Public Use, Compatibility, and Environmental Education

The refuge headquarters, located in Naples, serves as the contact station 

for distribution of information and brochures. Environmental education 

programs are provided to various groups upon request in an “off-refuge” 

manner. Refuge staff participate in environmental education programs at 

local schools and other public events.

Present recreational use of the Ten Thousand Islands and adjacent 

mainland marshes is primarily characterized by fishing, boating, and 

nature study. Currently, public access to the refuge is limited to Highway 

41 and a few boat access ramps. Guides are generally necessary for those 

unfamiliar with the area.

Cultural Resources

Seventeen archaeological sites are recorded for the refuge. These sites 

are predominately prehistoric shell middens and date to the Glade 1-3 

Periods (ca. 500 B.C. - 1500 A.D.). The sites are often extensive shell 

works and ridges made of oyster, clam, conch, and scallop and yield a 

variety of ceramics, shell and bone tools, animal bones, and plant remains. 

Historic sites, such as fishing shacks and small farmsteads, often overlay 

the prehistoric shell middens. The fishing shacks served as temporary 

shelters for the area’s fishermen and watermen. In the late 19th-early 20th 

centuries, a number of individuals cleared large areas on these mounds for 

small farmsteads and grew vegetables as well as pineapples, citrus and 

mangoes for the Key West market.

The Calusa or a related group inhabited the area in the 17th century, and 

were present when the Spaniards explored the area. Of more current 

significance to the refuge are the Seminole and Miccosukee Indians, who 

currently live in the area and in Oklahoma. These tribes are believed to be 

remnants of Creek groups living in southern Georgia, southeast Alabama 

and northern Florida during the 18th century. The earlier indigenous 

aboriginal population declined rapidly shortly after European contact and 

left a void which Seminole and Miccosukee Bands filled. Although the 

Seminoles and Miccosukees may have utilized the refuge in the 19th and 

early 20th centuries, no sites or camps have been found or reported on the 

refuge which can be attributed to either group. Much of the coastal zone, 

including the Ten Thousand Islands, was settled by American fishermen, 

farmers, timbermen, and real estate developers. Pressures exerted by 

these individuals and the U.S. military restricted Seminole and Miccosukee 

Bands to the interior of the Florida peninsula. 

Socioeconomic Environment

Collier County is located on the southern Gulf coast of the Florida 

peninsula due west of the Miami-Ft. Lauderdale area. Modern-day 

settlement of the county evolved in isolated pockets during the 1870s while 

the region was still a part of St. Johns County. Monroe County, including 

present day Collier County, was created in a division of St. Johns County 

in 1883. In 1887, it became part of Lee County and remained such for 36 

years until May 8, 1923, when Collier County was established. The county 

contains approximately 2,025.45 square miles of land area, and is one of the 

largest counties east of the Mississippi River, being larger than the States 

of Rhode Island and Delaware. Naples, located in the western coastal 

area of Collier County, is the largest incorporated city and serves as 

the county seat. Everglades City lies south and east of Naples. With 

the exception of Naples and Immokalee, the communities are widely 

scattered in sparsely populated pockets along the coast and interior. Only 

the extensive development of Marco Island and Naples in recent years has 

altered the established pattern of growth, which has evolved in the rural 

and island settlements over the last century and a half.

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 73

However, this rural lifestyle continues to change as the region experiences 

astounding urban growth, and more communities expand and others develop 

to meet the needs of an increased residential and tourist population. Rapid 

growth and lack of environmental safeguards prior to 1970, resulted in 

the loss or significant alteration of many acres of productive wetlands and 

upland habitats from dredging, drainage, and fire. This loss preceded the 

major growth era, with unmanaged growth further effecting water quality, 

water storage capacity, and the diversity and abundance of wildlife in the 

county. While there were only 16,000 people living in the county in 1960, 

the population is expected to increase to nearly 350,000 by the year 2020 

(Enterprise Florida, Inc.), with a current annual growth rate of 68.60 percent 

(compared to a state growth rate of only 27.95 percent). Collectively, the 

entire southwest Florida region is, and will continue to be, one of the fastest 

growing regions in the United States.

The shallow estuaries of the refuge are excellent fishing grounds for sport 

and commercial fishermen. Sixteen species of commercially harvested 

species of fish and shellfish reside in the estuarine system or depend upon 

estuaries for a critical portion of their life cycles. Commercial harvested 

catches of these species have averaged more than four million pounds per 

year, mullet being the principal commercial fish. Snook, mangrove snapper, 

redfish, and spotted seatrout are sought after for sport fishing.

For business owners and employees alike, Collier County offers an 

opportunity without comparison. Clean air, subtropical climate, and diverse 

recreational opportunities make Collier County extremely desirable to 

tourists, retirees, and year-round residents. For residents and tourists, 

the relatively unspoiled southwest Florida coast offers a myriad of living 

and recreational opportunities. The extensive natural resources of the 

county have been widely advertised and marketed resulting in phenomenal 

growth, especially along the coast. Unfortunately, the very growth and 

development which makes southwest Florida such an alluring place for 

so many also threatens the natural habitat mosaic of the region. Special, 

coordinated efforts from all stakeholders involved with south Florida 

issues will be necessary to not only preserve the quality of the national 

environment in the region, but the quality of life for southwest Florida 

residents and visitors as well.

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
74 Ten Thousand Islands National Wildlife Refuge

Environmental Consequences

Consequences Common to all Alternatives

The effects will not have a significant impact on the human environment. 

The actions will not have a significant effect on public health and safety. 

Alternatives A and B will not affect the unique characteristics, geographic 

area or ecologically critical areas, however, Alternative C may have an 

adverse impact on the use of the refuge by endangered sea turtles, 

manatees, and other wildlife. Alternative C could generate substantial 

controversy on a national level, however, Alternatives A and B would 

not. The actions specified in all alternatives are not unique, uncertain, or 

unknown. The actions are based on methods found successful in similar 

habitats and geographic areas or follow accepted research protocol to 

determine the best course of action. The actions do not set a precedent 

for future actions with significant effects nor do they represent a decision 

in principle about a future consideration. The cumulative impacts have 

been analyzed and based on similar activities, past actions, and foreseeable 

future actions, Alternatives A and B would not offer cumulatively 

significant impacts to the environment. None of the alternatives will 

significantly affect any site listed in, or eligible for listing in, the National 

Register of Historic Places, or impact other cultural or historic resources. 

Actions listed in Alternatives A and B are not likely to adversely affect 

threatened or endangered species, or their habitats. Alternative C actions 

may adversely affect the endangered sea turtles and manatees. Actions of 

the alternatives will not lead to a violation of federal, state, or local laws 

imposed for the protection of the environment. Those actions requiring 

federal, state, or county review will undergo standard review processes 

and if adverse effects are noted, they will be mitigated or deleted.

The following discussion assesses the environmental impacts associated 

with the approval and implementation of the Comprehensive Conservation 

Plan for Ten Thousand Islands National Wildlife Refuge. Each alternative 

is discussed separately. The topics identified in the Affected Environment 

section, as well as some of the issues identified in the planning process 

for the Comprehensive Conservation Plan, are discussed below and 

summarized in Figure 20.1

Alternative A: No Action 

Climate

This alternative would have no effect on the climate. However, there would 

be limited opportunity to study the effect of climatic changes on the refuge 

(i.e., global warming) as there would be no direction to do so.

Air Quality

Some short-term impacts may occur as a result of limited prescribed 

burning to protect listed species. Burning may be required for habitat 

improvement or to reduce the invasion of exotic plants. Although burning 

may cause a temporary degradation of local air quality, the area is sparsely 

populated and, therefore, would have little effect on human environment. 

No long-term or adverse effects to air quality would occur.2

1 This section of the EA concerns only the implications of broad management framework changes, and not specific refuge 

management strategies set out in the CCP. Specific plan goals, objectives, and strategies listed in the CCP may be subject 

to additional NEPA compliance prior to implementation. Because of the broad perspective of this EA, the analysis did not 

lend itself to quantitative measures. The analysis attempts to narratively describe anticipated measures of change with 

regard to the issues based upon the alternative management framework discussed.

2 Public Law 101-549, 104 Stat. L399 (codified as amended as 42 U.S.C. A. Sections 7401 to 7671q). Certain large national 

parks, national wildlife refuges, and designated wilderness areas are considered “Class 1” areas under the Clean Air 

Act. (CFR, Title 40, Part 81.400. The Service’s policy is to ensure that the quality of air and water discharged from 

refuge activities and facilities is in compliance with applicable federal laws, regulations, and orders. [5 RM 11.1: Pollution 

Abatement, Section B] In addition, the policy requires refuges to implement management actions that will protect 

refuges from pollution sources outside the refuge. Other guidance includes: “The Clean Air Act: Its Relation to Fish 

and Wildlife Resources,” USFWS, OBS76/20.8. 1977; and “Procedures for Refuge Compliance with the 1977 Clean Air 

Act Amendments.”

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 75

Water Resources

Under the No Action Alternative, the quantity and quality of water would 

be negatively impacted over the long run. Currently, the refuge has no 

water management guidelines to aid in setting management objectives. 

Also, this alternative would not provide direction for the refuge to actively 

develop partnerships and cooperative agreements with other jurisdictions 

and private landowners in developing strategies to protect the water 

resources in the Big Cypress Watershed. Cape Romano-Ten Thousand 

Islands and Rookery Bay Aquatic Preserves, managed by the Florida 

Department of Environmental Protection, overlay much of the refuge’s 

submerged lands. Under this alternative, a cooperative agreement would 

be actively pursued with the State to manage these submerged lands. The 

proposed South Golden Gate Estates Hydrologic Restoration Plan would 

likely have a major impact on refuge waters. The Service would not be 

able to actively pursue and participate in the planning of this project to 

ensure that the resources of the refuge are not compromised. Additionally, 

no measures to protect the watershed from development activities would 

occur. Therefore, agricultural and residential development around the refuge 

would continue to be a threat that could seriously impact water quality.

Geology and Soils

This alternative would have no effect on the geology of the refuge. 

However, the surface and subsurface soils could be subjected to 

accelerated soil loss. Without restoration of natural water flows and 

fire regimes, elimination of invasive exotic plants, and seagrass and 

mangrove protection, the soils of the refuge could continue to be degraded. 

Monitoring and management of refuge soils to prevent further degradation 

would not occur under this alternative. 

Vegetative Habitats and Habitat Management

Under the No Action Alternative, encroachment of invasive exotic 

vegetation would continue to reduce native plant communities. Seagrass 

and mangrove forest habitats could decline due to water quality and 

quantity, and soil impacts.

Habitat management would focus on threatened and endangered species 

that are known to utilize the refuge. Marine seagrass and mangrove forest 

habitats would probably decline or remain at current levels, which is lower 

than historic levels. Prescribed burning would not be implemented as a 

management tool to enhance waterfowl habitat in wetlands. The refuge 

would continue to provide habitat for land birds and other wildlife, but 

would sustain population levels considerably below their historic levels. If 

oil and gas exploration were to occur, there may be some loss of mangrove 

and other wetland habitats to exploration activities. Oil and gas wells on 

the refuge will always present the threat of a contaminant spill.

Wildlife Diversity

Manatees and sea turtles would remain the primary focus and, presumably, 

their populations would increase due to active management practices. 

Impacts to manatees from watercraft-related mortality may increase since 

there is a positive correlation between boat numbers and water-related 

manatee mortality. Biological diversity would not be restored from the 

effect of lost historical habitat that has occurred, and continues to occur, 

on the landscape. For example, native plant communities would continue to 

be lost to encroaching invasive exotic plants, and seagrasses and mangrove 

forests would continue to be lost due to lack of understanding as to their 

function and relationship within the ecosystem.

Wood storks with Great egrets

USFWS Photo

 Appendix A - Environmental Assessment
76 Ten Thousand Islands National Wildlife Refuge

Opportunities to improve habitat, wildlife, and biological diversity on nonrefuge lands would be missed as there would be no strategies developed to 

coordinate with other jurisdictions and private landowners, except as they 

relate to threatened and endangered species that occur on the refuge.

Threatened and Endangered Species

Certain species of concern would benefit under this alternative. Most 

projects would revolve around the protection and enhancement of the 

Atlantic loggerhead turtle, Atlantic green turtle, Kemp’s ridley turtle, 

Hawksbill turtle, and West Indian manatee populations and habitats.

Because management emphasis would primarily focus on sea turtles and 

manatees, opportunities to achieve cumulative enhancement of biological 

diversity and manage threatened and endangered species would be missed. 

Populations of listed species, including the American alligator, wood stork, 

swallow-tailed kite, bald eagle, and other species that may occur on the 

refuge, would probably remain at current levels due 

to management’s focus on manatees and sea turtles. 

In addition, there would be no strategies developed 

to work cooperatively with landowners in the 

surrounding areas to affect sustainable resource 

management. Management practices on private 

lands have a significant effect on the overall health 

of the watershed. If unsound land and water use 

practices are employed, threatened and endangered 

species on the refuge could be impacted. 

Public Use, Compatibility, and 

Environmental Education

Under the No Action Alternative, the public use and 

environmental education programs would continue 

to be operated in their current state. Public use 

would be allowed and determined to be compatible 

with the purposes for which the refuge was established. The use of personal 

watercraft and airboats would be compatible on submerged lands within the 

refuge, since there would be no study conducted to determine otherwise. 

Airboats, swamp buggies, and other off-road vehicles would be incompatible 

in the shallow freshwater marshes on the refuge south of U.S. 41.

This alternative would result in limited environmental and public 

education opportunities. Educational programs would be given upon 

request, but no formal outreach would be employed. The office 

headquarters would continue to serve as the visitor contact station. 

However, no effort would be made to enhance the existing educational 

materials or displays, or to develop interpretive trails. 

Under this alternative, management opportunities to prevent sea turtle 

egg poaching and bird harassment would be lost, as well as the ability 

to enforce boating speed zones to reduce manatee strikes. If these 

actions continued to degrade the refuge’s ecosystem, public use could be 

determined to be incompatible with the purpose for which the refuge was 

established and, therefore, all public uses could be prohibited.

Cultural Resources

Under this alternative, the current program does not provide for the 

implementation of specific cultural resource protection strategies. The lack 

of a clear direction on how to handle cultural resource issues could have a 

negative impact on the cultural resource sites of the refuge.

Manatee

Photo by P.W. Sykes

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 77

Socioeconomic Environment

This alternative would not provide for increased revenues to the local 

economy because public and commercial uses would remain at current 

levels, or be eliminated if impacts to the refuge were determined to be 

incompatible with the purposes for which the refuge was established. 

Commercial and sport fishing activities would likely continue at current 

or increased levels in the short term. However, the quantity and quality 

of catches are likely to diminish over time due to lack of coordination 

to restore damaged habitats, lack of harvest data on which to base 

management decisions, and unregulated uses that are not enforced. 

Management would be unable to substantially improve local awareness of 

the refuge and its mission due to the minimal public outreach program. 

Consequently, the public would not be as well informed on the plight of 

threatened and endangered species.

Alternative B: Ecosystem Approach

Climate

This alternative would have no effect on the climate. However, there would 

be opportunities to study the effect of climatic changes on the refuge (i.e., 

global warming).

Air Quality

Some short-term impacts are likely to occur due to the implementation of 

prescribed burning that this alternative advocates. Burning is required for 

habitat improvement in marsh habitats and to reduce the invasion of exotic 

plants. Although burning may cause a temporary degradation of local air 

quality, the area is sparsely populated and, therefore, would have little 

effect on the human environment. No long-term or adverse effects on air 

quality would occur.3

Water Resources

Under the Ecosystem Approach, water quantity and quality on the refuge 

would be further protected and enhanced. Strategies would be developed 

to ensure sound use of off-refuge surface and ground water by developing 

partnerships and cooperative agreements with other jurisdictions and 

private landowners to protect the water resources in the Big Cypress 

Watershed. Cape Romano-Ten Thousand Islands and Rookery Bay 

Aquatic Preserves, managed by the Florida Department of Environmental 

Protection, overlay much of the refuge’s submerged lands. A cooperative 

agreement between the Service and the State of Florida would be actively 

pursued for the management of these submerged lands. The proposed 

South Golden Gate Estates Hydrologic Restoration Plan would likely have 

a major impact on refuge waters. The Service would actively pursue and 

participate in the planning of this project to ensure that the resources of 

the refuge are not compromised. 

Geology and Soils

This alternative would have no effect on the geology of the refuge while 

protecting and enhancing soils by restoring natural water flows and 

fire regimes, controlling invasive exotic plants, and protecting seagrass 

and mangrove habitats. Control methods used to remove invasive exotic 

vegetation could negatively impact refuge soils in the short term by 

causing erosion, but restoring these areas to native habitats should 

ultimately prevent soil loss. Since fire historically played an important 

role in maintaining native habitats, prescribed burns should restore and/or 

maintain soils in their natural condition. The only proposed development 

on the refuge is along the oil pad road. This development, along with the 

expected increase in recreational use along the road, should have minimal, 

if any, impact on refuge soils. Refuge soils would routinely be monitored for 

degradation under this alternative.

Red winged blackbird

photo by Larry W. Richardson

3

Ibid., pp. 57.

 Appendix A - Environmental Assessment
78 Ten Thousand Islands National Wildlife Refuge

Vegetative Habitats and Habitat Management

Under this alternative, habitat management would be conducted that 

results in more natural habitats which, in turn, would increase the 

overall health and biological diversity on the refuge. Subtropical palms, 

orchids, and other plants, as well as large expanses of mangrove and 

aquatic habitats, would continue to be managed and protected. Habitat 

management practices would be employed to restore various upland and 

wetland habitats by controlling invasive exotics and restoring natural 

water flow and fire regimes. These practices would not only benefit 

sea turtle nesting habitat and manatee foraging areas, but would also 

benefit fish, amphibians, reptiles, waterfowl and mammals. Protection 

and enhancement of mangrove forests and seagrass beds would provide 

increased cover and forage base for wildlife and increase nursery beds for 

marine species, which would increase commercial and sport fish resources.

Additionally, partnerships with agencies and private landowners that 

affect sound use of the watershed would be implemented. This would 

help to ensure balanced water flows and improved water quality for both 

freshwater and saltwater habitats. Oil and gas plans would receive careful 

review. If mineral rights are acquired, the threat of habitat loss and 

contamination would be eliminated.

Wildlife Diversity

The ecosystem approach is designed to restore fish and wildlife 

populations, resulting in overall increased diversity. This approach would 

provide an opportunity for maximizing land and habitat protection for the 

benefit of native wildlife populations. Management practices would restore 

historical habitat characteristics in order to improve wildlife diversity. 

Strategies would be developed in conjunction with adjacent landowners 

to preserve and enhance the natural habitats of both land and water 

to support diverse, flourishing communities of plant and animal species. 

Water and vegetation enhancement measures, including invasive exotic 

plant control, restoration of seagrass beds, water flow, fire regimes, and 

protection of mangrove forests, would enhance species richness as well. 

Likewise, the diversity and abundance of commercial and sport fish species 

should increase as would populations of colonial nesting birds.

Threatened and Endangered Species

All federal and state listed species would benefit under this alternative. 

There are currently 23 federally threatened, endangered, and candidate 

species, and an additional 33 state listed species found on or near the refuge. 

Management practices would focus on the recovery and enhancement of 

these species, with major emphasis on those commonly found on the refuge 

such as the Atlantic loggerhead turtle, Atlantic green turtle, Kemp’s ridley 

turtle, Hawksbill turtle, wood stork, bald eagle, and West Indian manatee.

Management strategies to aid in the recovery of these species would 

include cooperating with other agencies and landowners, managing 

existing habitats and populations, determining biological requirements of 

listed species, protecting historic habitat, and developing information and 

education programs. Specific practices may include removing exotic plants 

and animals from sea turtle nesting beaches, improving foraging habitat 

for the wood stork and manatee, constructing nest platforms for the bald 

eagle, investigating prescribed burning alternatives to improve habitat for 

the Florida grasshopper and Cape Sable seaside sparrow, and coordinating 

interagency crocodile and manatee surveys.

The public will directly benefit from the proactive nature of the ecosystem 

approach. Under this alternative, management practices would be initiated 

before a species reaches critically low population levels since population 

Bald eagle

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 79

and habitat monitoring will be conducted for a wide variety of species on 

the refuge. This approach is less disruptive to those who depend on refuge 

resources for commercial and recreational use.

Public Use, Compatibility, and Environmental Education

Under this alternative, future waterfowl hunting, camping, boating, 

wildlife observation, and commercial and sport fishing would be allowed. 

These activities are compatible with the purposes of the refuge, and with 

appropriate controls in place, the above activities are not anticipated to 

have serious impacts on refuge resources. A permit system would be 

implemented to allow the refuge to monitor changes in visitation and 

commercial activity so that preventive action could be taken if these 

uses cause negative impacts. In addition, an increased law enforcement 

presence would minimize illegal activity, thus protecting legitimate uses. 

Since the refuge was established, in part, to provide habitat for threatened 

and endangered species, expansion of these activities would depend on the 

population status of, and impacts to, these species.

The construction of an office in Goodland containing interpretive displays, 

enhancement of multi-agency visitor center displays, and development 

of short interpretive trails, placed near parking and boat ramp areas, 

would not adversely affect refuge habitats or species associated with them. 

Further, it would greatly promote awareness of the plight of listed species, 

as well as educate visitors about refuge programs. 

In addition, opportunities for environmental education would be 

promoted off refuge. Outreach to children and other segments of the 

population would be developed by designing environmental programs 

tailored to fit the needs of local schools from elementary to high school 

levels and by giving presentations at local community events and to 

various interest groups.

King rail

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
80 Ten Thousand Islands National Wildlife Refuge

Continuation of public access to the refuge is an integral part of the 

overall management plan. However, review of the management needs and 

potential problems indicates motorized boat traffic is the source of many 

adverse impacts to the natural system. These impacts are not currently 

a threat to the overall health of the refuge, but the cumulative impact of 

increased motorized boat traffic is a basis of concern. 

Presently, two types of access modes (airboats and personal watercraft) 

occur infrequently on the refuge. However, these uses are expected to 

grow with Collier County’s predicted increase in population. Both of these 

access modes are characteristically loud, fast, and capable of cruising in 

extremely shallow water. In consultation with the State of Florida, airboat 

and personal watercraft use would be allowed in submerged lands of the 

refuge subject to completion of a study to determine their compatibility. 

Due to the adverse effects on wildlife, vegetation, and the aesthetics of the 

refuge experience, off road vehicles including airboats, swamp buggies, and 

personal watercraft would not be allowed in the northern marshes of 

the refuge.

Cultural Resources

Implementation of the Ecosystem Approach would result in compliance 

with all Service and other applicable federal and state laws to provide the 

fullest protection possible to the cultural resources on the refuge. It would 

ensure that all appropriate measures are taken to protect the resources. 

Visitor use and associated effects would be monitored through appropriate 

public use and law enforcement efforts. New cultural resource sites and 

objects found on the refuge would be reported immediately to the State 

Historic Preservation Office to ensure investigation in a timely manner.

Socioeconomic Environment 

The adoption of the Ecosystem Approach would be a benefit to the local 

economy. This alternative provides flexibility in determining compatibility 

of commercial and recreational uses of the area while ensuring protection 

of refuge resources in perpetuity. These features should result in more 

stable commercial resources and increased recreational opportunities 

thereby benefitting local merchants and commerce in general. 

These proposed changes, in combination with the permit system, encourage 

increases in tourism in a structured and strategic manner. The permit 

system would allow the refuge to effectively monitor increases and make 

management adjustments based on visitation levels. The refuge program, in 

combination with the public use program at Big Cypress National Preserve, 

Collier Seminole State Park, and Everglades National Park, would provide 

additional support to the economics of the local community.

Should it occur, the banning of personal watercraft and airboats on the 

co-managed submerged lands of the refuge is not expected to have a 

negative effect on the socioeconomic environment of the area. 

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 81

Alternative C: Maximize Public Use on the Refuge 

Climate

This alternative would have no effect on the climate. However, there would 

be limited opportunity to study the effect of climatic changes 

on the refuge (i.e., global warming) as the emphasis would be placed on 

public use impacts.

Air Quality

Some short-term impacts may occur as a result of limited prescribed 

burning to protect listed species. Burning may be required for habitat 

improvement or to reduce the invasion of exotic plants. Although burning 

may cause a temporary degradation of local air quality, the area is sparsely 

populated and, therefore, would have little effect on human environment. 

No long-term or adverse effects on air quality would occur.4

Water Resources

Under this alternative, the quantity and quality of water would be 

negatively impacted over the long run. Water management guidelines

for the refuge would not be pursued to aid in setting management 

objectives. This alternative also would not provide direction for the refuge 

to actively develop partnerships and cooperative agreements with other 

jurisdictions and private landowners in developing strategies to protect 

the water resources in the Big Cypress Watershed. Cape Romano-Ten 

Thousand Islands and Rookery Bay Aquatic Preserves, managed by the 

Florida Department of Environmental Protection, overlay much of the 

refuge’s submerged lands. Under this alternative, the Service would not 

actively pursue a cooperative agreement with the State to manage these 

submerged lands, except as they relate to public use and protection of 

listed species opportunities. The proposed South Golden Gate Estates 

Hydrologic Restoration Plan would likely have a major impact on refuge 

waters. The Service would not be able to actively pursue and participate in 

the planning of this project to ensure that the resources of the refuge are 

not compromised. Additionally, no measures to protect the watershed from 

development activities would occur. Therefore, agricultural and residential 

development around the refuge would continue to be a threat that could 

seriously impact water quality.

Geology and Soils

This alternative would have no effect on the geology of the refuge. However, 

the surface and subsurface soils could be subjected to accelerated soil loss. 

Without restoration of natural water flows and fire regimes, elimination of 

invasive exotic plants, and seagrass and mangrove protection, the soils of 

the refuge would continue to be degraded. Monitoring and management 

of refuge soils to prevent further degradation would not occur under this 

alternative, except as they relate to public use activities.

This alternative calls for developing facilities to accommodate increased 

public use on the refuge. The construction of facilities such as the Goodland 

visitor center, oil pad road interpretive trail, parking area, and restrooms 

would have limited impacts on the soils of the refuge.

4

Ibid., pp. 57.

Little blue heron

Photo by Larry W. Richardson

 Appendix A - Environmental Assessment
82 Ten Thousand Islands National Wildlife Refuge

Vegetative Habitats and Habitat Management

Under this alternative, encroachment of invasive exotic vegetation 

would continue to reduce native plant communities. Seagrass and 

mangrove forest habitats could decline due to water quality and quantity, 

and soil impacts.

Habitat management would focus on public use impacts and threatened 

and endangered species that are known to utilize the refuge. Marine 

seagrass and mangrove forest habitats would probably decline or remain 

at current levels, which is lower than historic levels. Prescribed burning 

would not be implemented as a management tool to enhance waterfowl 

habitat in wetlands. The refuge would continue to provide habitat for 

land birds and other wildlife, but would sustain populations considerably 

below their historic levels. If oil and gas exploration were to occur, there 

may be some loss of mangrove and other wetland habitats to exploration 

activities. Oil and gas wells on the refuge will always present the threat 

of a contaminant spill.

Wildlife Diversity

Manatees and sea turtles would remain the primary focus and, presumably, 

manatee and sea turtle populations would increase due to active 

management practices. Impacts to manatees from watercraft-related 

mortality may increase since there is a positive correlation between boat 

numbers and water-related manatee mortality. Biological diversity would 

not be restored from the effect of lost historical habitat that has occurred, 

and continues to occur, on the landscape. For example, native plant 

communities would continue to be lost to encroaching invasive exotic plants, 

and seagrasses and mangrove forests would continue to be lost due to lack 

of understanding as to their function and relationship within the ecosystem.

Opportunities to improve habitat, wildlife, and biological diversity on

non-refuge lands would be missed as there would be no strategies 

developed to coordinate with other jurisdictions and private landowners, 

except as they relate to public use.

Threatened and Endangered Species

Certain species of concern would benefit under this alternative. Most 

projects would revolve around the protection and enhancement of the 

Atlantic loggerhead turtle, Atlantic green turtle, Kemp’s ridley turtle, 

Hawksbill turtle, and West Indian manatee populations and habitats.

Because management emphasis would primarily focus on sea turtles and 

manatees, opportunities to achieve cumulative enhancement of biological 

diversity and manage threatened and endangered species would be missed. 

Populations of listed species, including the American alligator, wood stork, 

swallow-tailed kite, bald eagle, and other species that may occur on the 

refuge, would probably remain at current levels due to management’s focus 

on manatees and sea turtles.

In addition, there would be no strategies developed to work cooperatively 

with landowners in the surrounding areas to affect sustainable resource 

management, except as they relate to public use. Management practices 

on private lands have a significant effect on the overall health of the 

watershed. If unsound land and water use practices are employed, 

threatened and endangered species on the refuge could be impacted.

 Appendix A - Environmental Assessment

USFWS Photo
Ten Thousand Islands National Wildlife Refuge 83

Public Use, Compatibility, and Environmental Education

Under this alternative, commercial and sport fishing, hunting, boating, 

camping, and wildlife observation would be promoted, and thus be 

compatible with the purposes of the refuge. Serious impacts to threatened 

and endangered species that are known to occur on the refuge would be 

monitored by implementing a permit system. This system would allow the 

refuge to monitor changes in visitation and commercial activity so that 

preventive action could be taken if these uses cause negative impacts. 

Further expansion of these activities would depend on the impacts to 

threatened and endangered species.

The environmental education program would be actively promoted and 

developed on and off the refuge. Self-guided trails would be developed 

with appropriate interpretive material displayed along the way. Tours of 

the refuge would be given to interested groups. Outreach to children 

and adults of southwest Florida would be developed by designing 

environmental programs tailored to fit the needs of local schools and 

by giving presentations at local community events and to various 

interest groups. Volunteers would be actively recruited and partnerships 

with other agencies would be formed to assist with public use and 

environmental education programs.

Increases in the public use and environmental education programs under 

this alternative could negatively impact refuge resources. An intense 

development of facilities to accommodate increased public visitation would 

be needed, including a significant increase in base funding and staff to 

effectively manage the public. Building of the facilities could result in 

disturbances and losses of some habitat types. This alternative would 

promote public uses increasing the number of visitors to remote locations 

of the refuge. The refuge would be susceptible to trampling of aquatic, 

riparian, and other habitats due to increased foot traffic and boating, as 

well as littering and disturbances to native wildlife. Expansion of the 

number and kind of uses permitted could create conflicts between user 

groups, such as commercial fishermen and wildlife observers.

Under this alternative, an increased law enforcement presence would be 

needed to enforce the additional regulations that come with increased 

public use. Law enforcement actions would be stepped up considerably to 

prevent sea turtle poaching and to enforce boating speed zones to reduce 

manatee strikes. If these actions continued to increase beyond the limits 

of refuge staff resources, public use could be limited or be determined 

incompatible with the purpose for which the refuge was established. 

Therefore, certain public uses may be prohibited.

Management and research on the refuge would focus on public use and the 

impacts to threatened and endangered species which occur on the refuge. 

In consultation with the State of Florida, airboat and personal watercraft 

use would be allowed in refuge submerged lands subject to completion of 

a study to determine their compatibility. Due to the adverse effects on 

wildlife, vegetation, and the aesthetics of the refuge experience, off road 

vehicles including airboats, swamp buggies and personal watercraft would 

not be allowed in the freshwater marshes of the refuge.

 Appendix A - Environmental Assessment
84 Ten Thousand Islands National Wildlife Refuge

Cultural Resources

This alternative would provide for greater interpretation of historic 

and archaeological resources on Ten Thousand Islands National Wildlife 

Refuge for public use and environmental education purposes. Interpretive 

displays would focus on historic uses. However, other cultural resource 

sites associated with the refuge would be opened for interpretation as 

well. This would require the development of additional trails, exhibits, and 

displays. Increased visitation to these sites could increase vandalism, pot 

hunting, and casual taking of artifacts. Law enforcement activities would 

need to be stepped up considerably in order to prevent such violations. 

Coordination between federal and state archaeologists to further assess 

the cultural importance of the sites would be sacrificed in favor of 

promoting interpretive activities.

Socioeconomic Environment

This alternative would have significant short-term beneficial impacts to 

the socioeconomic environment of the local community, but may have 

detrimental effects in the long-term. Increased visitation to the refuge 

would bring increased revenues to the local economy. Commercial uses 

would be promoted on the refuge including compatible eco-tour operations. 

Commercial and public blue and stone crab harvesting would be promoted. 

Netting for mullet, as well as hook and line for other species of fish 

that occur on a seasonal and less frequent basis, would be promoted as 

year-round activities. Therefore, charter fishing vendors would increase. 

Local construction contractors would benefit by the increase in public use 

and educational facilities. While listed species are not anticipated to be 

impacted by these activities, the increased public use may degrade other 

natural resources for which the refuge is known and current users depend.

Should it occur, the banning of personal watercraft and airboats on shallow 

submerged lands of the refuge is not expected to have a negative effect on 

the socioeconomic environment of the area. 

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 85

Environmental 

Impact Areas

Air Quality

Water Resources

Geology and Soils

Vegetative Habitats and

Habitat Management

Wildlife Diversity

Threatened and 

Endangered Species

Alternative A

No Action

Burning may cause a temporary 

degradation of local air quality. The 

area is sparsely populated, therefore, 

this would have little effect on human 

environment.

Quantity and quality of water would be 

negatively impacted over the long run.

No effect on the geology of the refuge.

Encroachment of invasive exotic 

vegetation would continue to reduce 

native plant communities.

Biological diversity would not be restored 

from the effect of lost historical habitat 

that has occurred, and continues to occur, 

on the landscape.

Management would primarily focus on 

sea turtles and manatees, resulting in a 

missed opportunity to achieve cumulative 

enhancement.

Alternative B

Ecosystem Approach

Burning as a management tool may cause 

a temporary degradation of local air 

quality. The area is sparsely populated, 

therefore, this would have little effect on 

the human environment.

Water quantity and quality on the refuge 

would be further protected and enhanced. 

Partnerships and cooperative agreements 

with other jurisdictions and private 

landowners would protect the water 

resources in the Big Cypress Watershed.

No effect on the geology of the refuge, 

while protecting and enhancing soils by 

restoring natural water flows and fire 

regimes, controlling invasive exotic 

plants, and protecting seagrass and 

mangrove habitats.

Habitat management practices would be 

employed to restore various upland and 

wetland habitats by controlling invasive 

exotics and restoring natural water flow 

and fire regimes. 

This approach would provide an 

opportunity for maximizing land and 

habitat protection for the benefit of 

native wildlife populations. Management 

practices would restore historical habitat 

characteristics in order to improve 

wildlife diversity.

Management practices would focus on the 

recovery and enhancement of threatned 

and endangered species, with major 

emphasis on those commonly found 

on the refuge such as the Atlantic 

loggerhead turtle, Atlantic green turtle, 

Kemp's ridley turtle, Hawksbill turtle 

wood stork, bald eagle, and West Indian 

manatee. Practices would be initiated 

before a species reaches critically low 

population levels since population and 

habitat monitoring would be conducted 

for a wide variety of species on the 

refuge.

Alternative C

Maximize Public Use

Burning as a management tool may 

cause a temporary degradation of local 

air quality. The area is sparsely 

populated, therefore, this would have 

little effect on human environment. 

Quantity and quality of water would be 

negatively impacted over the long run.

This alternative would have no effect 

on the geology of the refuge. However, 

the surface and subsurface soils could be 

subjected to accelerated soil loss.

Encroachment of invasive exotic 

vegetation would continue to reduce 

native plant communities.

Manatees and sea turtles would remain 

the primary focus. Biological diversity 

would not be restored from the effect of 

lost historical habitat that has occurred, 

and continues to occur, on the landscape.

Management would primarily focus on 

sea turtles and manatees resulting 

in a missed opportunity to achieve 

cumulative enhancement of biological 

diversity and threatened and 

endangered species management.

Figure 22. Summary of Environmental Consequences by Alternative

 Appendix A - Environmental Assessment
86 Ten Thousand Islands National Wildlife Refuge

Environmental 

Impact Areas

Public Use

Environmental 

Education

Cultural Resources

Socioeconomic 

Environment

Alternative A

No Action

The use of personal watercraft and 

airboats would be compatible on refuge 

submerged lands. Airboats, swamp 

buggies, and other off-road vehicles 

would be incompatible in the shallow 

freshwater marshes of the refuge south of 

U.S. 41.

Educational programs would be given 

upon request, but no formal outreach 

would be employed. 

The lack of a clear direction on how 

to handle cultural resource issues could 

have a negative impact on the cultural 

resource sites of the refuge.

Commercial and sport fishing activities 

would likely continue at current or 

increased levels in the short term. 

However, the quantity and quality of 

catches are likely to diminish over time 

due to lack of coordination to restore 

damaged habitats and lack of harvest 

data on which to base management 

decisions.

Alternative B

Ecosystem Approach

Future waterfowl hunting, camping, 

boating, wildlife observation, and 

commercial and sport fishing would be 

allowed. A permit system would be 

implemented to allow the refuge to 

monitor changes in commercial activity 

so that preventive action could be taken 

if these uses cause negative impacts. 

Airboat and personal watercraft use 

would be allowed on refuge submerged 

lands subject to completion of a study 

to determine their compatibility. Due 

to the adverse effects on wildlife, 

vegetation, and the aesthetics of the 

refuge experience, off road vehicles 

including airboats, swamp buggies, and 

personal watercraft would not be allowed 

in the freshwater marshes of the refuge.

Construction of an office in Goodland 

containing interpretive displays, 

enhancement of the Southwest Florida 

Environmental Center displays, and 

development of short interpretive trails, 

placed near parking and boat ramp 

areas, would not adversely affect refuge 

habitats or species associated with them 

and would greatly promote awareness of 

the plight of listed species, as well as 

educate visitors about refuge programs.

Compliance with all Service and other 

applicable federal and state laws will 

provide the fullest protection possible to 

the cultural resources on the refuge.

This alternative provides flexibility in 

determining compatibility of commercial 

and recreational uses of the area while 

ensuring protection of refuge resources in 

perpetuity. These features should result 

in more stable commercial resources 

and increased recreational opportunities 

thereby benefitting local merchants and 

commerce in general. Should it occur, 

the banning of personal watercraft and 

airboats on shallow submerged lands 

of the refuge is not expected to have 

a negative effect on the socioeconomic 

environment of the area.

Alternative C

Maximize Public Use

Commercial and sport fishing, hunting, 

boating, camping, and wildlife 

observation would be promoted, and 

thus be compatible with the purposes of 

the refuge.

The environmental education program 

would be actively promoted and 

developed on and off the refuge.

Increases in the public use and 

environmental education programs 

under this alternative could negatively 

impact refuge resources. Building of the 

facilities could result in disturbances 

and losses of some habitat types. 

Expansion of the number and kind of 

uses permitted could create conflicts 

between user groups, such as 

commercial fishermen and wildlife 

observers.

Provide for greater interpretation of 

historic and archaeological resources 

on the refuge for public use and 

environmental education purposes. 

Increased visitation to these sites 

could increase vandalism, pot hunting, 

and casual taking of artifacts. Law 

enforcement activities would need to 

be stepped up considerably in order to 

prevent such violations. 

This alternative would have significant 

short-term beneficial impacts to the 

socioeconomic environment of the local 

community, but may have detrimental 

effects in the long term. Increased 

visitation to the refuge would bring 

increased revenues to the local economy. 

Commercial uses would be promoted, 

including concessionaires who would be 

invited to do business on the refuge. 

Should it occur, the banning of personal 

watercraft and airboats on shallow 

submerged lands of the refuge is not 

expected to have a negative effect on 

the socioeconomic environment of the 

area. 

Figure 22. Summary of Environmental Consequences by Alternative (continued)

 Appendix A - Environmental Assessment
Ten Thousand Islands National Wildlife Refuge 87

Cumulative Impacts

Each alternative was evaluated as to its cumulative impacts. Cumulative 

impacts include impacts on the environment which result from incremental 

effects of the proposed action when added to other past, present, and 

reasonably foreseeable future actions. Cumulative impacts can result from 

individually minor, but collectively significant, actions taking place over a 

period of time.

Implementing Alternative B would reduce the potential for cumulative 

impacts because of the strategic approach to managing refuge programs, 

including wildlife-dependent public uses, and the consideration of resource 

conflicts and opportunities within a broad management framework. 

This would be a change from the issue-by-issue, problem-by-problem, 

fragmented approach inherent in the No Action Alternative. 

Where site development activities are to be proposed during the next 15 

years, each activity would be given appropriate National Environmental 

Policy Act consideration. At that time, any required mitigation activities 

would be designed into the specific project to reduce the level of impacts to 

the human environment and to protect fish and wildlife and their habitats. 

Mitigation and Residual 

Impacts of Alternative B

No mitigation would be necessary in the adoption and implementation of 

Alternative B. Where site development activities will be proposed during 

the next 15 years, each activity would be given the appropriate National 

Environmental Policy Act consideration. At that time, any required 

mitigation activities would be designed into the specific project to reduce 

significant adverse impacts to the environment. Long-term monitoring will 

help in determining actual effects and how the Service should respond.

The refuge would closely regulate proposed activities to lessen any 

potential impacts such as restricting use to seasons when known breeding 

and nesting activities are at a minimum.

The refuge would prohibit any activities in areas where endangered 

species would be negatively affected.

The refuge would monitor uses and establish a system to keep track of 

numbers of users and adjust activity levels accordingly.

 Appendix A - Environmental Assessment
88 Ten Thousand Islands National Wildlife Refuge

Compatibility Determination

Use:

Increased access for wildlife recreation, observation and environmental 

education;

Commercial harvest of fishery resources in co-managed waters over 

submerged lands under restrictions established by state regulations;

New strategies for study and management as detailed in the 

Ten Thousand Islands National Wildlife Refuge Comprehensive 

Conservation Plan.

Station Name:

Ten Thousand Islands National Wildlife Refuge

Date Established:

December 18, 1996

Establishing and Acquisition Authorities: 

Arizona-Florida Land Exchange Act of 1988

16 U.S.C. 742f(a)(4) (Fish and Wildlife Act of 1956)

16 U.S.C. 742f(b)(1) (Fish and Wildlife Act of 1956)

Purposes for which the Refuge was Established:

“...for the development, advancement, management, conservation, and 

protection of fish and wildlife resources....” 

(Fish and Wildlife Act of 1956)

“...for the benefit of the Fish and Wildlife Service in performing its 

activities and services. Such acceptance may be subject to the terms of any 

restrictive or affirmative covenant, or condition of servitude....” 

(Fish and Wildlife Act of 1956)

Refuge Goals:

1.0 Conserve, enhance, and protect the wildlife resources, especially 

threatened and endangered species, and the other natural values 

supported within the refuge portion of this unique south Florida 

coastal ecosystem.

2.0 Provide visitors with quality recreational opportunities, guided by 

the refuge’s vision and mission, and compatible with its purpose.

3.0 Co-manage sustained-yield commercial harvesting, guiding, and 

other enterprises that are compatible with the purpose of the refuge.

4.0 Promote the interpretation, education, and appreciation of coastal 

natural resources of the Ten Thousand Islands area, and the 

importance of conserving them.

5.0 Promote cooperation among agencies, private landowners, 

organizations, and other stakeholders in the management of natural 

and cultural resources within the Big Cypress Watershed.

6.0 Protect refuge cultural resources, encourage archaeological 

investigations, and promote interpretation and appreciation of the 

area’s history.

In addition, follow the Goals of the National Wildlife Refuge System

(page 91).

 Appendix A - Compatibility Determination
Ten Thousand Islands National Wildlife Refuge 89

Other Applicable Laws, Regulations and Policies:

Endangered Species Act of 1973 (16 USC 1531-1543).

Marine Mammal Protection Act of 1972 (16 USC 1361-1384; 1401-1407).

National Wildlife Refuge Administration Act of 1966 as amended (16 

USC 668dd-668ee).

Antiquities Act of 1906 (34 Stat. 225).

Archaeological Resources Protection Act (16 USC 460aa-46011)

Refuge Recreation Act of 1962 (16 USC 460k-460k-4).

Title 50; Code of Federal Regulations; Parts 25-33.

Migratory Bird Treaty Act of 1918 (16 USC 703-712).

National Environmental Policy Act of 1969, NEPA (42 USC 4321).

Refuge Revenue Sharing Act of 1935 (16 USC 715s).

Criminal Code Provisions of 1940 (18 USC 41).

Refuge Trespass Act of June 25, 1948 (18 USC 41; 62 Stat. 686).

National Historic Preservation Act of 1966 (16 USC 470).

National Wildlife Refuge Regulations for the most recent year (50 CFR 

Subchptr C; 43 CFR 3101.3-3).

Lacey Act (16 USC 3371-78; 18 USC 42).

Bald Eagle Protection Act (16 USC 668-668d).

North American Wetlands Conservation Act of 1990.

Management and General Public Use of the National Wildlife Refuge 

System, Executive Order 12996, 1996.

National Wildlife Refuge System Administration Act of 1997.

Florida State Laws

Additional refuge specific regulations as published.

Description of Use: 

A. Increase access for wildlife recreation, observation and 

environmental education. Specifically, the following measures 

would be developed:

Development of a walking interpretive and wildlife viewing trail along 

the oil pad road. New construction would include a parking area, 

restroom, and interpretive exhibits along the trail. The trail would 

contain interpretive and educational exhibits on refuge programs and 

natural resources. The trail would be day-use only.

Development of a non-motorized boat trail in the refuge marsh south of 

U.S. Highway 41. The trail would originate from the oil pad road. Post 

markers would be installed along the route as a guide. The trail would 

provide wildlife observation in an area that is difficult to access. The 

wildlife viewing area would be day-use only.

Initiate a limited, quality waterfowl hunt program in the marsh south 

of U.S. Highway 41. Teal, scaup, ring-necks, hooded mergansers, and 

mottled ducks are the common species found during the winter months. 

B. Commercially harvest fish in co-managed waters over submerged 

lands under restrictions established by State regulations

Commercial harvest of fish and shellfish would continue under guidelines 

established by State regulations. The Comprehensive Conservation Plan 

outlines monitoring schemes to ensure these resources are harvested on a 

sustained-yield basis.

 Appendix A - Compatibility Determination
90 Ten Thousand Islands National Wildlife Refuge

C. The Comprehensive Conservation Plan for Ten Thousand 

Islands National Wildlife Refuge contains six refuge goals. Each 

goal has new strategies for study and management.

These uses are further defined in the Comprehensive Conservation Plan 

and Environmental Assessment.

Anticipated Biological Impacts of the Use:

It is not anticipated that such activities will have major adverse effects for 

endangered species or other refuge flora and fauna. The impacts of these 

activities are more fully described in the Comprehensive Conservation 

Plan and Environmental Assessment. This compatibility determination is 

based on the findings and recommendations of that plan.

NEPA Compliance:

_____ Categorical Exclusion 

 XX_ Environmental Assessment

_____ Environmental Impact Statement 

 XX_ Finding of No Significant Impact 

Determination: (Check One)

 XX_ This use is compatible.

_____ This use is not compatible. 

Stipulations Necessary to Ensure Compatibility:

All of the activities discussed in the Comprehensive Conservation Plan 

for Ten Thousand Islands National Wildlife Refuge will be considered 

compatible with the purpose of the refuge if guidelines provided in the 

plan are followed as prescribed. If there is any evidence that indicates such 

activities create adverse impacts, the activity will be stopped or curtailed. 

 Appendix A - Compatibility Determination
Ten Thousand Islands National Wildlife Refuge 91

Justification:

A. Access

Wildlife observation, recreational hunting, and environmental 

education are important secondary uses because they create an 

awareness of our resources and management problems, which 

has proved to benefit wildlife resources. The status of Florida’s 

wetlands and wildlife is under constant threat and increased 

awareness is desperately needed. These uses would help educate 

the public on the importance of these resources and refuge 

management that would have long-term benefits for the South 

Florida Ecosystem.

B. Commercial Fishing

Commercial fishing is a traditional use of the co-managed waters 

over submerged lands. The State of Florida, which co-manages this 

area, believes present state regulations are maintaining the fishery 

on a sustained yield basis. Further monitoring described in the plan 

would provide confirmation.

C. Studies and Management

The studies and management outlined in the Comprehensive 

Conservation Plan have been designed to assist in better 

understanding and managing natural systems on and off the refuge.

Goals Of The National Wildlife Refuge System

1. To preserve, restore and enhance in their natural ecosystems (when 

practicable) all species of animals and plants that are endangered or 

threatened with becoming endangered.

2. To perpetuate the migratory bird resource.

3. To preserve a natural diversity and abundance of flora and fauna 

on refuge lands.

4. To provide an understanding and appreciation of fish and wildlife 

ecology and humanity’s role in environment and to provide 

refuge visitors with high quality, safe, wholesome and enjoyable 

recreational experiences oriented toward wildlife to the extent 

these activities are compatible with the purpose(s) for which the 

refuge was established. 

 Appendix A - Compatibility Determination
92 Ten Thousand Islands National Wildlife Refuge

Legal Policy and

Administrative Guidelines

This section outlines current legal, policy, and administrative guidelines 

for the management of national wildlife refuges. It begins with the more 

general considerations such as laws and Executive Orders for the Service, 

and moves toward those guidelines that apply specifically to the Ten 

Thousand Islands National Wildlife Refuge. 

Also included are sections dealing with specially designated sites such as 

historical landmarks and archaeological sites, all of which carry with them 

specific direction by law and/or policy. In addition, consideration is given to 

guidance prompted by other formal and informal natural resource planning 

and research efforts.

All the legal, policy, and administrative guidelines provide the framework 

within which management activities are proposed and developed. These 

guidances also provide the framework for the enhancement of cooperation 

between the refuge and other surrounding jurisdictions in the ecosystem.

Legal Mandates 

Administration of refuges takes into account a myriad of bills passed by 

the United States Congress and signed into law by the President of the 

United States. These statutes are considered to be the law of the land 

as are Executive Orders promulgated by the President. The following is 

a list of most of the pertinent statutes establishing legal parameters and 

policy direction to the National Wildlife Refuge System. Included are those 

statutes and mandates pertaining to the management of the Ten Thousand 

Islands National Wildlife Refuge.

For those laws that provide special guidance and have strong implications 

relevant to the Service or the refuge, legal summaries are offered below. 

Many of the summaries have been taken from The Evolution of National 

Wildlife Law by Michael J. Bean.1 For the bulk of applicable laws and other 

mandates, legal summaries are available upon request. 

List of Congressional Acts, Treaties, and other Legal Acts that 

Relate to Administration of the National Wildlife Refuge System: 

1. Lacey Act of 1900, as amended (16 U.S.C. 701).

2. Antiquities Act of 1906 (16 U.S.C. 431).

3. Migratory Bird Treaty Act of 1918 (16 U.S.C. 703-711) and 1978 

(40 Stat. 755).

4. Migratory Bird Conservation Act, (1929) as amended.

(16 U.S.C. 715-715s).

5. Migratory Bird Hunting Stamp Act of 1934, (U.S.C 718-718h).

1 Bean, Michael J., 1983. The Evolution of National Wildlife Law, Praeger Publishers, New York.

Cottonmouth/water moccasin

Photo by Larry W. Richardson

 Appendix B - Legal Policy & Admin. Guide
Ten Thousand Islands National Wildlife Refuge 93

6. Fish and Wildlife Coordination Act, (1934) as amended 

(16 U.S.C. 661-666). 

The Act is “the first major federal wildlife statute to employ the strategy 

of compelling consideration of wildlife impacts. The Act authorized 

‘investigations to determine the effects of domestic sewage, trade wastes, 

and other polluting substances on wildlife, encouraged the development 

of a program for the maintenance of an adequate supply of wildlife on 

the public domain’ and other federally owned lands, and called for state 

and federal cooperation in developing a nationwide program of wildlife 

conservation and rehabilitation.”2 

7. Historic Sites Act of 1935 (16 U.S.C. 461).

The Act 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. National Historic and Natural Landmarks are designated 

under authority of this Act. As of January 1989, 31 national wildlife 

refuges contained such sites.

8. Convention Between the United States of America and the 

Mexican States for the Protection of Migratory Birds and Game 

Mammals, (1936) (50 Sta. 1311).

9. Convention of Nature Protection and Wildlife Preservation in the 

Western Hemisphere, 1940 (56 Stat. 1354).

10. Fish and Wildlife Act of 1956, as amended (16 U.S.C. 742-742j).

11. Refuge Recreation Act, as amended, (Public Law 87-714.76 Sta. 

653; 16 U.S.C. 460k-4) September 28, 1962. 

This Act authorizes the Secretary of the Interior “to administer areas 

of the System ‘for public recreation when in his/her judgement public 

recreation can be an appropriate incidental or secondary use; provided, 

that such public recreation use shall be permitted only to the extent that 

it is practicable and not inconsistent with the primary objectives for which 

each particular area is established.’ Recreational uses ‘not directly related 

to the primary purposes and functions of the individual areas’ of the 

System may also be permitted, but only upon a determination by the 

Secretary that they ‘will not interfere with the primary purposes’ of the 

refuges and that funds are available for their development, operation, and 

maintenance.”3

2

 Ibid., pp. 181.

3

 Ibid., pp. 125-126.

 Appendix B - Legal Policy & Admin. Guide
94 Ten Thousand Islands National Wildlife Refuge

12. Refuge Revenue Sharing Act of 1964, (16 U.S.C. 715s) as amended 

(P.L. 95-469, approved 10-17-78).

The Act provides “that the net receipt from the sale or other disposition 

of animals, timber, hay, grass, or other products of the soil, minerals, 

shells, sand, or gravel, from other privileges, or from leases for public 

accommodations or facilities in connection with the operation and 

management of areas of the National Wildlife Refuge System shall be paid 

into a special fund. The monies from the fund are then to be used to make 

payments for public schools and roads to the counties in which refuges 

having such revenue producing activities are located.”4

13. Land and Water Conservation Fund Act of 1965, as amended (16 

U.S.C. 460L-4 to 460L-11), and as amended through 1987.

14. National Wildlife Refuge System Administration Act of 1966 (16 

U.S.C. 668dd-668ee). 

This Act, derived from sections 4 and 5 of Public Law 89-669, 

“consolidated ‘game ranges,’ ‘wildlife ranges,’ ‘wildlife management 

areas,’ ‘waterfowl production areas,’ and ‘wildlife refuges,’ into a single 

‘National Wildlife Refuge System.’ It (1) placed restrictions on the 

transfer, exchange, or other disposal of lands within the system; (2) 

clarified the Secretary’s authority to accept donations of money to be used 

for land acquisition; and (3) most importantly, authorized the Secretary, 

under regulations, to ‘permit the use of any area within the System 

for any purpose, including but not limited to hunting, fishing, public 

recreation and accommodations, and access whenever he determines that 

such uses are compatible with the major purposes for which such areas 

were established.’”5

15. National Historic Preservation Act of 1966 (16 U.S.C. 470).

Public Law 89-665 as repeatedly amended, provided 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. As of January 1989, 

91 historic sites on national wildlife refuges have been placed on the 

National Register.

16. National Environmental Policy Act of 1969, as amended (42 U.S.C. 

4321-4347).

17. Protection and Enhancement of Environmental Quality Executive 

Order of 1970 (Executive Order 11514, dated March 5, 1970).

18. Environmental Education Act of 1975 (20 U.S.C. 1531-1536).

19. Use of Off-Road Vehicles on the Public Lands Executive Order of 

1972, as amended (Executive Order 11644, dated February 8, 1972, 

as amended by Executive Order 11989, dated May 24, 1977).

4

 Ibid., pp. 126.

5

 Ibid., pp. 125.

 Appendix B - Legal Policy & Admin. Guide
Ten Thousand Islands National Wildlife Refuge 95

20. Endangered Species Act of 1973 (16 U.S.C. 1531-1543 87 Stat. 884) 

P.L. 93-205). The Endangered Species Act as amended by Public 

Law 97-304, The Endangered Species Act Amendments of 1982, 

dated February 1983.

According to Bean, the 1973 Act “builds its program of protection on three 

fundamental units. These include two classifications of species--those that 

are ‘endangered’ and those that are ‘threatened’ --and a third classification 

of geographic areas denominated ‘critical habitats.’”6

The Act: (1) Authorizes the determination and listing of species as 

threatened and endangered, and the ranges in which such conditions 

exist; (2) Prohibits unauthorized taking, possession, sale, and transport 

of endangered species; (3) Provides authority to acquire land for the 

conservation of listed species, using land and water conservation funds; 

(4) 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, (5) Authorizes the assessment of 

civil and criminal penalties for violating the Act or regulations.

Section 7 of the Endangered Species Act requires Federal agencies to 

ensure that any action authorized, funded, or carried out by them does 

not jeopardize the continued existence of listed species or modify their 

critical habitat.

21. Floodplain Management Executive Order of 1977 (Executive Order 

11988, dated May 24, 1977). Wetlands Preservation Executive 

Order of 1977 (Executive Order 11988, dated May 24, 1977).

These Executive Orders require both the protection and the enhancement 

of wetlands and floodplain. Both were signed in May 1977. When federally 

owned wetlands or floodplain are proposed for lease or conveyance to 

non-federal public or private parties, both executive orders require that 

the agency: “(a) reference in the conveyance those uses that are restricted 

under federal, state or local... regulations; and (b) attach other appropriate 

restrictions to the uses of such properties by the ... purchaser and any 

successor, ... or (c) withhold such properties from...” lease or disposal (E.O. 

11990, 4, E.O. 11988, 3(d). In addition, each agency is required to “avoid 

undertaking or providing assistance” for activities located in wetlands 

unless (1) ...”there is no practicable alternative...”, and (2)... “the proposed 

action includes all practicable measures to minimize harm...which may 

result from such use” (E.O. 11990, 2). The term “agency” is defined in 

both of these Executive Orders as having the same meaning as the term 

“Executive agency” which means an Executive department, a Government 

corporation, and an independent establishment.

6

 Ibid., pp. 331.

 Appendix B - Legal Policy & Admin. Guide
96 Ten Thousand Islands National Wildlife Refuge

22. The Archaeological Resource Protection Act of 1979 (P.L. 96-95, 93 

Sta. 721, dated October 1979). (16 U.S.C. 470aa - 47011).

This Act largely supplanted the resource protection provisions of 

the Antiquities Act for archaeological items. It established detailed 

requirements for issuance of permits for any excavation 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. 

Public Law 100-588, approved November 3, 1988, (102 Stat. 2983) lowered 

the threshold value of artifacts triggering the felony provision of the Act 

from $5,000 to $500, made attempting to commit an action prohibited 

by the Act a violation, and required the land managing agencies to 

establish public awareness programs regarding the value of archaeological 

resources to the Nation.

23. Fish and Wildlife Conservation Act of 1980 (P.L. 96-366, dated 

September 29, 1980). (“Nongame Act”) (16 U.S.C. 2901-2911; 94 

Stat. 1322).

Approved September 1980, this Act authorized grants for development 

and implementation of comprehensive State nongame fish and wildlife 

plans and for administration of the Act. It also required the Service to 

study potential mechanisms for funding these activities and report to 

Congress by March 1984. According to Bean, the Act “strives to encourage 

comprehensive conservation planning, encompassing both nongame and 

other wildlife....The impetus for the enactment of this legislation was 

the perception that animals not ordinarily valued for sport hunting or 

commercial purposes receive insufficient attention and funds from state 

wildlife management programs.”7

Public Law 100-653 (102 Stat. 3825), approved November 14, 1988, 

amended the Act to require the Service to monitor and assess nongame 

migratory birds, identify those likely to be candidates for endangered 

species listing, identify appropriate actions, and report to Congress one 

year from enactment. It also requires the Service to report at five year 

intervals on actions taken.

24. Administrative Procedures Act (5 U.S.C. 551-559, 701-706, 1305, 

3105, 3344, 4301, 5362, 7521; 60 Stat. 237), as amended (P.L. 79-404, 

as amended). 

25. Bald Eagle Protection Act of 1940 (16 U.S.C. 668-668d; 54 Stat.), 

as amended.

26. Canadian United States Migratory Bird Treaty (Convention 

Between the United States and Great Britain (for Canada for the 

Protection of Migratory Birds. (39 Stat. 1702; TS 628), as amended. 

 Appendix B - Legal Policy & Admin. Guide
Ten Thousand Islands National Wildlife Refuge 97

27. Clean Air Act (42 U.S.C. 1857-1857f; 69 Stat. 322), as amended.

28. Convention on Wetlands of International Importance Especially as 

Waterfowl Habitats (I.L.M. 11:963-976, September 1972).

This Convention, commonly referred to as the Ramsar Convention, was 

adopted in Ramsar, Iran, February 3, 1971, and opened for signature 

at UNESCO headquarters, July 12, 1972. On December 21, 1975, the 

Convention entered into force after the required signatures of seven 

countries were obtained. The United Senate consented to ratification of 

the Convention on October 9, 1986, and the President signed instruments 

of ratification on November 10, 1986. The Convention maintains a list of 

wetlands of international importance and works to encourage the wise 

use of all wetlands in order to preserve the ecological characteristics from 

which wetland values derive. The Convention is self implementing with the 

U.S. Fish and Wildlife Service providing U.S. secretariat responsibilities 

and lead for Convention implementation.

29. Cooperative Research and Training Units Act (16 U.S.C. 753a-753b, 

74 Stat. 733), as amended. P.L. 86-686).

30. Federal Aid in Fish Restoration Act (16 U.S.C. 777-777k, 64 Stat. 

430).

31. Federal Aid in Wildlife Restoration Act (16 U.S.C. 669-669i; 50 

Stat. 917), as amended.

32. Federal Environmental Pesticide Control Act of 1972 (7 U.S.C. 

136-136y; 86 Stat. 975), as amended.

33. Federal Land Policy Management Act of 1976 (43 U.S.C. 1701-1771, 

and other U.S.C. Sections; 90 Stat. 2743). Public Law 94-579,

October 1976.

34. Federal Property and Administrative Services Act of 1949 

(40 U.S.C. 471-535, and other U.S.C. sections; 63 Stat. 378), 

as amended.

35. Federal Water Pollution Control Act Amendments of 1972 (33 

U.S.C. 1251-1265, 1281-1292, 1311-1328, 1341-1345, 1361-1376, and 

other U.S.C. titles; 86 Stat. 816), as amended.

36. Fish and Wildlife Improvement Act of 1978 (16 U.S.C. 7421; 92 

Stat. 3110) P.L. 95-616, November 1978.

37. Flood Control Act of 1944 (16 U.S.C. 460d, 825s and various 

sections of title 33 and 43 U.S.C.; 58 Stat. 887), as amended and 

supplemented.

 Appendix B - Legal Policy & Admin. Guide
98 Ten Thousand Islands National Wildlife Refuge

38. Freedom of Information Act (5 U.S.C. 552; 88 Stat. 1561).

39. Refuge Trespass Act (18 U.S.C. 41; Stat 686).

40. Transfer of Certain Real Property for Wildlife Conservation 

Purposes Act of May 1948, (16 U.S.C. 667b-667d; 62 Stat. 240), as 

amended.

41. Water Resources Planning Act (42 U.S.C., 1962-1962a-3; 79 Stat. 

244), as amended.

42. Waterfowl Depredations Prevention Act (7 U.S.C. 442-445; 70Stat. 

492), as amended.

43. Clean Water Act of 1972, Section 404.

Under this Act, permits are required to be obtained for discharges 

of dredged and fill materials into all waters, including wetlands. 

Implementation of the 404 program involves three other federal agencies 

in addition to limited state involvement. The Environmental Protection 

Agency (EPA), the National Marine Fisheries Service, and the Service 

review permit applications and provide comments and recommendations 

on whether permits should be issued by the Corps. EPA has veto 

authority over permits involving disposal sites if impacts are considered 

unacceptable. EPA also develops criteria for discharges and state 

assumption of the 404 program. Section 404 regulations were changed 

in 1984 due to a national lawsuit, and 404 jurisdictions now apply 

to tributaries of navigable waters and isolated wetlands and waters if 

interstate commerce is involved. 

44. The Food Security Act of 1985 (Farm Bill). 

45. Management and General Public Use of the National Wildlife 

Refuge System (Executive Order 12996, April 1996).

 This Executive Order redefines the mission of the National Wildlife 

Refuge System and sets out four guiding principles for the 

management and general public use of the system.

46. National Wildlife Refuge System Improvement Act of 1997

(H.R. 1420, 105th Congress). 

This law is the first “organic” act for the National Wildlife Refuge 

System. The Act amends portions of the National Wildlife Refuge System 

Administration Act and the Refuge Recreation Act, and reiterates into law 

Executive Order 12996.

 Appendix B - Legal Policy & Admin. Guide
Ten Thousand Islands National Wildlife Refuge 99

Service-wide Policy Directions

Since the early 1900s, the Service mission and purpose has evolved, 

while holding on to a fundamental national commitment to threatened 

wildlife ranging from the endangered bison to migratory birds of all types. 

Examples of this are the earliest national wildlife refuges and preserves. 

Pelican Island National Wildlife Refuge, the first refuge, was established 

in 1903, for the protection of colonial nesting birds such as the snowy 

egret and the endangered brown pelican. The National Bison Range was 

instituted for the endangered bison in 1906. Malheur National Wildlife 

Refuge was established in Oregon in 1908, to benefit all migratory birds 

with emphasis on colonial nesting species on Malheur Lake. It was not 

until the 1930s, that the focus of refuge programs began to shift toward 

protection of migratory waterfowl (i.e., ducks and geese). As a result of 

drought conditions in the 1930s, waterfowl populations became severely 

depleted. The special emphasis of the Service (then called the Bureau of 

Sport Fisheries and Wildlife) during the next several decades was on the 

restoration of critically depleted migratory waterfowl populations. 

The passage of the Endangered Species Act of 1973, refocused the 

activities of the Service as well as other governmental agencies. This Act 

mandated the conservation of threatened and endangered species of fish, 

wildlife, and plants both through federal action and by encouraging the 

establishment of state programs. In the late 1970s, the Bureau of Sport 

Fisheries and Wildlife was renamed the U.S. Fish and Wildlife Service 

to broaden its scope of wildlife conservation responsibilities to include 

endangered species, as well as game and nongame species. A myriad of 

other conservation-oriented laws followed, including the Fish and 

Wildlife Conservation Act of 1980, which emphasized the conservation of 

nongame species. 

The mission of the Fish and Wildlife Service was recently revised by the 

President of the United States in Executive Order 12996 to reflect the 

importance of conserving natural resources.

The Executive Order states:

“The mission of the National Wildlife Refuge System is to preserve 

a national network of lands and waters for the conservation and 

management of fish, wildlife, and plant resources of the United States for 

the benefit of present and future generations.”

The Executive Order continues by specifying broad guiding principles 

describing a level of responsibility and concern for the nation’s wildlife 

resources for the ultimate benefit of the people. 

These principles are as follows:

Public Use: 

The refuge system provides important opportunities for compatible 

wildlife-dependent recreational activities involving hunting, fishing, 

wildlife observation and photography, and environmental education 

and interpretation.

Habitat:

Fish and wildlife will not prosper without high-quality habitat, and without 

fish and wildlife, traditional uses of refuges cannot be sustained. The refuge 

system will continue to conserve and enhance the quality and diversity of 

fish and wildlife habitat within refuges.

 Appendix B - Legal Policy & Admin. Guide
100 Ten Thousand Islands National Wildlife Refuge

Partnerships: 

America’s sportsmen were the first partners who insisted on protecting 

valuable wildlife habitat within wildlife refuges. Conservation partnerships 

with other federal and state agencies, tribes, organizations, industry, and 

the general public can make significant contributions to the growth and 

management of the refuge system.

Public Involvement: 

The public should be given a full and open opportunity to participate in 

decisions regarding acquisition and management of our national 

wildlife refuges.

The National Wildlife Refuge System Improvement Act of 1997 

represents a consensus among diverse constituencies with interests in the 

management and use of the refuge system. The legislation establishes a 

strong and singular conservation mission for the National Wildlife Refuge 

System which 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.”

In administering the system, the legislation requires the Secretary of the 

Interior to ensure that the mission of the National Wildlife Refuge System 

and purposes of the individual refuges are carried out. It also requires the 

Secretary to maintain the biological integrity, diversity, and environmental 

health of the refuge system.

The legislation clearly states that each refuge shall be managed to fulfill 

both the mission of the refuge system and the individual refuge purposes. 

This serves to underscore that the fundamental mission of the refuge 

system is wildlife conservation.

The legislation further recognizes wildlife-dependent recreational uses 

involving hunting, fishing, wildlife observation and photography, and 

environmental education and interpretation as the priority public uses of 

the refuge system. These uses are legitimate and appropriate public uses 

where compatible with the refuge system mission and the individual refuge 

purposes. These priority public uses are dependent upon healthy wildlife 

populations, and if the refuges are managed well, these priority public 

uses will, in turn, prosper into the future. The legislation also states that 

these priority public uses receive enhanced consideration over other uses 

in planning and management.

 Appendix B - Legal Policy & Admin. Guide
Ten Thousand Islands National Wildlife Refuge 101

 Appendix C - Public Involvement Process

Scoping and Public

Involvement Process

In compliance with the National Environmental Policy Act, community 

participation was an integral component of the planning for this refuge. 

Initial planning efforts for the management of the refuge began in 

February 1997, with the formation of a team of Service personnel and 

representatives of several state and local agencies. See Part 3 for a 

list of participants. A meeting of the team was held to develop a 

planning strategy and determine methods of involving the public in the 

planning process.

In April 1997, the Refuge Manager, Jim Krakowski, requested public 

comments by way of news releases, informational letters, briefings 

regarding issues, concerns, and opportunities related to the management of 

the refuge, and personal interviews during public meetings held in March 

and April. Thus began the process of soliciting public participation to 

determine the scope of issues to be addressed in planning for the refuge.

To assist individuals and organizations in responding to this request, a 

survey form was developed and made available (See Figure 23). The 

refuge manager received completed surveys and/or letters from numerous 

individuals and organizations. These survey forms and letters were 

subsequently analyzed by The Hayden Group, Inc., of Newnan, Georgia, an 

independent consulting group which provided the Service with a general 

overview of public opinion regarding management of the refuge. 

To enhance public participation during the planning process, a stakeholder 

group was established in July 1997. The stakeholder group included 

a broad spectrum of interests offering business, tourism, conservation, 

recreation, and historical perspectives. See Part 4 for a list of stakeholders. 

The role of the stakeholder group was to assist in developing the key 

components of the proposed management plan for the refuge. Stakeholders 

were selected by the Refuge Manager and through a series of facilitated 

meetings, all of which were open to anyone wishing to attend, the group 

utilized the issues, concerns, and opportunities expressed through the 

scoping process in drafting its materials. Key components of the proposed 

plan were consensus tested at community forums held throughout the 

planning process. Service personnel used all information gathered from the 

scoping process, input from the stakeholders, and series of meetings and 

community forums held for stakeholders and various publics, to prepare 

the Comprehensive Conservation Plan. The meetings were facilitated by 

Jim Stansbury of Stansbury Resolutions by Design, Inc., in Bradenton, 

Florida, and occurred as follows:

Workshop #1 - August 13, 1997, Fire Hall, Goodland, Florida

Community Forum #1, Workshop #2 - September 3, 1997, YMCA, Marco 

Island, Florida

Workshop #3 - September 29, 1997, YMCA, Marco Island, Florida

Workshop #4 - November 6, 1997, Edison Community College, 

Naples, Florida

Community Forum #2, Workshop #5 - November 13, 1997, Comfort Inn, 

Naples, Florida

Workshop #6 - December 1, 1997, Comfort Inn, Naples, Florida

Service responses to issues, concerns, and opportunities are presented in 

Part 1 and a mailing list is provided in Part 5.
102 Ten Thousand Islands National Wildlife Refuge

Figure 23. Public Involvement Survey Form (page 1)

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 103

Public Involvement Survey Form (page 2)

 Appendix C - Public Involvement Process
104 Ten Thousand Islands National Wildlife Refuge

Part 1 - Service Responses 

to Issues, Concerns, and 

Opportunities

The following topics were identified by the Service and through the 

public involvement process. Comments listed are representative of those 

received by the Service; responses from the Service follow the comments.

1. Commercial Uses On, and Access to, Ten Thousand Islands National 

Wildlife Refuge.

Commercial Uses on the Refuge -- A variety of commercial uses occur on 

the Ten Thousand Islands National Wildlife Refuge. Blue and stone crabs 

are caught with traditional underwater cage traps. Netting for mullet, as 

well as hook and line for other species of fish, occurs on a seasonal and 

less frequent basis. Charter fishing is the predominant use with probably 

more than 30 fishing guides taking clients to the refuge. The tour business 

includes canoe/camp trips, boat cruises, and shell collection trips. Issues 

raised during the public involvement process primarily focused on whether 

any of these uses have adverse effects on the natural resources of the 

refuge.

Issues, Concerns, and Opportunities Regarding Commercial Uses 

on the Refuge:

Should commercial harvesting (e.g., crabbing) continue to be allowed on 

the refuge?

Should other commercial uses (e.g., airboat and personal watercraft 

tours) be permitted to operate on the refuge?

Should commercial fishing and nature tour guides be permitted to 

operate without regulation on the refuge?

Will refuge regulations come at the expense of local jobs?

Survey Responses Regarding Commercial Uses on the Refuge:

A majority (58 percent) of the 192 responses to the first question indicated 

that commercial harvesting should not be allowed on the refuge while 

42 percent indicated commercial harvesting should be allowed. Adverse 

impacts to the environments mentioned by survey respondents included 

the possibility of sea turtles and manatees getting tangled in nets and lines, 

and the possible depletion of some species through over-harvesting and 

interferences with their reproductive processes. 

People wanted to be kept informed about how regulations on use of the 

refuge will affect them in terms of using the area and how it might affect 

their property values and means of livelihood.

Stakeholder Responses Regarding Commercial Uses on the Refuge:

Stakeholders and other public participants recommended that current 

levels of commercial activities and uses continue to be allowed, but that 

those uses be coupled with research. Within a 5-year period, management 

would review the impacts of commercial activities and uses on refuge 

resources in order to make informed decisions on whether to continue, 

expand, reduce, or discontinue those uses. 

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 105

Service Responses Regarding Commercial Uses on the Refuge:

Commercial activities of local importance occur within the submerged 

lands of the refuge. In consultation with the State of Florida, the Service 

would follow the recommendations of the stakeholder committee. Current 

commercial activities would be permitted and allowed to continue, with 

additional studies conducted in order to make an informed decision in the 

future as to whether to continue, expand, reduce, or discontinue these 

activities within the refuge. Strategies within the plan outline the type of 

information needed to make future decisions. The Service would review 

these activities in 5 years, but decisions may take place before or after that 

time depending on the results of monitoring and studies and contingent 

upon approval by the State Board of Trustees, as referenced in Appendix 

F. The Service cannot predict whether or not monitoring activities and 

studies will be funded, occur in a timely manner, or if they will produce the 

results needed to make informed decisions. 

2. Personal Watercraft and Airboat Use on the Refuge.

These two access modes were identified as potential refuge problems 

early on in the public scoping process. Presently, both types of uses occur 

infrequently and by a small number of individuals and businesses. Two 

airboat and two personal watercraft tour businesses are known to use the 

refuge. Personal watercraft use by the public is infrequent, due to the 

remoteness of the refuge. However, this use is expected to grow with 

Collier County’s predicted increase in population. Both of these access 

modes are characteristically loud, fast, and capable of cruising in extremely 

shallow water. 

Issues, Concerns, and Opportunities Regarding Personal 

Watercraft and Airboat Use on the Refuge: 

Personal watercraft and airboats are disruptive to bird life, other 

wildlife, and vegetation.

Personal watercraft and airboats are not a threat to wildlife or habitats.

Personal watercraft and airboats can access shallow water areas causing 

adverse effects to grass beds.

Personal watercraft and airboats do not have underwater propellers. 

Conventional boat motors cause harm to manatees and grass beds.

Personal watercraft and airboats are noisy and disrupt the refuge 

aesthetic experience.

Most people who use personal watercraft are thrill seekers and destroy 

the harmony of the area.

The livelihood of some businesses depend upon the use of personal 

watercraft and airboats.

Personal watercraft and airboat use should be regulated.

Personal watercraft and airboats should be confined to limited areas, 

trails, and numbers.

Issue permits to personal watercraft and airboat users who want to use 

the refuge.

Survey Response Regarding Personal Watercraft and Airboat Use 

on the Refuge:

Eighty-four percent of 227 respondents identified adverse effects 

associated with personal watercraft use on the refuge. Opinion about 

airboating was closely divided with 51 percent of responses in favor of 

allowing airboat use on the refuge. However, the majority of those in favor 

of airboats on the refuge advocated some restrictions on their use. 

 Appendix C - Public Involvement Process
106 Ten Thousand Islands National Wildlife Refuge

Stakeholder Responses Regarding Personal Watercraft and Airboat 

Use on the Refuge:

The stakeholders felt that the two modes of access needed to be addressed 

differently. They voted to disallow personal watercraft use at the start 

while conducting research to make an informed decision on whether to 

allow or disallow this use within a 5-year plan review period. Stakeholders 

voted to allow the use of airboats at the start while conducting research 

to make an informed decision on whether to continue, expand, reduce, or 

discontinue this use within a 5-year plan review period.

Service Responses Regarding Personal Watercraft and Airboat Use 

on the Refuge:

Most personal watercraft and airboat use occurs within the submerged 

lands of the refuge. In consultation with the State of Florida, the Service 

has made the following conclusion and decision. We would allow personal 

watercraft and airboat use on submerged lands within the refuge subject 

to the results of a study to determine their effects on wildlife and natural 

resources. The Service believes both of these modes of access have adverse 

effects on wildlife, grass beds, vegetation, and the aesthetics of the 

refuge experience. However, our beliefs must be supported or rejected 

by appropriate research on this issue, of which there has been very little 

conducted. The Service cannot predict whether or not studies will be 

funded, occur in a timely manner, or if research will produce the results 

needed to make informed decisions.

3. Habitat Protection, Wildlife Management, and the use of Partnerships to 

Help Manage Refuge Resources.

The Ten Thousand Islands National Wildlife Refuge is surrounded by 

state and federal land management units including Everglades National 

Park, Fakahatchee Strand State Preserve, Picayune Strand State Forest, 

Collier Seminole State Park, Cape Romano-Ten Thousand Islands Aquatic 

Preserve, Rookery Bay Aquatic Preserve, and Rookery Bay National 

Estuarine Research Reserve. The refuge nearly surrounds the town of 

Goodland and abuts the residential community of Port of the Islands. The 

submerged lands of the refuge overlap portions of the above-mentioned 

aquatic preserves. A cooperative agreement between the Service and the 

State of Florida is needed to properly manage these submerged lands. The 

proposed South Golden Gate Estates Hydrologic Restoration Plan would 

likely have a major impact on refuge resources. The Service needs to 

participate in the planning of this project to ensure that the resources of 

the refuge are not compromised. During the stakeholder workshops, there 

was substantial interest in developing a non-Service coalition to foster 

information transfer.

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 107

Issues, Concerns, and Opportunities Regarding Habitat Protection, 

Wildlife Management, and the use of Partnerships to Help Manage 

Refuge Resources: 

Should the refuge remain an inviolate sanctuary for endangered species, 

such as sea turtles, wood storks, Florida panthers, and manatees?

Sea turtle nesting and public use.

Return sheet flow to the watershed, monitor the South Golden Gate 

Estates rehydration effort.

Address pollution and water quality issues.

Will the creation of the refuge necessitate the adoption of new 

regulations?

Another layer of government is not needed in the Ten Thousand

Islands area.

Boating regulations are a concern for many.

What are the best methods for controlling invasive exotic plants which 

are disruptive to native plant communities?

Habitat protection is a priority.

Is there a need for cooperative land management and regulatory 

consistency with other public and private landowners? How would this 

be effectively accomplished?

Too many rules and permits to obtain from the different managing 

agencies.

Coordinated management is lacking between the various agencies.

Enter into a cooperative agreement with the state over management of 

refuge navigable waters.

Consolidate management of existing areas under fewer administrations.

Survey Response Regarding Habitat Protection, Wildlife 

Management, and the use of Partnerships to Help Manage

Refuge Resources:

There were numerous suggestions on how the Service could protect 

manatees in refuge waters including establishment and enforcement of 

speed limits, following existing rules and regulations, public education and 

better signs, better enforcement, no boats or limit boats in critical areas, 

conduct more studies, and maintain data on incidents.

Stakeholder Response Regarding Habitat Protection, Wildlife 

Management, and the use of Partnerships to Help Manage 

Refuge Resources:

Stakeholders agreed that there should be cooperative land management 

and regulatory consistency among public and private landowners. This 

may be accomplished through cooperative agreements with the state and 

other adjacent landowners.

Service Response Regarding Habitat Protection, Wildlife 

Management, and the use of Partnerships to Help Manage 

Refuge Resources:

The Service agrees with the recommendation of the stakeholder 

committee. More communication and coordination with the other land 

managers within the watershed must occur if we are to effectively 

conserve the diverse resources of this ecosystem. This plan identifies 

various ways in which the refuge will accomplish these tasks. 

 Appendix C - Public Involvement Process
108 Ten Thousand Islands National Wildlife Refuge

4. Public Use, Recreation, Education, and Outreach on the Refuge.

The refuge is well known to residents and visitors alike who enjoy a 

variety of recreational pursuits in its remote waters. Throughout the year, 

thousands of sport fishermen pursue a multitude of game fish. Canoe and 

kayak float trips are common during the winter months as are overnight 

stays at Panther, Hog and Round Keys. Duck hunting has occurred in the 

refuge marshes south of U.S. 41. The primary issue raised was whether 

any of these uses are now having, or will have, an adverse effect on refuge 

resources and, if they are having an adverse effect, what to do about it.

Many individuals indicated a desire to know more about the 

responsibilities of the Service, how they can provide input to the planning, 

and how they can help further the goals for the refuge. Many of the survey 

respondents had suggestions on how the Service could effectively share 

information with the public. 

Issues, Concerns, and Opportunities Regarding Public Use, 

Recreation, Education, and Outreach on the Refuge:

Will the establishment of the refuge lead to the degradation of the area’s 

natural resources as a result of more visitors and users of the area?

The area is over-fished; fish stocks are greatly reduced compared to 

the past.

Catch and release fishing should be encouraged.

How will camping, boating, and other recreational activities (duck 

hunting, fishing, etc.) be affected by refuge regulations?

No new regulations.

Camping on sea turtle nesting islands may have an adverse effect 

on turtles.

Limitations and facilities are needed for island camping.

Concern about the manatee zone speed limits and access to refuge.

There are so few ducks, hunting should not be allowed.

Manage a limited, highly controlled duck hunt.

How can the refuge more effectively educate the public about the refuge, 

its natural resources, and its role in the South Florida Ecosystem?

Survey respondents wanted more information.

A visitor facility is needed.

Print brochures showing the refuge boundaries and benefits of the 

refuge.

Give lectures and school programs on refuge programs and resources.

Hold public meetings on management of the refuge.

Set up a web site on the Internet.

Use the media.

Use the marinas to disseminate information.

Tell the public nothing. The less the public knows about the area the 

better off the area will be.

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 109

Survey Response Regarding Public Use, Recreation, Education, 

and Outreach on the Refuge:

A large majority of responses (88 percent) favored allowing camping and 

other recreational activities on islands where sea turtles nest. However, 

they suggested these activities may need restrictions during the nesting 

season. A majority of respondents feel that personal watercraft have an 

adverse impact on sea turtles, manatees, near-shore fisheries, and other 

refuge resources. Almost half recommend banning them. However, some 

suggested allowing them with appropriate restrictions. Opinion about air 

boating was closely divided with 51 percent of responses in favor of, and 

49 percent against, allowing air boating in the refuge. Of the 108 responses 

in favor of air boating in the refuge, slightly more than two-thirds of these 

responses advocated some type of restrictions on air boat use. 

Opinion was evenly divided among the 246 responses regarding whether 

duck hunting should be allowed on the refuge. The most frequently 

mentioned ways of managing duck hunting on the refuge were to designate 

open and closed seasons, designate specific areas for hunting, establish 

limits on the number of hunters, and limit the number of ducks that may be 

taken. Thirty-one responses favored not changing anything (i.e., allow duck 

hunting under the present state and federal laws and regulations).

Suggestions on how the Service could effectively share information with 

the public included the use of mass media; publication and distribution 

of newsletters, pamphlets, and brochures; providing speakers at various 

group or public meetings; operating visitor centers; and providing 

information through the Internet.

Stakeholder Response Regarding Public Use, Recreation, 

Education, and Outreach on the Refuge:

Stakeholders, and other public participants, recommended that current 

levels of commercial uses and activities continue to be allowed, but that 

those uses be studied to minimize adverse impacts to refuge resources. 

Within a 5-year period, management would review the impacts of 

commercial uses and activities on the resources in order to make informed 

decisions on whether to continue, expand, reduce, or discontinue those uses 

in the future. 

The group recognized the importance of this issue by fully supporting and 

assisting with the drafting of Goal No. 4, “Promote the interpretation, 

education, and appreciation of coastal natural resources of the Ten 

Thousand Islands area, and the importance of conserving them.”

Service Responses Regarding Public Use, Recreation, Education, 

and Outreach on the Refuge:

Existing secondary uses complement the mission and goals of this refuge. 

Sport fishing and limited, high quality duck hunting would be promoted 

by the Service. The Service agrees with the stakeholder committee to 

allow these activities to continue with additional studies conducted in 

order to make an informed decision as to whether to continue, expand, 

reduce, or discontinue them. Strategies within the plan outline the type of 

information needed to make future decisions. The Service will review these 

activities in 5 years, but decisions may take place before or after that time 

frame depending on the results of monitoring activities and studies. The 

Service cannot predict whether or not monitoring activities and studies 

will be funded, occur in a timely manner, or if research will produce the 

results needed to make informed decisions.

 Appendix C - Public Involvement Process
110 Ten Thousand Islands National Wildlife Refuge

The issue of whether to allow personal watercraft and airboat use on the 

refuge caused controversy among participants, and could not be resolved 

among them. In this case, the Refuge Manager, in cooperation with the 

State of Florida, will allow the use of personal watercraft and airboats until 

such time that studies indicate otherwise. 

In order to protect the natural resources of the refuge and the South 

Florida Ecosystem, the public must be informed of the issues at hand 

and protection efforts that are needed. The Service agrees with the 

stakeholder committee to make the environmental education program at 

Ten Thousand Islands National Wildlife Refuge a significant one. The 

strategies of the plan include additional staff and facilities to accomplish 

this goal.

5. Research and Monitoring on the Refuge.

Research and monitoring on the refuge would focus on fish and wildlife, 

habitat and water quality, watershed restoration, and public use.

Issues, Concerns, and Opportunities Regarding Research and 

Monitoring on the Refuge:

What opportunities or resources are available to the refuge for 

ecosystem monitoring and research on the refuge?

Answer questions related to effective management of habitat for 

threatened and endangered species.

Research and monitoring of fishery resources.

Cooperate with existing research.

Additional research and management is not needed for this area.

How can the refuge better mitigate the impacted hydrology as a result of 

the South Golden Gate Estates restoration?

How should the archaeological sites on the refuge best be protected, 

monitored, and conserved?

Survey Response Regarding Research and Monitoring on 

the Refuge:

Suggestions for scientific research included such areas as pollution 

and water quality, manatee protection, habitat protection, fish-related 

concerns, and boating-related concerns. 

Stakeholder Response Regarding Research and Monitoring on 

the Refuge:

Continue with current research and monitoring efforts. Research and 

monitoring will be needed to determine management direction of refuge 

natural resources and to make future decisions regarding commercial and 

recreational activities occurring on the refuge. 

Service Response Regarding Research and Monitoring on 

the Refuge:

Research and monitoring will be important functions on Ten Thousand 

Islands National Wildlife Refuge. Priority will be given to applied 

research, or studies that provide information to assist in the management 

of listed species and coastal systems. The refuge should serve as a center 

for applied science and management information for other agencies and 

private landowners. The Service agrees with the stakeholder committee 

on the importance of this issue and has addressed its importance through 

strategies in the plan.

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 111

6. Protection of Archaeological Resources on the Refuge.

There are several documented archaeological sites, primarily ancient Calusa 

Indian shell middens. These cultural resources should be accessible to 

the public yet protected from looting and vandalism. A coordinated effort 

between federal and state archaeologists to do additional surveys of these 

areas is needed to further assess the cultural importance of the sites.

Issues, Concerns, and Opportunities Regarding Protection of 

Archaeological Resources on the Refuge: 

Public would like access to these areas.

These areas need protection from looters.

The areas should be interpreted to inform the visitor.

Public information should address these areas, not necessarily direct 

people to them.

Should coordinate with the state on conducting additional surveys of 

the site.

Local people would like to assist with the investigations.

Survey Response Regarding Protection of Archaeological 

Resources on the Refuge:

There were no survey responses regarding archaeological resources on 

the refuge.

Stakeholder Response Regarding Archaeological Resources on 

the Refuge: 

The stakeholder group recognized the importance of the cultural 

resources on the refuge and helped draft the objectives of the plan to 

protect these sites.

Service Response Regarding Protection of Archaeological 

Resources for the Refuge:

Protection of archaeological sites is mandated by law on national wildlife 

refuges. The Service agrees with the stakeholders and has developed 

strategies in the plan to protect, study and educate the public about these 

important cultural resources.

7. Staffing Needs on the Refuge.

The Ten Thousand Islands National Wildlife Refuge was established in 

1996 and has a staff consisting of a seasonal Park Ranger and a Wildlife 

Biologist. It is located at the terminus of the Big Cypress Watershed. This 

plan outlines many new initiatives for this refuge that will benefit the 

ecosystem. This is a young refuge without adequate staff or budget.

Issues, Concerns, and Opportunities Regarding Staffing Needs on 

the Refuge:

Cannot accomplish all of these new initiatives with existing staff.

Use volunteers to help with the initiatives.

Coordinate more with other agencies to pool resources.

Don’t need all of this government intervention, let nature take its course.

Stakeholder Response Regarding Staffing Needs on the Refuge: 

The stakeholder group recognized that lack of funding, especially as it 

related to staffing needs, was an important issue for the refuge and 

helped draft the objectives for the plan that identify the need for 

additional funding.

 Appendix C - Public Involvement Process
112 Ten Thousand Islands National Wildlife Refuge

Service Response Regarding Staffing Needs on the Refuge:

The Service agrees with the stakeholder committee that additional funding 

is needed to carry out the plan and supports the strategies described 

to fund these activities and fill these positions. This plan describes new 

initiatives that are needed to successfully address Service responsibilities 

for the refuge and the South Florida Ecosystem during the next 15 years. 

These initiatives include an enhanced biological and habitat monitoring 

program, a public use management and environmental education program, 

increased coordination with land managers off the refuge, and an expanded 

management program for flora and fauna. The plan identifies 4 new 

positions for the refuge and 6to be shared with Florida Panther National 

Wildlife Refuge. New positions include an Assistant Refuge Manager, 

Outdoor Recreation Planner, Fishery Biologist, and Biological Science 

Technician. Shared positions include a Computer Specialist, Hydrologist, 

Botanist, Visual Information Specialist, Mechanic, and Maintenance 

Worker. In addition, the temporary Park Ranger for Ten Thousand Islands 

National Wildlife Refuge and the shared Administrative Assistant would 

be converted from temporary to permanent status.

Draft Review Process

A Draft Comprehensive Conservation Plan and Environmental 

Assessment was published in October 1999, followed by Regional Office 

review. Availability of the draft document was published in the “Federal 

Register” in October 1999, and in local press releases. Upon its release, the 

Service gave the public an opportunity to comment on the draft document. 

The review period ended on November 8, 1999.

Copies of the draft document were distributed to local libraries in Collier 

and Lee Counties. Copies were also distributed to stakeholders and others 

on the mailing list. An “open house” for the public to review the draft plan 

with Service personnel was held on October 23, 1999, at the Comfort Inn 

in Naples, Florida.

At the close of the review period, the Service received responses on the 

draft document. See Part 2 for a summary of these comments.

The refuge staff consulted with the Florida Fish and Wildlife Conservation 

Commission, Florida Department of Environmental Protection, and other 

State conservation agencies for several months before deciding the final 

refuge management approach.

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 113

 Appendix C - Public Involvement Process

Part 2 Summary of Public 

Comments and Service 

Responses on Draft CCP

Comments recieved on draft CCP Plan Revised Page No’s Service Response

Correct name of Big Cypress National 

Preserve.

Co-managed navigable waters should be 

referred to as co-managed submerged lands.

How much land was conveyed to the Service 

to establish the Ten Thousand Islands 

National Wildlife Refuge

Airboat use should be restricted

Use correct dates for the Gulf American 

excavation.

Revise statements regarding freshwater flow 

to the Ten Thousand Islands National Wildlife 

and water quality.

Use correct name when referencing Rookery 

Bay National Estuarine Research Reserve.

Include species of special concern in strategy 

1.1.2, and move up start date.

Include aquatic insects in strategy 1.2.2.

The timetable for initiating a fisheries 

inventory program should be earlier than 

that of the hydrological restoration of South 

Golden Gate Estates. Rookery Bay National 

Estuarine Research Reserve is currently 

working on a fish inventory.

Revise strategy 1.3.3 to ensure a 60 percent 

hatch rate for sea turtles.

Rephrase statement regarding land in South 

Golden Gate Estates.

Coordinate Fisheries Management Plan with 

Florida Fish and Wildlife Conservation 

Commission.

Consider an earlier date for the exotic plant 

control program.

Reword strategy 2.1.3 to include adjoining 

submerged lands.

Yes

Yes

No

Yes

Yes

Yes

Yes

Yes

No

Yes

Yes

Yes

Yes

Yes

4

12

12

21

21 

22

16

22

23

22

Change made.

In some instances throughout the plan, 

this change was made.

The acreage noted, 35,000, is correct.

Airboats are restricted in the northern 

marshes of the refuge and the Service 

is cooperating with the state in seeking 

a study to assess watercraft impacts 

below mean high tide

Date was changed to 1963-71.

The Service agrees and this change was 

made.

The Service agrees and this change was 

made.

The Service agrees and this change was 

made.

The Service agrees and this change was 

made.

The plan does not give a time schedule 

for either project.

The Service agrees and this change was 

made. This strategy is 1.3.5 in the final 

plan.

The Service agrees and this change was 

made.

The Service agrees and change was 

made.

Service agrees and this was changed in 

strategy 1.4.2, to 2004.

Service agrees and change was made.
114 Ten Thousand Islands National Wildlife Refuge

 Appendix C - Public Involvement Process

Comments recieved on draft CCP Plan Revised Page No’s Service Response

Add Fish and Wildlife Conservation 

Commission biologists for collaboration in 

strategies 3.2.2 and 3.2.3.

Revise strategy 4.1.3 to include the word 

“encourage”.

In Project 7, Area 4, page 32, include an 

alternative to cooperatively enhance existing 

Rookery Bay National Estuarine Research 

Reserve.

In Project 11, indicate that project is a 

joint venture with the Rookery Bay National 

Estuarine Research Reserve.

Omit last sentence on page 69, 

paragraph 6.

On page 91, paragraph 5, clarify how the 

Fish and Wildlife Service will keep community 

informed on proposed regulations.

On page 117, paragraph 4, add Office of 

Coastal and Aquatic “Managed” Areas.

On page 117, paragraph 6, change 50 years to 

25 years to be consistent with Great White 

Heron National Wildlife Refuge.

Change “would” to “shall” consistently 

throughout the Management Agreement for 

Certain Lands in Collier County.

Change last sentence on page 117 to read 

“...and compatible with goals of the State 

Aquatic Preserve Program.”

Strike reference to the Fish and Wildlife 

Conservation Commission in paragraphs 

2,5,6,7, and 8, on pages 117 and 118, and pursue 

separate agreement with the Commission.

Change first paragraph on page 119 to read 

“The Board retains the right to enter the 

property and to engage in continuing support 

of State Aquatic Preserve mangement.”

On page120, change Division of State Lands, 

Bureau of Submerged Lands and Preserves 

to Division of State Lands, Bureau of Land 

Management Services.

On page 120, change Trustees signature block 

to read: Director, Division of State Lands.

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

25

25

32

35

69

91

117

117

117-120

117

117-118

119

120

120

Service agrees and changes were made.

Service agrees and change was made.

Service agrees and change was made.

Service agrees and change was made; 

project 8 in final plan.

Service agrees and change was made; 

project 12 in final plan.

The community will be informed of 

new management actions and proposed 

regulations through the local 

newspapers and other news outlets.

The Service agrees and this change was 

made.

Service agrees and change was made.

Service agrees and changes were made.

Service agrees and change was made.

Service agrees and changes were made.

The Service agrees and change was 

made.

Change was made.

Change was made.
Ten Thousand Islands National Wildlife Refuge 115

Part 3 - Participants

David Addison ..............The Conservancy of Southwest Florida,

Naples, Florida

Ken Alvarez ................. Florida Park Service, Osprey, Florida

Jim Brown..................... Fish and Wildlife Service, Atlanta, Georgia

Frank Cole .................... Fish and Wildlife Service, Tallahassee, Florida

Kim Dryden .................. Florida Game and Freshwater Fish Commission, 

Punta Gorda, Florida

Dave Erickson .............. Fish and Wildlife Service, Atlanta, Georgia

Fesseha Gebremikael .. Fish and Wildlife Service, Atlanta, Georgia

Jennifer Harris ............. Fish and Wildlife Service, Atlanta, Georgia

Rick Kanaski................. Fish and Wildlife Service, Savannah Coastal 

Refuges, Savannah, Georgia

Jim Krakowski.............. Florida Panther and Ten Thousand Islands 

National Wildlife Refuge Complex

Naples, Florida

Mike Mayer ...................Everglades National Park, Everglades City, 

Florida

Wendell Metzen............ Fish and Wildlife Service, Jacksonville, Florida

Ananta Nath .................South Florida Water Management District

Ben Nottingham........... Florida Panther and Ten Thousand Islands 

National Wildlife Refuge Complex,

Naples, Florida

Mike Owen .................... Fakahatchee Strand State Preserve,

Copeland, Florida

Jon Staiger .................... City of Naples, Naples, Florida

Chris Straton ................ Collier County Audubon Society, Naples, Florida

Kris Thoemke ............... Florida Wildlife Federation, Naples, Florida

Jerry Vits ...................... Fish and Wildlife Service, Atlanta, Georgia

Part 4 - Stakeholders

Dave Addison ............... Conservancy of Southwest Florida

Pam Ball ........................ Boat Tour Concessionaire

Mike Barbush ............... Goodland Civic Association

Mark Bahr .....................Wave Runner Tour Operator

Ted Below...................... Collier County Audubon Society

Kris Dane ...................... Goodland Marina Operator

Kim Dryden .................. Florida Game and Fresh Water Fish Commission

Dave Eimers .................Representative of Fishing Guides

Mack Hatcher ............... Collier County Natural Resources Division

Eric Kiefer .................... Collier Seminole State Park

Mike Mayer ...................Everglades National Park

Gene Moss ..................... Crabber Representative

Phil Popovici ................. Marco Island Civic Association

Karl Predmore..............Airboat Concessionaire

Mike Shirley.................. Florida Department of Environmental Protection

Fran Stallings ...............Save the Manatee

Red Steir .......................Angler’s Outlook

Kris Thoemke ............... Florida Wildlife Federation

Jackie Thompson.......... Goodland, Florida

 Appendix C - Public Involvement Process
116 Ten Thousand Islands National Wildlife Refuge

Franklin Adams

Naples, Florida 34116

David Addison

Naples, Florida 34102

Frederick J. Adric

Marco Island, FL 34145

Charles J. Alaimo

Marco Island, FL 34145

Kenneth C. Alverez

Osprey, FL 34229

Brenoa Anderson

Labelle, Florida 33975

Ben Arnold

Tamarac, Florida 33321

Mark Bahr

Marco Island, FL 34145

Pam Ball

Goodland, FL 34140

Mike Barbush

Goodland, FL 34140

Paul Barbush

Goodland, FL 34140

Jeene Barnett

Ft. Myers, FL 33901

Brian Barnett

Tallahassee, FL 32399

Daniel P. Bartlett

Goodland, FL 34140

E. Bates

Naples, FL 34102

Gary Lee Beardsley

Naples, FL 34103

Charles E. Beauchamp

Goodland, FL 34140

Jim Beever

Fish and Wildlife Conservation 

Commission

Punta Gorda, FL 33955

Theodore and Virginia Below

Naples, FL 33942

Barry Berger

Naples, FL 34114

Steven M. Bertone

Naples, FL 34113

Biodiversity Legal Foundation

Boulder, CO 80308

Denis and Linda Blaise

Goodland, FL 34140

Alan E. Bogdan

Marco Island, FL 34145

Andrew Bostick

Marco Island, FL 33927

Curtis W. Bostick

Marco Island, FL 34145

Scott Brame

Mountain Rest, SC 29664

Kenneth H. Brown

Naples, FL 34114

T. J. Brown

Marco Island, FL 34145

A. Broxon

Naples, FL 34114

Betty J. Bruno

Goodland, FL 34140

Richard Burhoe

Marco Island, FL 34145

Calusa Island Yacht Club

and Marina

Goodland, FL 34140

Clyde S. Cameron

Goodland, FL 34140

John and Ronna Carter

Goodland, FL 34140

David Cassidy

Naples, FL 34116

Philip Chafe

Goodland, FL 34140

Dale P. Clemens

Marco Island, FL 34145

Pedro Concepcion

Naples, FL 34117

Bill Conrad

Goodland, FL 34140

D. D. Cook

Naples, FL 34114

Keith L. Cook

Marco Island, FL 34145

Evelyn Cook

Goodland, FL 34140

Joseph Corcie

Goodland, FL 34140

Brad Cornell

Naples, FL 34108

Peter Cross

Ft. Lauderdale, FL 33301

Robert A. Cunningham

Naples, FL 34102

Sonya Durrwachter

Naples, FL 34120

Mark S. Davby

Marco Island, FL 33937

Claudia Davenport

Everglades City, FL 34139

John J. David

Naples, FL 34104

Lillian S. David

Naples, FL 34104

Becky Davis

Marco Island, FL 34145

Donald Day

Naples, FL 34112

Part 5 - Mailing List

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 117

Bill Deeb

Naples, FL 34112

William H. DeHaan

Marco Island, FL 34145

Frank F. Denninger

Hialeah, FL 33013

Ronald DePatie

Donna DePatie

Goodland, FL 34140

Frank DiAndriole

Naples, FL 34110

Tim Duffy

Marco Island, FL 34145

Kevin Dugan

Naples, FL 34112

Sydney A. Dyer

Goodland, FL 34140

Dave Eimers

Naples, FL 34119

Robert Elliot

Goodland, FL 34140

Billy G. Ellis

Goodland, FL 34140

Matt Finn

Goodland, FL 34140

Magi Fortune

Goodland, FL 34140

Mike Franklin

Goodland, FL 34140

Bob Fravel

Marco Island, FL 34145

Enid Freeman

Naples, FL 34113

Rhoda Friedlander

Marco Island, FL 34145

Friends of the Everglades

Miami, FL 33143

George H. Friess

Marco Island, FL 34145

 Appendix C - Public Involvement Process

David Garcia

Immokolee, FL 34142

Nannette L. Gatti

Naples, FL 34114

Carole Gauger

Naples, FL 34109

Robert Gehung

Naples, FL 34114

Robert & Martha Genn

Naples, FL 34114

Dennis J. Giardina

Naples, FL 34117

Richard A. Giatti

Naples, FL 33941

Flecta Girieu

Goodland, FL 34140

Peter Golling

Cape Coral, FL 33914

Richard Gordon

Naples, FL 34104

Ron Gordon

Marco Island, FL 34145

Robert H. Gore

Naples, FL 34101

James G. Graham

Goodland, FL 34140

Niki Graham

Goodland, FL 34140

Richard Griffith

Marco Island, FL 34145

Timothy and Catherine Groman

Marco Island, FL 34145

Jean Grosbach

Ester, FL 33928

Juliet Gross

Goodland, FL 34140

Scene Habermell

Goodland, FL 34140

Deon Hall

Naples, FL 34114

Hubert Hall

Naples, FL 34114

Dave Harding

Naples, FL 34113

Lee Harkness

Marco Island, FL 34145

Anna Marie Hartman

Florida Department of 

Environmental Protection

Tallahassee, FL 32399

Cullum Hasty

Bonita Springs, FL 34135

Bob Henry

Naples, FL 34114

Anne Wright Hess

Goodland, FL 34140

Don & Mary Hinkel

Naples, FL 34114

John R. Hobbs

Goodland, FL 34140

Larryand Vivian Holland

Goodland, FL 34140

Robert and Martha Holmes

Naples, FL 34114

Todd Hopkins

Naples, FL 34113

Grant Hopkins

Naples, FL 34109

Douglass J. House

Naples, FL 34114

Neary J. House

Naples, FL 34114

Niles Hunold

Marco Island, FL 34145

Wayne Jenkins

Naples, FL 34117

Warren Johnston

Goodland, FL 34140
118 Ten Thousand Islands National Wildlife Refuge

Gary Knocbel

Goodland, FL 34140

Barbara Knocbel

Goodland, FL 34140

William P. and Helen M. Kramer

Goodland, FL 34140

Maura C. Kraus

Naples, FL 34102

Charles Krout, Jr.

Naples, FL 34113

Thomas R. Kutterer 

Naples, FL 34114

Nick Larison

Naples, FL 34112

James R. and Marilyn Lauffer

Naples, FL 34114

Bobbie Lee

Bonita Springs, FL 34135

Darryl Lee

Marco Island, FL 34145

Jules Lefebure

Naples, FL 34114

Nancy L. Lefebure

Naples, FL 34114

Curtis R. Lucado

Bonita Springs, FL 34134

Alfred Luckerbauer

Naples, FL 34113

Kim Luebke

Goodland, FL 34140

William T. Lull

Naples, FL 34114

William T. Lull

Naples, FL 34114

Gary Lytton

Naples, FL 34113

Brian H. Mackenzie

Naples, FL 34120

 Appendix C - Public Involvement Process

Mary MacMorris

Goodland, FL 34140

Sidney B. Maddock

Biodiversity Legal Foundation

Buxton, NC 27920

Erick Madison

Naples, FL 34120

M. Marchand

Naples, FL 34114

Noah Matson

Defenders of Wildlife

Washington, DC 20005

Charles R. Maybury

Naples, FL 34114

Mike Mayer

Everglades National Park

Everglade City, FL 34139

J. McBride

Marco Island, FL 34145

Barbara McDowel

Naples, FL 34102

Gerard F. McNeil

Naples, FL 34114

H. William Merrill

Marco Island, FL 34145

Ramon E. Miller

New Paris, OH 45347

Jack and Mary Miller

Goodland, FL 34140

L. Jack Moller

Pembroke, FL 33024

Maureen Moran

Marco Island, FL 34146

Verna Mordeca

Marco Island, FL 34145

Bryan Mordecai

Marco Island, FL 34145

Sean Morton

Naples, FL 34112

Ken Moss

Goodland, FL 34140

Tom Moss

Naples, FL 34105

Tira and Pat Motes

Goodland, FL 34140

Ivan Moyer

Naples, FL 34106

Theodome N. Naftal

Naples, FL 34114

Natural Resources Management

Naples, FL 34102

Thomas J. Newton

Marco Island, FL 34146

Ted L. Norris

Naples, FL 34102

Tara O’Neil

Goodland, FL 34140

Timothy P. O’Neil

Marco Island, FL 34145

Peter O’Neill

Marco Island, FL 34145

William Oliver

Goodland, FL 34140

G. Thomas Orerman

Naples, FL 34106

Mike Owen

Copeland, FL 34137

Frerick and Frances Palmiter

Goodland, FL 34140

Marilyn E. Pemberton

Naples, FL 34114

Kenneth J. Perl

Naples, FL 34133

James S. Peterson

Goodland, FL 34140

Carmel Peterson

Naples, FL 34112
Ten Thousand Islands National Wildlife Refuge 119

 Appendix C - Public Involvement Process

Don Phillips

Marco Island, FL 34145

Tony Polizos

Naples, FL 34120

Robert F. Polley

Goodland, FL 34140

Mary Polley

Goodland, FL 34146

Philip Popovici

Marco Island, FL 34145

Thomas F. Porter

Goodland, FL 34140

Dick Powell

Goodland, FL 34140

Karl Predmore

Air Boat Experience

Goodland, FL 34140

John Prushko

Marco Island, FL 34145

Jeseph Radoslovich

Marco Island, FL 34145

Michael R. Ramsey

Immokalee, FL 34143

Mary H. Ratliff

Naples, FL 34114

Marney Reed

Naples, FL 34114

Raymond J. Reed

Marco Island, FL 34146

Leonore Reich

Naples, FL 34108

Robert H. Richardson

Marco Island, FL 34145

Leon Richardson

Goodland, FL 34140

Robert Rivers

Naples, FL 33464

Margaret Roberts

Goodland, FL 33933

Philip E. Roberts

Goodland, FL 34140

Richard Rogers

Marco Island, FL 34145

Mark Ryan

Marco Island, FL 34145

Save the Wildlife

Goodland, FL 34140

Brian and Rosalyn Scherf

Hollywood, FL 33019

Rudolph and Rosemarie Schwenzer

Naples, FL 34104

Thomas A. Scott

Goodland, FL 34140

Philip A. Selleck

Everglades National Park

Homestead, FL 33035

Brian Sheehan

Naples, FL 34114

Mike Shirley

DEP/Rookery Bay

Naples, FL 34113-8059

Joe Sierra

Naples, FL 34108

Jim Simmons

Naples, FL 34114

Michael Simonk

Naples, FL 34102

Gene Skille

Naples, FL 34114

T. J. Smith

Homestead, FL 33035

Carol Spaett

Naples, FL 34114

Fran Stallings

Bonita Springs, FL 34136

H. Lee Stephens

Naples, FL 34114

Jim Stevenson

Dep. of Environmental Protection

Tallahassee, FL 32399-3000

Alfred Stier

Naples, FL 34113

Judith Stiteler

Albuquerque, NM 87111

Chris Straton

Naples, FL 34110

Leslie Strauss

Naples, FL 34106

C. A. Szubeca

Naples, FL 34104

Terrence Tessarzik

Goodland, FL 34140

Kris Thoemke

Naples, FL 34103

Patti Thompson

Maitland, FL 32751

Pete and Jane Thompson

Naples, FL 34104

Sherrl Thompson

Copeland, FL 34137

Nancy B. Titus

Naples, FL 34114

Fred Tonney

Marco Island, FL 34145

Elizabeth B. Townsend

Naples, FL 34114

Carl E. Townsend

Naples, FL 34114

Walley Valleau

Marco Island, FL 34145

Clayton and Martha Vandiver

Naples, FL 34114

Louis Van Meter

Naples, FL 34114

Linda Van Meter

Goodland, FL 34140
120 Ten Thousand Islands National Wildlife Refuge

Bret Waltele

Naples, FL 34112

Ken Waltson

Naples, FL 34110

Ronald L. Weagle

Naples, FL 34114

Gary Weeks

Goodland, FL 34140

Diane Weighart

Naples, FL 34112

Deibert White

Goodland, FL 34140

B. E. Wolfe

Goodland, FL 34140

Vicki Wood

Goodland, FL 34140

Ken Woodside

Ft. Lauderdale, FL 33314

John T. Worthington

Pineland, FL 33945

Bob Zellermsyer

Naples, FL 34109

Jerrey Zimmerman

Naples, FL 34114

Wendy S. Zumbrun

Naples, FL 34106

William F. Zumbrun

Helen L. Zumbrun

Naples, FL 34103

 Appendix C - Public Involvement Process
Ten Thousand Islands National Wildlife Refuge 121

Intra-Service

Section 7 Consultation

Division/Office: U.S. Fish and Wildlife Service, Ten Thousand Islands 

National Wildlife Refuge

Project Biologist/Phone Number: Jim Krakowski/(941) 353 8442, Ext. 27

Date: 

I. Proposed Action:

Activities associated with the Comprehensive Conservation Plan

for Ten Thousand Islands National Wildlife Refuge. The Plan would 

increase access to the refuge and implement additional study and 

management projects.

II. Location:

Collier County, Florida

III. Description of Proposed Action (describe in enough detail to allow 

proper evaluation of project impacts, attach additional pages as needed):

Actions can be divided into two major areas:

A. Increase in human access to the refuge for wildlife observation, 

recreation, and environmental education. Specifically, the following 

measures will be developed.

(1) Development of a walking interpretive and wildlife viewing 

trail along the oil pad road. New construction would include 

a parking area, restroom, and interpretive exhibits along the 

trail. The trail would contain interpretive and educational 

exhibits on refuge programs and natural resources. The trail 

would be day-use only. 

(2) Development of a non-motorized boat trail in the refuge marsh 

south of U.S. Highway 41. The trail would originate from the 

oil pad road. Post markers would be installed along the route 

as a guide. The trail would provide wildlife observation in an 

area that is difficult to access. The wildlife viewing area would 

be day-use only. 

(3) Initiate a limited, quality waterfowl hunt program in the 

marsh south of U.S. Highway 41. Teal, scaup, ring-necks, 

hooded mergansers, and mottled ducks are the common 

species found during the winter months. 

B. Commercial harvest of fishery resources in refuge submerged lands 

under restrictions established by State regulations.

(1) Commercial harvest of fish and shellfish would continue 

under guidelines established by State regulations. The 

Comprehensive Conservation Plan outlines monitoring 

schemes to ensure these resources are harvested on a 

sustained-yield basis.

 Appendix D - Section 7 Consultation
122 Ten Thousand Islands National Wildlife Refuge

C. The Comprehensive Conservation Plan for Ten Thousand Islands 

National Wildlife Refuge contains six refuge goals. Each goal has 

new strategies for study and management. Strategies that are new 

and have impacts on endangered species include:

1.1.2 By 2003, conduct a comprehensive inventory of listed 

species.

1.2.2 By 2005, develop a comprehensive Inventory of refuge 

wildlife and habitats.

1.2.4 By 2005, initiate a fisheries inventory program to establish 

baseline data.

1.3.5 By 2003, initiate raccoon control program to benefit sea 

turtle hatching.

1.3.6 Remove derelict boats from refuge waters.

1.3.8 Acquire approximately 1,640 acres adjacent to refuge 

boundary.

1.4.2 By 2004, implement an invasive exotic plant control 

program.

1.4.5 Assess fire ant impacts to sea turtle nesting, control if 

necessary.

2.1.2 By 2000, implement a waterfowl hunt program.

2.1.4 By 2001, implement a study to assess powered watercraft 

on the refuge’s shallow water environments.

2.1.5 By 2003, develop a Public Use Management Plan.

2.1.7 By 2004, develop a non-motorized boat trail south of U.S. 

Highway 41.

3.1.1 Gather information on current uses within the co-managed 

areas and assess compatibility.

3.1.4 Gather new biological information on commercial uses to 

facilitate compatibility determinations.

4.2.2 Establish a visitor contact station in Goodland.

4.2.3 By 2009, develop the oil pad road into a walking 

interpretive trail.

5.2.5 Collaborate with other agencies and universities to 

conduct water quality and hydrologic studies on the 

refuge.

6.1.1 Conduct comprehensive survey of archaeological 

resources.

These actions are further defined in the Comprehensive Conservation Plan 

and Environmental Assessment.

 Appendix D - Section 7 Consultation
Ten Thousand Islands National Wildlife Refuge 123

 Appendix D - Section 7 Consultation

IV. Species and Habitats Considered:

A. List all federally threatened, endangered, proposed, and candidate 

species, and describe any associated critical or proposed critical 

habitat that may be affected by the proposed action. Make a 

determination of how the proposed action may affect each:

Species/Critical Status1 Determination2 Response

Habitat NE NA AA Requested3

Loggerhead Sea Turtle T X

Green Sea Turtle E X

West Indian Manatee E/CH X

Wood Stork E X

Bald Eagle T X

Snail Kite* E X

Piping Plover* E X

American Crocodile* E X

Hawksbill Sea Turtle E X

Kemp’s Ridley Sea Turtle E X

* Species not documented on the refuge, but likely to occur.

1

Status:

E = endangered, T = threatened, PE = proposed endangered, PT = 

proposed threatened, CH = critical habitat, PCH = proposed critical 

habitat, C = candidate species 

2

Determination:

NE = no effect.

This determination is appropriate when the proposed action 

will not directly, indirectly or cumulatively impact, either 

positively or negatively, any listed, proposed, candidate species 

or designated/proposed critical habitat.

NA = not likely to adversely affect.

This determination is appropriate when the proposed action is not 

likely to adversely affect any listed, proposed, candidate species 

or designated/proposed critical habitat or there may be beneficial 

effects to these resources.

AA = likely to adversely affect.

This determination is appropriate when the proposed action is 

likely to adversely affect any listed, proposed, candidate species or 

designated/proposed critical habitat.

3

Response Requested: conference, concurrence, formal consultation.
124 Ten Thousand Islands National Wildlife Refuge

V. Determination of Effects:

A. Explanation of effects of the action: include direct, indirect, 

interrelated, interdependent, and cumulative effects (attach 

additional p ages as needed):

Definitions for Effects of the Action: 

Direct Effects = are those that are an immediate result of the action.

Indirect Effects = are those that are caused by the action and are later 

in time but are still reasonably certain to occur. They include the 

effects of future activities that are induced by the action and that 

occur after the action is completed.

Interrelated = are those that are part of a larger action and depend on the 

larger action for their justification.

Interdependent = are those that have no significant independent utility 

apart from the action that is under consideration.

Cumulative Effects = are those effects of future State or private activities, 

not involving Federal activities, that are reasonably certain to 

occur within the action area.

Sea Turtles: Loggerhead, Green, Kemp’s Ridley, and Hawksbill

Loggerhead and Green turtles nest on the coastal sandy beaches of the 

refuge. In addition, they are occasionally observed in the inter-island 

waters of the refuge, where they may be feeding, loafing, or in transit.

(1) Increased human visitation projects. No effects because these 

projects would occur in the fresh marsh area of the refuge and sea 

turtles inhabit the coastal waters and islands.

(2) Commercial harvest of fishery resources. Commercial netting of 

fish (mullet) does occur during the winter months, however, the 

nets are small and receive constant attention. It is the Service’s 

understanding that this netting has a minimal affect on sea turtles. 

Mature turtles would have a difficult time accessing the crab 

traps that are commonly used on the refuge. It is believed that 

commercial fishing would not adversely impact this species.

(3) Other Comprehensive Conservation Plan Projects. Projects 1.1.2, 

1.3.3, 1.3.7, 1.4.2, 1.4.6, 2.1.4, 2.1.5, 3.1.1, 3.1.4, and 5.2.5 are projects 

that would all benefit the sea turtles. All of the projects would 

indirectly benefit these turtles by surveying animal numbers (1.1.2, 

1.4.6, 3.1.4); removing predators (1.3.5, 1.4.6), protecting habitat 

(1.3.7, 1.4.2); or studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

 Appendix D - Section 7 Consultation

Loggerhead sea turtle

USFWS Photo
Ten Thousand Islands National Wildlife Refuge 125

West Indian Manatee

This animal is observed on the refuge throughout the year. Numbers 

are usually higher during the summer months. They have been observed 

feeding on grass flats, resting in warm water areas, or attracted to 

freshwater areas near shore. Often they are observed with calves. The 

State of Florida has identified manatee protection zones within the 

boundaries of the refuge (Fig. 19).

(1) Increased human visitation projects. No effects are expected 

because these projects would occur in the freshwater marsh area of 

the refuge and manatees inhabit the coastal waters and islands.

(2) Commercial harvest of fishery resources. Commercial harvest 

boats can obtain a state permit to travel at speeds higher than 

those established for the manatee protection areas of the refuge. 

Further assessment in strategies 2.1.5, 3.1.1, and 3.1.4 would help 

determine if negative effects are occurring. Present use is not 

believed to have an adverse effect.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the manatee by surveying animal 

numbers (1.1.2, 3.1.4); protecting habitat (1.3.7, 1.3.8, 2.1.4); or 

studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

Wood Stork

Storks are observed feeding in shallow water areas of the refuge throughout 

the year. Stork nest rookeries have yet to be found on the refuge.

(1) Increased human visitation projects. These may produce some 

temporary disturbance to these birds as they use the northern 

marsh areas of the refuge. However, most of the visitation would 

be on the 1-mile oil pad road. Canoe and waterfowl hunter use 

would be limited to the cooler winter season when mosquitos are 

not as plentiful. Use would be directed to certain routes or areas. 

Sanctuary areas for the birds will be included in projects 2.1.2, 2.1.4, 

and 2.1.6. The added disturbance caused by these projects is not 

expected to adversely affect this species.

(2) Commercial harvest of fishery resources. No effects or limited 

effects are expected because commercial harvest occurs in the 

coastal waters, which is accessed at higher tides. Most of the 

wood stork use occurs in low tide situations or in the freshwater 

marsh areas of the refuge, which are not accessible to commercial 

harvesters.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the wood stork by surveying 

animal numbers (1.1.2, 1.2.2); protecting habitat (1.3.7, 1.3.8, 2.1.4); 

or studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

 Appendix D - Section 7 Consultation

Wood stork

USFWS Photo

West Indian manatee

Photo by Larry W. Richardson
126 Ten Thousand Islands National Wildlife Refuge

Bald Eagle

Bald eagles are commonly observed flying or roosting within the refuge. 

Often they are observed on exposed tidal flats feeding on fish. No eagle 

nests have been observed on the refuge.

(1) Increased human visitation projects. No effects or limited effects, 

because these projects would occur in the freshwater marsh area of 

the refuge and all eagle use noted to date has been on the coastal 

waters and islands. 

(2) Commercial harvest of fishery resources. Commercial harvest 

boats do travel within the coastal areas of the refuge where eagles 

can be observed. Further assessment in strategies 2.1.5, 3.1.1, 

and 3.1.4 would help determine if negative effects are occurring. 

Present use is not believed to have an adverse effect.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the bald eagle by surveying 

animal numbers (1.1.2, 1.2.2); protecting habitat (1.3.7, 1.3.8, 2.1.4); 

or studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

Snail Kite

The Snail Kite has yet to be documented on the refuge, however, it has 

been observed on nearby marshes of similar habitat to the north of refuge 

marshes.

(1) Increased human visitation projects. These may produce some 

temporary disturbance to these birds as they are believed to use 

the northern marsh areas of the refuge. However, most of the 

visitation would be on the 1-mile oil pad road. Canoe and waterfowl 

hunter use would be limited to the cooler winter season when 

mosquitos are not as plentiful. Use would be directed to certain 

routes or areas. Sanctuary areas for the birds would be included 

in projects 2.1.2, 2.1.4, and 2.1.6. The added disturbance caused by 

these projects is not expected to adversely affect this species.

(2) Commercial harvest of fishery resources. No effects or limited 

effects are expected because commercial harvest occurs in the 

coastal waters, which is accessed at higher tides. Snail kite use 

would occur in the freshwater marsh area of the refuge. This area 

is not accessible to commercial harvesters.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the snail kite by surveying animal 

numbers (1.1.2, 1.2.2); protecting habitat (1.3.7, 1.3.8, 2.1.4); or 

studying a problem (2.1.4, 2.1.5, 5.2.5).

 Appendix D - Section 7 Consultation

Snail kite

USFWS Photo by P. W. Sykes

Bald eagle

USFWS Photo by Lee Emery
Ten Thousand Islands National Wildlife Refuge 127

Piping Plover

This bird has been observed using the coastal shore habitat in nearby areas 

during the winter and migration seasons. 

(1) Increased human visitation projects. No effects or limited effects 

are expected because these projects would occur in the freshwater 

marsh area of the refuge and all of the piping plover use noted to 

date has been on the coastal waters and islands. 

(2) Commercial harvest of fishery resources. Commercial harvest 

boats do travel within the coastal areas of the refuge where 

piping plovers can be observed. Further assessment in strategies 

2.1.5, 3.1.1, and 3.1.4 would help determine if negative effects are 

occurring. Present use is not believed to have an adverse effect.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the piping plover by surveying 

animal numbers (1.1.2, 1.2.2); protecting habitat (1.3.7,1.3.8, 2.1.4); 

or studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

American Crocodile

Crocodiles are suspected to inhabit the refuge, but none have been fully 

documented to date. This species occurs in brackish/salt water that is 

characteristically more tidal. Existing populations do occur less than 5 

miles west of the refuge.

(1) Increased human visitation projects. No effects or limited effects 

are expected because these projects would occur in the freshwater 

marsh area of the refuge and most of the suspected crocodile use 

would be on the coastal waters and islands. 

(2) Commercial harvest of fishery resources. Commercial harvest 

boats do travel within the coastal areas of the refuge where 

crocodiles would occur. Further assessment in strategies 2.1.5, 

3.1.1, and 3.1.4 would help determine if negative effects are 

occurring. Present use is not believed to have an adverse effect.

(3) Other Comprehensive Conservation Plan Projects. All of the 

projects would indirectly benefit the crocodile by surveying animal 

numbers (1.1.2, 1.2.2); protecting habitat (1.3.7, 1.3.8, 2.1.4); or 

studying a problem (2.1.4, 2.1.5, 3.1.1, 5.2.5).

B. Explanation of actions to be implemented to reduce adverse effects: 

All of these species will be monitored and evaluated frequently 

to assure no adverse impacts occur. If adverse impacts do occur, 

the project and the Comprehensive Conservation Plan would be 

modified to correct that situation.

 Appendix D - Section 7 Consultation

American crocodile

Photo by P. Moler

Piping plover

USFWS Photo
128 Ten Thousand Islands National Wildlife Refuge

VI. Signatory Approval:

Project 

Leader:__________________________________________________________

Jim Krakowski Date

VII. Reviewing Ecological Services Office (ESO) Evaluation:

A. Concurrence ________ Nonconcurrence _________

B. Formal Consultation Required ___________

C. Conference Required ____________

D. Remarks (attach additional pages if needed):

VIII. Signatory Approval:

ESO Supervisor: _________________________________________________ 

Signature Date

Note: The process ends here if the proposed action is “not likely to 

adversely affect”.

 Appendix D - Section 7 Consultation
Ten Thousand Islands National Wildlife Refuge 129

Draft Management Agreement

for Certain Lands

in Collier County

WHEREAS, the State of Florida, hereinafter referred to as the “State,” and 

the United States Fish and Wildlife Service, hereinafter referred to as the 

“Service,” own and manage adjacent tracts of land in Collier County, namely, 

the Service manages the Ten Thousand Islands National Wildlife Refuge, 

hereinafter referred to as the “Refuge,” and the Florida Department of 

Environmental Protection, Office of Coastal and Aquatic Areas, manages the 

Cape Romano-Ten Thousand Islands and Rookery Bay Aquatic Preserves. 

In addition, the State claims sovereignty over certain submerged lands, 

some of which are within the boundary of the Refuge; and

WHEREAS, the Board of Trustees of the Internal Improvement Trust 

Fund, hereinafter referred to as the “Board,” holds title to certain 

sovereignty submerged lands, hereinafter referred to as “State lands,” in 

Collier County, Florida, and

WHEREAS, the Board may authorize the management of said State lands 

by virtue of Chapter 253.03, Florida Statutes; and

WHEREAS, the Service desires to manage submerged State lands which 

may be located within the boundaries of the Refuge for public purposes 

as outlined in the Comprehensive Conservation Plan/Environmental 

Assessment for the Refuge, hereinafter referred to as the “Plan,” and 

specified in Fig 5, “Map of Co-Managed Lands and Navigable Waters” 

attached hereto; and

WHEREAS, the Board has determined that it would be appropriate for 

the Service to manage the certain State lands for public purposes as 

outlined in the Plan;

NOW, THEREFORE, the Board hereby grants to the Service the right 

to co-manage for public purposes all lands titled in the Board and all 

submerged lands for which the State claims sovereignty which are located 

within the boundaries of the overlying jurisdictional areas, hereinafter 

referred to as the “designated areas,” as described in the Plan, which is 

attached hereto and made a part hereof, for a period of 50 years from the 

effective date of this Agreement, on the following terms and conditions:

1. The Service will manage the designated areas as provided for in 

the Plan in a manner which will not conflict with the conservation, 

protection and enhancement of said lands and will not interfere with 

the maintenance of public navigation projects or other public works 

projects authorized by the United States Congress.

2. The Service will manage the designated areas as part of the Refuge. 

The wildlife management, public use, and law enforcement on 

said lands will be administered according to the policies of the 

Service as well as the regulations set forth in the National Wildlife 

Refuge System Administration Act of 1966, provided they are 

acceptable to the Florida Department of Environmental Protection, 

Fish and Wildlife Conservation Commission, and compatible with the 

management goals of the State’s aquatic reserve program.

 Appendix E - Management Agreement
130 Ten Thousand Islands National Wildlife Refuge

3. The Plan will be reviewed jointly by the Board and the Service at no 

greater that 5 year intervals and updated as necessary. The Service 

will not alter the designated areas or engage in any activity except as 

provided for in the Plan without the prior written approval of the Board.

4. Upon execution of this Agreement, the Service will have the right to 

enter and occupy the subject lands for the purpose of fulfilling the 

activities designated under “implementation” in said Plan subject to 

existing State laws, rights and interests.

5. The Board retains the right to enter the subject lands and to engage in 

management activities other than those provided for herein following 

notification, consultation, and approval by the Service. The Service 

retains the right to affirm or deny any further management activities 

by third parties, and determine if such activities are compatible for 

lands incorporated into the National Wildlife Refuge System. Upon 

such affirmation by the Service, the Board may grant approval to third 

parties for compatible management activities under the terms of this 

Agreement.

6. Upon the request of the Board, the Service will provide information 

regarding Service operations within the designated areas that in any 

manner relate to this Agreement.

7. Inasmuch as the Florida Department of Environmental Protection 

(FDEP), has the constitutional authority to manage state fish and 

wildlife resources, and the Service desires to engage in cooperative 

efforts for resource management for the Refuge, a Memorandum of 

Understanding will be developed between the agencies to address in 

more detail the cooperative elements identified in items 8, 9, and 10.

8. The FDEP and the Service agree to cooperate in support of 

research and monitoring within the designated areas of cooperative 

management. Said agencies will coordinate planned research activities 

with each other on an annual basis, and share results of research 

projects. Cooperative research will also include sharing of staff and 

equipment resources when appropriate.

9. The FDEP and the Service agree to cooperate in support of resource 

management within the designated areas of cooperative management. 

Said agencies will coordinate planned restoration, public access, and 

resource protection projects with each other on an annual basis. Both 

parties agree to monitor and review public use and watershed land use 

impacts on the Refuge ecosystem.

10. The FDEP and the Service agree to cooperate in support of education 

and outreach efforts associated with current and future research and 

management activities within the designated areas of cooperative 

management. Said agencies will coordinate planned education field 

study and community outreach activities with each other on an

annual basis.

 Appendix E - Management Agreement
Ten Thousand Islands National Wildlife Refuge 131

11. Section 267.061(1)(b), Florida Statutes, specifies that title to all 

treasure trove, artifacts, and such objects or antiquity having 

intrinsic, scientific or historical and archaeological value, which have 

been abandoned on state-owned waters or state-owned sovereignty 

submerged lands, is vested in the Division of Historical Resources 

of the Department of State, for the purpose of administration and 

protection for the State. The execution of this Agreement in no way 

affects any of the parties’ obligations pursuant to Chapter 267, Florida 

Statutes. The disturbance of archaeological and historical sites on 

state-owned lands is prohibited unless prior authorization has been 

obtained from the Division of Historical Resources in order to mitigate 

potential damage or disturbance of, or to preserve, archaeological and 

historical sites and properties.

12. This Agreement does not convey any title interest from the State or 

the Service in the areas described in Fig. 5, “Map of Co-Managed 

Lands and Navigable Waters” of the Refuge.

13. This Agreement may be unilaterally terminated by either party with 

or without cause, by providing written notice of the intent to the other 

party at least 60 days prior to the proposed date of termination.

14. The Agreement may be renewed for succeeding additional 10-year 

terms by mutual agreement of the parties. This option to renew if 

exercised, together with all additions, deletions, and modifications to 

this Agreement, shall be affixed hereto.

15. This Agreement and any right and privileges relative to State lands 

contained herein are for the sole use of the Service and shall not be 

assigned or transferred in whole or in part to any other party without 

the consent of the Board.

16. The Service agrees to assist in the investigation of injury or damage 

claims either for or against the State or the Board pertaining to 

the Service’s area of responsibility or arising out of the Service’s 

management programs hereunder and to contact the Board regarding 

whatever legal action the Service deems appropriate to remedy same.

17. The liability of the Service for the acts and omissions of its employees 

pursuant to this instrument shall be governed by the Federal Tort 

Claims Act.

18. The Service agrees that it will not discriminate against any individual 

based on race, color, religion, sex, national origin, age, handicap, or 

marital status with respect to any activity occurring within the area 

subject to this Agreement or upon lands adjacent to and used as an 

adjunct area.

19. Unless specified herein to the contrary, this Agreement will be 

governed and interpreted by applicable Federal and State laws.

20. All notices given under this Agreement must be in writing and mailed 

to the address of the party to whom notice is to be given, as designated 

by such party in writing. The Board, the FDEP and the Service hereby 

designate their respective address as follows:

 Appendix E - Management Agreement
132 Ten Thousand Islands National Wildlife Refuge

Board: Division of State Lands

Bureau of Land Management Services

3900 Commonwealth Boulevard

Mail Station 125

Tallahassee, Florida 32399

Service: Regional Director

U.S. Fish and Wildlife Service

1875 Century Boulevard

Atlanta, Georgia 30345

Department Executive Director

of Environmental Department of Environmental Protection

Protection 3900 Commonwealth Boulevard

Tallahassee Florida 32399-3000

Office of Coastal Aquatic Management Areas 

3900 Commonwealth Boulevard

Tallahassee Florida 32399-3000

IN TESTIMONY WHEREOF, witnesseth the signature of the Regional 

Director, Fish and Wildlife Service, on behalf of the United States of 

America, and the signature of the legally designated agent of the Board of 

Trustees of the Internal Improvement Trust Fund of the State of Florida, 

this ___________________day of _______________, 2000.

 Appendix E - Management Agreement

UNITED STATES OF AMERICA - Department of the Interior

By:_____________________________ ________________________________ _______________________________

Regional Director Witness Witness

Fish and Wildlife Service

Southeast Region

BOARD OF TRUSTEES OF THE INTERNAL IMPROVEMENT TRUST FUND OF THE

STATE OF FLORIDA

By:_____________________________ ________________________________ _______________________________

Director Witness Witness

Division of State Lands
Ten Thousand Islands National Wildlife Refuge 133

References

Ashton, Jr., Ray E. and Patricia Sawyer Ashton. 1988. Handbook of 

Reptiles and Amphib ians of Florida: Part One - The Snakes. Windward 

Publishing, Inc., Miami, FL. 176 pp.

Ashton, Jr., Ray E. and Patricia Sawyer Ashton. 1985. Handbook of 

Reptiles and Amphibians of Florida: Part Two - Lizards, Turtles & 

Crocodilians. Windward Publishing, Inc., Miami, FL. 191 pp.

Ashton, Jr., Ray E. and Patricia Sawyer Ashton. 1988 . Handbook of 

Reptiles and Amphibians of Florida: Part Three - The Amphibians. 

Windward Publishing, Inc., Miami, FL. 191 pp.

Brockman, C. F. 1986, Trees of North America. Golden Press. New York.

Burt, William H. and Richard P. Grossenheider. 1976. A Field Guide to 

the Mammals (Third edition). Houghton Mifflin Company, Boston, MA. 

289 pp.

Clark, J. 1992, A Refuge Manager’s Perspective: Refuge Management and 

Biological Diversity. Trans. 57th N.A. Wildl. & Nat Res. Conf.

Clinton, W.J. 1996, Executive Order: Management and General Public Use 

of the National Wildlife Refuge System. The White House. 

DeGraaf, R.M. and Rappole, J.H. 1995. Neotropical Migratory Birds, 

“Natural History, Distribution, and Population Change,” Comstock 

Publishing Associates, A Division of Cornell University Press, Ithaca, 

NY. and London.

Ehrlich, Paul R., D.S. Dobkin and D. Wheye. 1988, The Birders Handbook: 

a Field Guide to the Natural History of North American Birds. Simon 

and Schuster.

Felger, S. Richard, 1987. Field Guide to the Birds of North America, 

National Geographic Society. 

Glass, Bryan P. 1975. A Key to the Skulls of North American Mammals 

(Second edition). Oklahoma State University, Stillwater, OK. 59 pp.

Hitchcock, A. H. 1971. Manual of Grasses of the United States. Volume 

One. Dover Publications, Inc. New York, NY.

Lagler, F. Karl. 1978. Fresh Water Fishery Biology. W.M. C. Brown 

Company Publishers, Debuque, IA. 

Metzen, W. 1985. Fakahatchee Strand: A Florida panther habitat 

preservation proposal. U. S. Fish and Wildlife Service Publication 64pp.

Peterson, R.T. 1961. A Field Guide to Western Birds. Houghton Mifflin Co. 

Boston, MA.

Porter, C.L. 1967. Taxonomy of Flowering Plants. W.H. Freeman and 

Company. San Francisco, CA.

Rickett, H.W. 1966. Wild Flowers of the United States. Vol 4. Part 1. 

McGraw-Hill Book Co. New York, NY.

Ripple, Jeff. 1996. Southwest Florida’s Wetland Wilderness: Big Cypress 

Swamp and the Ten Thousand Islands. University Press. FL.

 Appendix F - References
134 Ten Thousand Islands National Wildlife Refuge

Stebbins, Robert C. 1985. A Field Guide to Western Reptiles and 

Amphibians. Houghton Mifflin Co., Boston, MA.

U.S. Fish and Wildlife Service. 1995. Endangered and Threatened 

Wildlife and Plants: 50 CFR 17.11 & 17.12. U.S. Government Printing 

Office. 44 pp.

U.S. Fish and Wildlife Service. 1987. Environmental Assessment: Ten 

Thousand Island Preservation Proposal. Southeast Region, Atlanta, GA.

U.S. Environmental Protection Agency. 1985. Compilation of Air 

Pollutants Emission Factors, Volume 2, Mobile Sources. U.S. 

Environmental Protection Agency, Ann Arbor, MI, NTIS No. 

PB-205266, September. 

U.S. Geological Survey. 1992. National wild and scenic river systems map. 

In cooperation with U.S. Department of Agriculture Forest Service and 

U.S. Department of the Interior’s Bureau of Land Management, Fish and 

Wildlife Service, and National Park Service. December.

Whitney, S. 1985. Western Forests. The Audubon Society Nature Guides. 

Alfred A. Knopf, Inc. New York, NY.

Whitson, T.D., L.C. Burrill, S.A. Dewey, D. Cudney, B. E. Nelson, R.D. 

Lee, R. Parker. 1991. Weeds of the West. Western Society of Weed 

Science. Pioneer of Jackson Hole, Publ.

Wood, Don. 1996. Florida’s Endangered Species, Threatened Species and 

Species of Special Concern: Official Lists. Florida Game and Fresh Water 

Fish Commission. Tallahassee, FL. 14 pp.

 Appendix F - References
Ten Thousand Islands National Wildlife Refuge 135

Alternative . . . . . . . . . . . . . . . . . . . . . . . A refuge management pattern designed to accomplish a desired end result. 

May be presented in the form of refuge objectives and strategies.

Biological Diversity . . . . . . . . . . . . . . . . The variety of life forms and processes, including the complete natural 

complex of species, communities, genes, and ecological functions.

Candidate Species . . . . . . . . . . . . . . . . . Species that the Fish and Wildlife Service is actively reviewing for possible 

inclusion in the threatened or endangered species lists.

Compatible Use . . . . . . . . . . . . . . . . . . . A wildlife-dependent recreational use, or any other use on a refuge that 

will not materially interfere with or detract from the fulfillment of the 

System or the purposes of the refuge.

Comprehensive Conservation Plan. . . A document that states the Fish and Wildlife Services desired 

future conditions of the refuge and provides long-range guidance and 

management direction to accomplish the purposes of the refuge, contribute 

to the mission of the system, and meet other relevant mandates.

Cultural Resources . . . . . . . . . . . . . . . . The physical remains of human activity (artifacts, ruins, burial mounds, 

etc.), and the conceptual content or context of an area as a setting 

for legendary, historic, or prehistoric events such as a sacred area of 

native peoples. It includes historical, archaeological, and architecturally 

significant resources.

Degradation . . . . . . . . . . . . . . . . . . . . . . A process of transition from a higher to a lower quality of fish and 

wildlife habitat.

Diversity . . . . . . . . . . . . . . . . . . . . . . . . . Variety; usually used in reference to the number of species or living 

organisms in a given area, including some reference to their abundance.

Ecosystem. . . . . . . . . . . . . . . . . . . . . . . . The sum of all interacting parts of plant and animal communities and their 

and their associated non-living environment. 

Ecosystem Approach. . . . . . . . . . . . . . . A strategy or plan to manage the natural function, structure, and 

species composition of an ecosystems, recognizing that all components 

are interrelated, as opposed to a strategy or plan for managing 

individual species.

Ecosystem Management. . . . . . . . . . . . Management of an ecosystem that includes all ecological, social, and 

economic components which make up the whole of the system.

Endangered Species . . . . . . . . . . . . . . . Any species of plant or animal defined through the Endangered Species 

Act as being in danger of extinction throughout all or a significant portion 

of its range, and published in the Federal Register.

Environment. . . . . . . . . . . . . . . . . . . . . . The surroundings of a plant or animal.

Environmental Assessment. . . . . . . . . A systematic analysis of site-specific or programmatic activities used to 

determine whether such activities have a significant effect on the quality of 

the physical, biological, and human environment.

Estuary . . . . . . . . . . . . . . . . . . . . . . . . . . An arm of the sea that extends inland to meet the mouth of a river.

Extinct. . . . . . . . . . . . . . . . . . . . . . . . . . . No longer existing.

Fauna . . . . . . . . . . . . . . . . . . . . . . . . . . . . The animals of a particular region, taken collectively.

 Appendix G - Glossary of Terms

Glossary of Terms
136 Ten Thousand Islands National Wildlife Refuge

Flora. . . . . . . . . . . . . . . . . . . . . . . . . . . . . The plants of a particular region, taken collectively.

Habitat. . . . . . . . . . . . . . . . . . . . . . . . . . . A place where a plant or animal naturally or normally lives and grows.

Habitat Diversity. . . . . . . . . . . . . . . . . . In reference to the variety in habitat; structural and compositional variety 

of habitat.

Habitat Management Plan . . . . . . . . . . A written plan that outlines the management strategy for a plant or animal 

community in the area where it occurs.

Herbicide. . . . . . . . . . . . . . . . . . . . . . . . . A chemical agent used to kill plants or inhibit plant growth.

Issue. . . . . . . . . . . . . . . . . . . . . . . . . . . . . Any unsettled matter that requires a management decision.

Listed Species. . . . . . . . . . . . . . . . . . . . . A plant or animal species identified as being threatened, endangered, 

threatened, or of special concern by either federal or state agencies.

Mitigation . . . . . . . . . . . . . . . . . . . . . . . . Avoiding or minimizing the impacts of an action by limiting the degree or 

magnitude ofthe action; rectifying the impact by repairing, rehabilitating, 

or restoring the affected environment; reducing or eliminating the impact 

by preservation and maintenance operations during the life of the action.

Mosaic . . . . . . . . . . . . . . . . . . . . . . . . . . . A variety of different habitats intermixed in a relatively small area. 

In the same manner, several successional stages intermixed within a 

vegetation type.

National Environmental Policy Act . . An Act which encourages productive and enjoyable harmony between 

humans and their environment, to promote efforts which will prevent 

or eliminate damage to the environment and biosphere, to stimulate the 

health and welfare of humans, to enrich our understanding of the ecological 

systems and natural resources important to our Nation, and to establish a 

council on environmental quality.

Native . . . . . . . . . . . . . . . . . . . . . . . . . . . A term that describes plant or animal species, habitats, or communities 

that originated in a particular region or area, or those that have 

established themselves in a particular region or area without the influence 

of humans.

National Wildlife 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.

Prescribed Burning . . . . . . . . . . . . . . . . The intentional application of fire to vegetation under specific 

environmental conditions to accomplish specific management objectives in 

specific areas identified in approved prescribed fire plans.

Raptor . . . . . . . . . . . . . . . . . . . . . . . . . . . A bird of prey such as a hawk, eagle, or owl.

Refuge Agreements. . . . . . . . . . . . . . . . Agreements between a refuge and other federal, state, and local entities 

for co-management of shared natural resources, operation of multi-agency 

visitor centers, law enforcement, wildfire suppression, prescribed burning, 

and other management activities.

Refuge Goals. . . . . . . . . . . . . . . . . . . . . . Statements that describe a desired condition. Refuge goals are expressed 

in broad, general terms. They provide direction for developing objectives.

 Appendix G - Glossary of Terms
Ten Thousand Islands National Wildlife Refuge 137

Refuge Objectives . . . . . . . . . . . . . . . . . Concise statements that describe, in measurable terms, desired conditions, 

and thus provide focal points for directing management activities. 

They describe desired conditions in greater detail than refuge goals. 

Refuge goals and core problems providethe basis from which objectives 

are developed.

Strategies . . . . . . . . . . . . . . . . . . . . . . . . Specific approaches used to accomplish objectives and therefore goals. 

Strategies provide direction for defining and coordinating operational tasks 

to effectively achieve the objectives and goals of a plan, and in this case 

fulfill the refuge’s purpose.

Reintroduction . . . . . . . . . . . . . . . . . . . . A plant or animal species that is introduced by humans to a range that it 

formerly occupied.

RONS. . . . . . . . . . . . . . . . . . . . . . . . . . . . Refuge Operating Needs System - A refuge planning, budgeting, and 

communication tool.

Scoping . . . . . . . . . . . . . . . . . . . . . . . . . . A process for determining the significant issues to be addressed in a plan. 

It is a process whereby the public and various federal, state, and local 

agencies are invited to participate.

Shrub . . . . . . . . . . . . . . . . . . . . . . . . . . . . A plant usually with several woody stems sometimes referred to as a bush. 

A shrub usually differs from a tree by its low stature and/or its multiple 

stemmed characteristics.

Species . . . . . . . . . . . . . . . . . . . . . . . . . . . A category of biological classification. A distinctive kind of plant or animal 

having distinguishable characteristics that intrabreeds and produces viable 

offspring.

Stakeholder Group. . . . . . . . . . . . . . . . . A group of local citizens representing a broad spectrum of interests 

offering business, tourism, conservation, recreation, and historical 

perspectives.

Threatened Species . . . . . . . . . . . . . . . . Those plant or animal species likely to become endangered species 

throughout all or a significant portion of their range within the foreseeable 

future. A plant or animal identified and defined in accordance with the 1973 

Endangered Species Act and published in the Federal Register.

Vegetation . . . . . . . . . . . . . . . . . . . . . . . . Plants in general, or the sum total of the plant life in an area.

Vegetation Type . . . . . . . . . . . . . . . . . . . A category of land based on potential or existing dominant plant species 

of a particular area.

Watershed . . . . . . . . . . . . . . . . . . . . . . . . The entire land area that collects and drains water into a stream or stream 

system.

Wetland . . . . . . . . . . . . . . . . . . . . . . . . . . Areas such as lakes, marshes, and streams that are inundated by surface 

or ground water for a long enough period of time each year to support, 

and do support under natural conditions, plants and animals that require 

saturated or seasonally saturated soils.

Wildlife Diversity. . . . . . . . . . . . . . . . . . A measure of the number of wildlife species in an area and their relative 

abundance.

Wildlife Management. . . . . . . . . . . . . . . The science and art of making the land produce wildlife in defined patterns 

that meet the needs of humanity.

 Appendix G - Glossary of Terms