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Cedar Keys

National Wildlife Refuge

Location

Cedar Keys National Wildlife Refuge is located along the western coast of 

Florida, approximately 90 air miles north-northwest of Tampa and 60 miles 

southwest of Gainesville. Located in Levy County along the southern edge 

of the Big Bend Region, the 13 islands that make up the refuge surround 

the coastal town of Cedar Key, Florida, where State Road 24 terminates 

at the Gulf of Mexico (Fig. 6).

History

Cedar Keys National Wildlife Refuge was established on July 16, 1929, 

by Presidential Executive Order 5158, to protect a breeding ground for 

colonial nesting migratory birds. The Executive Order included North 

Key, Snake Key, and Bird (Deadman’s) Key. A second Executive Order, 

dated November 6, 1939, added Seahorse Key to the refuge. Congressional 

legislative mandate number 92-364, dated August 7, 1972, designated 

Seahorse Key, Snake Key, North Key, and Deadman’s Key as National 

Wilderness Areas under the Wilderness Act of September 3, 1964 (Public 

Law 88-577). During the late 1970s and 1980s, additional interior coastal 

islands surrounding the town of Cedar Key were purchased for inclusion 

in the refuge. In 1998, the Suwannee River Water Management District 

purchased Atsena Otie Key and added it to Cedar Keys Refuge through a 

Memorandum of Understanding. Today, Cedar Keys Refuge is comprised 

of 13 islands ranging in size from 1 to 120 acres and totaling 762 acres. 

Purpose

The purpose of Cedar Keys National Wildlife Refuge is:

“..as a refuge and breeding ground for birds and wild animals, 

subject to valid existing rights....” Executive Order 5158, July 16, 1929; 

“...suitable for - (1) incidental fish and wildlife-oriented recreational 

development, (2) the protection of natural resources, (3) the conservation 

of endangered species or threatened species....” 16 U.S.C. § 460k-1; and 

“...the Secretary...may accept and use...real...property. Such 

acceptance may be accomplished under the terms and conditions of 

restrictive covenants imposed by donors....” 

16 U.S.C. § 460k-2, as amended.

Cedar Keys National Wildlife Refuge was established to protect colonial 

birds during a time when market hunters, desiring feathers for the ladies’ 

apparel industry, were slaughtering millions of birds. Today, the threat is 

much different - coastal islands are being rapidly developed and habitat 

is lost forever. Seahorse Key has been designated critical habitat for 

colonial wading birds. Historically, up to 200,000 birds nested on Snake 

and Seahorse Keys. Recent data show approximately 10,000 white ibis; 

great, cattle, and snowy egrets; great blue, little blue, black-crowned night, 

yellow-crowned night, and tri-colored herons; cormorants; and brown 

pelicans nest on Seahorse Key annually. Snake Key has not been used for 

nesting since the late 1960s. 

The Suwannee River Water Management District purchased Atsena Otie 

Key to protect water quality and to provide recreational opportunities in 

a natural setting. The refuge islands, with their undisturbed, natural plant 

communities, are important stopover points for migrating neotropical 

songbirds. They are important loafing and feeding areas to thousands of 

Background

Information

North Key

USFWS Ken Litzenberger

Black-crowned Night Heron

USFWS 
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Figure 6. Vicinity Map, Cedar Keys National Wildlife Refuge 
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shorebirds and provide habitat for threatened and endangered species, and 

species of special concern in the State of Florida. The refuge provides 

limited public recreation and environmental education.

Function within the Ecosystem

Cedar Keys National Wildlife Refuge includes important coastal barrier 

island habitat with maritime forests, salt marsh, and the northern most 

limit of mangrove swamps. About 50 percent of Florida’s salt marsh 

and more than 3,000 square kilometers of seagrass beds occur in the 

Big Bend Region, providing habitat for migratory birds, anadromous and 

interjurisdictional fish, and threatened and endangered species. The blend 

of these estuary and riverine habitats creates a large, complex system 

which exhibits how watersheds function. 

Once a sleepy fishing village, the town of Cedar Key has become a 

unique nature tourist and sportfishing destination. The refuge protects 

island habitat that would possibly be developed to accommodate increased 

tourism. The seasgrasses surrounding the islands are important for local 

shell fisheries and provide valuable habitat for manatees and juvenile sea 

turtles. Seahorse Key is home to one of the largest colonial wading bird 

rookeries in north Florida. 

Agreements

n Memorandum of Understanding with the Suwannee River Water 

Management District for the Service to manage Atsena Otie Key as part 

of Cedar Keys National Wildlife Refuge.

n Lease agreement with the State of Florida, Division of State Lands, for 

the Service to manage a 300-foot buffer zone of state waters surrounding 

Seahorse Key.

n Special Use Permit with the University of Florida enabling the 

University to use the Seahorse Key lighthouse and approximately 3 

acres around the lighthouse for the purposes of marine science education 

and research.

n Memorandum of Understanding between the Service and the State of 

Florida, Department of Agricultural and Consumer Services, Florida 

Division of Forestry, to provide wildfire suppression.

n Memorandum of Understanding between the Service and Levy County 

Sheriff’s Department allowing either agency to provide emergency 

assistance to the other upon request.

nWritten permission from the Levy County Board of County 

Commissioners to maintain a kiosk with interpretive information on the 

county-owned dock in the town of Cedar Key. 

Cedar Keys Pier

USFWS Allyne Askins

Atsena Otie Kiosk

USFWS Allyne Askins
38 Cedar Keys

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Mission

The mission of Cedar Keys National Wildlife Refuge is to protect, 

maintain, and enhance the unique barrier islands that compose the refuge 

for the benefit of present and future generations, while protecting the 

colonial nesting birds.

Vision Statement

The Cedar Keys National Wildlife Refuge is a group of fragile coastal 

islands that contain significant natural and cultural resources. The refuge 

will be managed for the conservation of wildlife and wildlife habitat, 

with special concern for migratory and breeding birds and threatened 

and endangered species. Management will protect cultural resources 

and support environmental education, research, and where appropriate, 

other compatible uses. Management will partner with local, state, and 

federal agencies; community organizations; and individuals to ensure the 

protection of these resources for present and future generations.

Management Alternatives

Once the key issues and concerns were identified through the scoping 

process, it was evident that the number of reasonable alternatives for 

managing this refuge was limited by its small size and the need to 

protect critical habitat and the colonial bird rookery. The Environmental 

Assessment, which is under a separate cover, contains a full review 

of the alternatives considered and their impacts on the socioeconomic, 

environmental, and cultural resources along with alternatives discussed 

but not fully developed.

Management Action

The management action (Enhance Protection with Public Awareness and 

Education) was selected based on conformity with the refuge’s mission, 

vision, ecosystem function, current uses, and needs expressed by the public 

during the scoping process. The action will identify biological monitoring 

and research needs which will result in a better understanding of the 

use of refuge resources by threatened and endangered species, migratory 

birds, and resident wildlife. The management action will result in increased 

protection of these natural resources, cultural resources, and water quality. 

It will also result in the restoration of refuge habitats, the maintenance 

of current public use programs and facilities, and the development of an 

expanded environmental education program. 

Management Direction

Young Ibis

USFWS ©Ken Sourbeer

Great Egret

USFWS ©Bruce Colin
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An overriding concern, reflected in 

the plan, is that wildlife conservation 

assumes first priority in refuge 

management. Public uses will be 

allowed—where compatible, and if 

they do not negatively affect the 

fragile flora and fauna of the refuge. 

Wildlife-dependent uses such as 

environmental education and 

interpretation, wildlife observation, 

wildlife photography, and fishing will 

be the emphasized. Improved 

outreach and environmental education 

will inform school students, local 

citizens, and tourists of the rich 

cultural and natural history and the 

need to protect these resources. 

Extensive wildlife and plant 

inventories, as well as monitoring 

programs, will be initiated to develop 

the biological information needed to 

make management decisions. 

Resource protection will be increased 

through better staffing and outreach. 

Partnerships will be improved and 

developed to increase environmental 

awareness and to achieve wildlife and 

habitat objectives. 

The end result is a set of goals, objectives, and strategies related to key 

issues that will guide management of the refuge for the next 10 to 15 

years. 

Goals, Objectives, and Strategies to Support the Management Action

Four management goals for the refuge were developed from several 

workshops held during the scoping process.

n Wildlife and Habitat Manage and conserve the natural diversity, 

abundance, and ecological function of refuge flora and fauna, with an 

emphasis on protecting the colonial wading bird rookery of Seahorse 

Key, threatened and endangered species, and species of special concern 

in the State of Florida.

n Resource Protection Protect natural, cultural, and wilderness resources 

of the refuge to ensure their integrity and to fulfill the mission of the 

National Wildlife Refuge System.

n Public Use Provide opportunities for environmental education and 

interpretation and wildlife-dependent recreation when compatible with 

the purpose, mission, and vision of the refuge, provided these activities 

will not negatively affect critical or sensitive habitats.

n Partnerships Promote collaboration and partnerships with private citizens 

and other agencies to increase research and environmental education 

opportunities and to protect the coastal ecosystem.

The goals, objectives, and strategies are the Service’s response to the 

issues and concerns expressed by the planning team and the general public 

at the workshops, public meetings, and in the comment packet, and will 

be used to implement the management action. These goals, objectives, 

and strategies reflect the refuges’s commitment to achieving the missions 

of the Service and of the National Wildlife Refuge System; ecosystem 

priorities; refuge purposes, mission and vision; and the expressed needs of 

the public—provided that necessary funding requirements are met.

Cub Scouts

USFWS Allyne Askins

Planning Team

USFWS Allyne Askins
40 Cedar Keys

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Wildlife and Habitat

Goal

1. Manage and conserve the natural diversity, abundance, and 

ecological function of refuge flora and fauna, with an emphasis 

on protecting the colonial wading bird rookery, of Seahorse Key, 

threatened and endangered species, and species of special concern 

in the State of Florida.

Objective

1.1 Continue to monitor colonial bird nesting.

Strategies

1.1.1 Conduct colonial bird rookery flight line surveys at 

Seahorse Key annually from March through June to 

determine species present and to develop population 

indices.

1.1.2 Conduct an aerial survey of pelican nests on Seahorse 

Key annually to determine the nesting population.

1.1.3 By 2002, develop an unintrusive method to estimate 

nesting success. 

Objectives

1.2 Continue efforts to reestablish colonial nesting on Snake 

Key. Refuge records indicate that Snake Key was the 

primary refuge island used by white ibis for nesting prior 

to the late 1960s.

Strategies

1.2.1 Continue to remove raccoons (if present) 

from the island using snares, live traps, and by 

shooting.

1.2.2 Continue to use decoys annually (February through 

June) to attract colonial birds to the island.

1.2.3 By 2002, explore and determine other methods of 

restoring nesting bird use to the island.

Objective

1.3 Continue to monitor bald eagle nests.

Brown Pelicans

USFWS ©Ken Sourbeer
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Strategies

1.3.1 Conduct annual surveys of eagle nests to determine 

nesting success and number of young fledged.

1.3.2 In 2002, locate bald eagle nests using a GPS system. 

By 2006, develop an eagle management layer on the 

refuge’s GIS data base.

Objective

1.4 Continue to monitor osprey nesting.

Strategies

1.4.1 Conduct annual surveys of osprey nests on the 

refuge to determine nesting success and number of 

young fledged.

1.4.2 Annually inspect and evaluate artificial nesting 

platforms. Repair, add new platforms, relocate, or 

remove platforms depending on use and need.

1.4.3 In 2002, locate all osprey nests and platforms. 

By 2006, using a GPS system, develop an osprey 

management layer on the refuge’s GIS data base.

Objective

1.5 Identify exotic plant and animal species on the refuge and 

develop strategies to eliminate or control them.

Strategy

1.5.1 Continue to actively pursue the elimination of 

Brazilian pepper trees from the refuge using the 

recommended herbicide.

Objective

1.6 By 2005, develop a list of the flora and fauna present on 

the refuge.

Ibis

USFWS Ken Litzenberger

Osprey on Platform

USFWS 
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Strategy

1.6.1 By 2006, locate flora using a GPS unit to create 

a management layer in the GIS database and to 

monitor habitat changes over time.

Objective

1.7 Determine the importance of Cedar Keys Refuge to 

resident and migratory birds.

Strategies

1.7.1 Continue to conduct the annual Audubon Christmas 

bird count.

1.7.2 In 2001, initiate an annual breeding bird survey for 

the islands.

1.7.3 In 2001, initiate a shorebird survey for the islands to 

be conducted each spring and fall. Data collected will 

be provided to the Manomet Bird Laboratory for the 

nationwide shorebird database. 

1.7.4 By 2003, identify necessary feeding and loafing areas 

and, if necessary, protect them from 

disturbance through closure.

Objective

1.8 By 2010, conduct a Biological Review. Ideally, this review 

would have occurred prior to the initiation of this plan. It 

will be necessary, however, to conduct this review prior to 

its revision to determine if outlined biological strategies and 

the wildlife management plan are resulting in good science 

and sound management practices.

Resource Protection

Goal

2. Protect the natural, cultural, and wilderness resources of the 

refuge to ensure their integrity and to fulfill the mission of the 

National Wildlife Refuge System.

Objective

2.1 Continue to protect the colonial bird rookery from human 

disturbance.

Strategies

2.1.1 Annually, maintain a Closed Area around the island 

with a 300-foot buffer zone from March 1 through 

June 30.

2.1.2 Continue to conduct regular law enforcement patrols 

during the nesting season to enforce the closed area 

regulations.

Objectives

2.2 Protect the bald eagle nests by monitoring disturbance and, 

if necessary, close areas around the nests to the public 

during the nesting season.

2.3 By 2005, revise and update the refuge’s Law Enforcement 

Plan.

2.4 Identify lands that will improve resource protection and aid 

in fulfilling the mission and purpose of the refuge and seek 

funding to acquire those lands. 

Atsena Otie Beach

USFWS

Treating Brazilian Pepper

USFWS Ken Litzenberger 
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Strategy

2.4.1 By 2006, conduct a Wilderness Review. The 

purpose of a Wilderness Review is to determine 

if any additional refuge lands or waters meet the 

qualifications of wilderness. Any lands determined 

to meet these criteria will then be nominated for 

inclusion as wilderness areas. 

Objective

2.5 Protect refuge cultural resources in accordance with federal 

and state historic preservation legislation and regulations.

Strategies

2.5.1 Conduct law enforcement patrols at all known 

archaeological sites on a regular basis to inspect for 

disturbance and illegal digging and looting.

2.5.2 Maintain historical buildings and sites listed on 

the National Historic Register in accordance with 

appropriate guidelines. 

2.5.3 By 2003, compile a comprehensive literature review 

of past archaeological, anthropological, and historical 

investigations within and near the refuge. 

2.5.4 By 2005, produce an annotated bibliography to 

document the region’s history.

2.5.5 By 2006, develop a GIS layer for the refuge’s 

archaeological and historic sites.

2.5.6 By 2008, procure funding to inventory, analyze, 

and curate the archaeological collections from the 

1990s excavations of three shell middens located on 

Seahorse Key.

2.5.7 By 2010, develop and implement a plan to protect 

identified archaeological sites in consultation with the 

Regional Archaeologist, State Historic Preservation 

Office, Native American tribes and the professional 

archaeological community. (Resource Project 6)

Seahorse Key Lighthouse

USFWS
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Public Use

Goal

3. Provide opportunities for environmental education and 

interpretation and wildlife-dependent recreation when compatible 

with the purpose, mission, and vision of the refuge, provided these 

activities will not negatively affect critical or sensitive habitats.

Objective

3.1 Maintain and expand partnerships with the Suwannee 

River Water Management District, local government, 

and interested organizations to promote and provide 

interpretation and wildlife-dependent recreation on Atsena 

Otie Key.

Strategies

3.1.1 Continue, in partnership with Cedar Key Historic 

Society, to identify historic features of the island and 

develop outreach materials to interpret them.

3.1.2 Maintain existing interpretive kiosk and panels, trail, 

and restroom to ensure visitor safety and comfort.

3.1.3 By 2004, develop interpretive materials for the 

natural and cultural features of the island. (Resource 

Project 7)

Objective

3.2 Expand partnership with University of Florida to promote 

environmental education and outreach to 2,000 students 

annually.

Strategies

3.2.1 Continue to hold annual open house tours of the 

lighthouse and surrounding facilities.

3.2.2 By 2005, develop an interpretive video about the 

refuge to be viewed by user groups of the Marine 

Laboratory.

Objective

3.3 Expand partnership with the Levy County School District 

for educational opportunities on the refuge.

Strategies

3.3.1 By 2002, develop at least three refuge specific lesson 

plans on wetlands and wetland species for local school 

teachers and community organizations.

3.3.2 By 2003, become more involved with the 

Interdisciplinary Watershed Education Program by 

providing refuge projects and programs for the 

students.

3.3.3 By 2004, develop teacher workshop materials and 

host a teacher workshop at the marine laboratory and 

lighthouse of Seahorse Key.

3.3.4 By 2005, become an active partner with the Levy 

County School District, the University of Florida, 

and the Florida Fish and Wildlife Conservation 

Commission’s Cedar Key Marine Lab in the 

development of a Marine Environmental Education 

Center in Cedar Key. (Resource Project 5)

Bird Watching at Cedar Keys

USFWS Ken Litzenberger
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Objective

3.4 Provide wildlife observation, interpretation, and 

photography opportunities throughout the year for 30,000 

visitors annually, while protecting important coastal habitat 

and water quality. 

Strategies

3.4.1 Continue partnership with Levy County Board of 

Commissioners and the Suwannee River Water 

Management District to provide interpretive 

materials which are located on the county-owned 

dock in Cedar Key.

3.4.2 Continue to maintain and update refuge brochures 

and web pages to provide the most up-to-date and 

accurate information possible.

3.4.3 In 2001, develop a “Friends of the Refuge” group 

and expand the volunteer program to assist with 

educational and outreach efforts.

3.4.4 By 2002, develop and provide interpretive materials 

about the refuge to marinas and commercial boat 

tour and boat rental operations. This will better 

inform 10,000 visitors annually about the role of the 

refuge in the coastal ecosystem.

3.4.5 By 2002, identify site for visitor center for 

Cedar Keys and Lower Suwannee National Wildlife 

Refuges that would provide both indoor and outdoor 

environmental education classrooms and display 

space. (Resource Project 2)

Partnerships

Goal

4. Promote collaboration and partnerships with private citizens and 

other agencies to increase research and environmental education 

opportunities and to protect the coastal ecosystem.

Objectives

4.1 Continue to seek additional contacts with the University of 

Florida, Departments of Zoology and Wildlife Ecology to 

expand refuge-based research. (Resource Projects 3, 4, & 8)

4.2 By 2002, through cooperation with the University of 

Florida Marine Research Lab, identify and secure funding 

for research projects that will aid in the protection and 

management of trust resources on and around Cedar Keys. 

(Resource Project 4)

4.3 By 2003, develop and submit a grant to the National Fish 

and Wildlife Foundation and a matching cooperator for an 

outreach or educational project. 

4.4 Seek mutual cooperation with recognized Native American 

tribes in Florida to protect Native American sites on the 

refuge.

4.5 By 2003, negotiate and implement a long-term 

archaeological research agreement with the Department of 

Anthropology at the University of Florida and the Museum 

of Natural History.

National Wildlife Refuge Week Canoe Tour

USFWS 
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Partnerships

A key component to implementing this comprehensive conservation 

plan is the establishment, development, and expansion of partnerships. 

Significant existing partnerships that have improved the refuge include 

the University of Florida, Suwannee River Water Management District, 

Levy County Board of County Commissioners, and Cedar Key Chamber of 

Commerce. Local organizations that have contributed to the operation of 

the refuge include Cedar Key Historical Society, Cedar Key Garden Club, 

and The Nature Coast Conservancy. In addition, private individuals who 

volunteer to assist with various projects have been and will continue 

to be an important partnership factor. Personal contacts and working 

relations have been established with other organizations including Florida 

Fish and Wildlife Conservation Commission’s Cedar Key Marine Research 

Laboratory, Cedar Key Schools, Levy County School District, and Cedar 

Key Town Commissioners. 

Partnerships with state environmental agencies, local educational agencies, 

and local citizens—if strengthened—have the greatest potential to benefit 

refuge resources. Research, biological, and environmental monitoring 

programs will be strengthened through closer partnerships with 

the Suwannee River Water Management District, the University of 

Florida and the Florida Fish and Wildlife Conservation Commission. 

Environmental education and greater ecological 

awareness will be improved through expanded 

partnerships with the University of Florida, the Florida 

Fish and Wildlife Conservation Commission, and the 

Levy County School District. The limiting factors to 

educational and biological partnerships are the lack of 

funding and staffing to nurture these programs. 

Many other agencies and organizations exist at the 

local, regional, and state level that have or can 

contribute to the refuge through partnerships. The 

number of partnerships generated is limited only by 

our imagination and the level of commitment by the 

Service.

Annual Work Plans

Future annual work plans will be developed to 

reflect the priorities and intent of this comprehensive 

conservation plan. When discretionary funding and staff are available, 

these work plans will be used to implement components of the 

comprehensive conservation plan.

Step-Down Management Plans

This comprehensive conservation plan provides conceptual guidance 

for potential future expansion, management, and development of the 

refuge. Step-down management plans are individual and subject-specific. 

Examples of step-down plans are fire, forestry, and hunting. The 

refuge’s approved step-down plans are listed below. Before implementing 

strategies and projects, some of these specific plans may need revisions 

while others will need to be developed.

Approved Plans

nAircraft Pre-Accident Plan and Hazard Map Aircraft are used for fire control, 

habitat monitoring and biological surveys. The objective of this plan is to 

outline general procedures to be followed during routine flights and flight 

emergencies. (Revised 5/6/94).

Dock Panels

USFWS Allyne Askins

Fishing

USFWS Ken Litzenberger

Plan

Implementation
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nContinuity of Operations Plan It is important to maintain the capability to 

perform essential activities and functions under all circumstances and 

situations, including human-caused, natural, technological, and national 

security emergencies that may occur with or without notice. This plan 

identifies functions necessary for safety and the continuity of operations. 

(Written 8/10/98)

nFire Management The purpose of the Fire Management Plan is to provide 

objectives and guidelines for managing refuge habitat. The plan provides 

a detailed program of action to implement fire management policies 

and objectives in accordance with the Fire Management Preparedness 

Handbook (621 FW). The Fire Management Plan for Cedar Keys Refuge 

is incorporated in the Lower Suwannee Refuge plan. (Approved 1/8/97) 

n Hurricane The objective of this plan is to outline general procedures to be 

followed during and after hurricanes which may occur on or near Lower 

Suwannee and Cedar Keys Refuges. (Approved 12/17/90)

n Pest Control The purpose of this plan is to identify methods to reduce 

or eliminate raccoons on Snake Key in an effort to restore the island to 

colonial nesting birds. It was revised in January 2000. (Approved 5/21/93)

Approved Plans, Scheduled for Revisions

n Law Enforcement This plan is incorporated in the plan for Lower 

Suwannee National Wildlife Refuge. Its purpose is to provide refuge 

staff with a ready reference to Service, regional and state policies, 

procedures, and programs concerning refuge law enforcement activities. 

The present plan was approved on March 29, 1988, and is outdated. It 

will be revised by 2005.

nVisitor Services Management Plan (Public Use Management Plan) The 

purpose of the Public Use Management Plan, now referred to as the 

Visitor Services Management Plan, is to outline strategies to accomplish 

the refuge’s public use goals without compromising the original purpose 

for which the refuge was established. The refuge’s plan is incorporated 

in the plan for Lower Suwannee National Wildlife Refuge (Approved 

1/7/86). It will need to be revised in the year 2003.

n Fishing The purpose of the Fishing Plan is to identify public fishing 

opportunities on the refuge. It was approved on 1/8/85. To be revised by 

2001, it will be incorporated in the Visitor Services Management Plan.

n Wildlife Management Plan (Wildlife Inventory Plan) The purpose of the 

Wildlife Inventory Plan is to establish which species to inventory, 

standard techniques for conducting the inventories, and projected costs 

(Approved 4/21/86). This plan is now obsolete. A Wildlife Management 

Plan will be written to replace this plan. This project is to be completed 

by 2004.

Needed Plans or Reviews

nCultural Resource Management Plan The purpose of this plan will be 

to clearly delineate the historic preservation process for the refuge, 

develop strategies to identify and assess the refuge’s historic properties, 

identify appropriate site protection measures, and identify current and 

potential partners. The plan shall be in place by 2010.

nBiological Review Ideally, this review would have occurred prior to the 

initiation of this comprehensive conservation plan. It will be necessary 

to conduct a Biological Review prior to revision of the plan to determine 

if biological strategies outlined in both it and the Wildlife Management 

Plan are resulting in good science and sound management practices. This 

review should occur by 2010.

nWilderness Review The purpose of a Wilderness Review is to determine 

if any additional refuge lands or waters meet the characteristics of 

wilderness. Any lands determined to meet these criteria will then be 

nominated for inclusion as wilderness areas. The Wilderness Review will 

be conducted by 2006.
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Funding and Staffing

Cedar Keys National Wildlife Refuge has no staff and receives no funding. 

All protection, management, biological monitoring, and public outreach are 

accomplished with funds and staff from Lower Suwannee National Wildlife 

Refuge, when those resources are available. Cedar Keys Refuge is small 

and does not require a large staff, but its natural and cultural resources are 

important, and use of the refuge’s pristine beaches and natural maritime 

forests by the public is increasing. In 1970, there were an estimated 900 

visitors to the refuge and 600 of them were associated with the University 

of Florida’s use of the marine science laboratory on Seahorse Key. In 

1980, there were 2,800 visitors to the refuge and in 1999, there were 

approximately 30,000 visitors. To meet this growth and to properly manage 

and protect these resources, Cedar Keys Refuge must receive funding and 

staff. 

Biological monitoring, research, and coordination with other resourceresearch-oriented agencies, as outlined in the objectives under goal 

number one of this plan, can only be accomplished by having a full-time 

biologist position to oversee the biological program of Cedar Keys Refuge. 

Concerning environmental education and outreach, only minimal efforts 

will be made unless a person dedicated full time to nurture these programs 

is hired. This person would have dual responsibilities for both Lower 

Suwannee and Cedar Keys Refuges. Tremendous potential exists for 

programs with local and state partners as well as outreach to many 

visitors if an outdoor recreation planner/environmental education specialist 

is hired. In addition to the biologist and outreach positions, a technician 

is necessary to maintain facilities, signs, and equipment; conduct law 

enforcement patrol for protection of resources and visitors; and to assist 

with biological monitoring efforts. The secondary assistant refuge manager, 

or refuge operations specialist, stationed at Lower Suwannee Refuge for 

the purpose of career development, will be given the responsibility of 

overseeing daily operations of Cedar Keys Refuge. A minimum of three 

staff people and appropriate operational funding is needed in order to 

complete the objectives and strategies of this plan. 

Funding can come through a variety of internal and external sources. 

Refuge maintenance and operation funds should be allocated. The Service 

also needs to explore ways to leverage dollars through new and innovative 

matching grant programs with public and private sources. Without funding, 

the refuge will continue to operate at its present minimal level with the 

Service being unable to meet its mandates to protect natural resources and 

provide public use.

Resource Projects

Several resource projects directly support the refuge’s goals and 

objectives. They do not necessarily fit under one particular goal, but rather 

support several goals. 

Project 1

Initial Base Funding Base funding is needed to employ personnel and 

cover normal, routine expenses. Three new staff positions and their 

connection to refuge goals are identified in the funding and staffing section 

of this plan. These positions will require equipment and transportation and 

will increase utility expenses (fuel, electricity, telephone). The estimated 

initial cost for these three full-time positions including salary, benefits, 

equipment, and operation needs is approximately $300,000. The recurring 

annual cost will be approximately $250,000. 
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Comprehensive

Conservation

Plan

Project 2

Administrative Facilities, Visitor Services, and Education Center 

Construction of a headquarter’s facility is needed to include a visitor center 

with interpretive displays, exhibits, and book store; an environmental 

education classroom; a large conference room; and six administrative 

offices. This facility will be in a location that supports both Cedar Keys 

and Lower Suwannee Refuges and serves a large number of visitors. The 

estimated construction cost is $2,000,000.

In lieu of a visitor center, a smaller administrative office and visitor contact 

station could be constructed. This facility could still support both refuges 

and have space enough for minor exhibits and a meeting room. The cost 

for the project will be approximately $400,000. (The costs associated with 

either facility are identified in the projects listed in the Lower Suwannee 

National Wildlife Refuge Comprehensive Conservation Plan and do not 

represent additional funding needs.)

Project 3

Study of Mercury Contamination at Seahorse Key Compared with Other 

Rookeries in Florida In 1998, the Seahorse Key colonial bird rookery 

was used as the control site in a comparison of contaminated sites to 

distinguish the effect of mercury on juvenile survival, as well as to 

determine the relative importance of mercury in the egg and mercury 

acquired through food as a nestling. Surprisingly, mercury levels in white 

ibis and great egret chicks at Seahorse Key were found to be some of 

the highest in the state. In 1999, the statewide sample was not collected, 

but the sample at Seahorse Key was continued in an effort to determine 

the source of the mercury concentration. Mercury levels in 1999 were 

approximately 63 percent lower than in the previous year. Researchers 

also conducted following flights to identify where the adult birds were 

feeding. The data suggest that most birds are feeding in salt marshes. 

Traditionally, the birds used predominantly freshwater areas for feeding. 

However, during the 1999 survey the area experienced drought conditions 

and fresh water was limited. This study will continue the research to 

determine where the birds from the rookery are foraging and if the 

source of mercury is from the freshwater wetlands where they forage. The 

approximate cost of this project is $50,000.

Project 4

Amphibian and Reptile Population Dynamics Refuge islands support 

healthy amphibian and reptile populations, including high densities of 

venomous snakes. Due to habitat conditions on the islands, the lack of 

standing fresh water, and dependence on colonial birds for food, these 

populations and their dynamics and relationships to avian use need to be 

assessed. An extension of this study will be the mercury contamination 

study of project number 3. The snakes feed on eggs, young birds, and 

dropped food that adult birds bring to the nest for their young. The 

mercury levels of the birds should be reflected in the snakes. The 

University of Florida is interested in this research and will provide 

professors and students as principal investigators. The research will take 

2-3 years to complete at an estimated cost of $120,000.

Project 5

Develop Education Facilities Comments from the public during the 

scoping process clearly indicated the need for and support of improved 

environmental education opportunities. The refuge is part of the Aquatic 

Education Advisory Committee in Cedar Key with Florida’s Marine 

Research facility, the University of Florida, and Levy County Schools. 

This committee has identified the need for an outdoor classroom facility 

in Cedar Key, off refuge property. Ideally, it could be located next to 

the state’s research facility, and include a pole shed type structure with 

White Ibis

USFWS ©Bruce Colin
50 Cedar Keys

CEDAR KEYS

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan

 

 PROJECTS ONE TIME COST FIRST YEAR NEED RECURRING BASE

 1. Initial Base Funding $300,000 $250,000

 2. Visitor Center et al. **1 **

 3. Mercury Study 50,000

 4. Amphibian Study 120,000

 5. Educational Facilities 100,000 5,000

 6. Archaeological Study **1

 7. Atsena Otie Key Enhancements 20,000

 8. Sea Turtle Use 50,000

running water, electricity, wet and dry diagnostic tanks; and facilities 

for lodging and feeding the students. These facilities could serve school 

children of all ages, not only in the tri-county area, but throughout the 

state. The Service’s share of the cost is estimated at $100,000.

Project 6

Archaeological and Historical Survey A comprehensive archaeological 

survey of the refuge should be conducted. A portion of the Cedar Keys 

Historic and Archaeological District, listed on the National Register 

of Historic Places, is on the refuge. Included in the district are a 

number of Native American sites, many dated between 500 B.C. and 

12 A.D.; the town of Atsena Otie Key; the Seahorse Key Lighthouse; 

and several Native American and historic period cemeteries. This 

project is critical to identifying, mapping, protecting, and interpreting 

the refuge’s cultural resources. The estimated cost is $200,000 

and is included in the Lower Suwannee National Wildlife Refuge 

Comprehensive Conservation Plan. 

Project 7

Atsena Otie Key Enhancements Depending on the tides, the deck of 

the public dock at Atsena Otie Key is 6 to 8 feet above the water. In 

order to improve visitor safety, hand rails need to be constructed on 

both sides of the 400-foot-long dock. In 1999, a kiosk was constructed 

on Atsena Otie Key. It provides general information about Cedar Keys 

National Wildlife Refuge and its history. Additional information panels 

are needed along the trail and a map panel is needed at the kiosk. 

Interpretive panels will improve the visitor experience and provide 

information about the natural and cultural resources. The estimated 

cost for this project is $20,000. 

Project 8

Sea Turtle Population Use The near shore habitat along the northcentral Gulf coast of Florida is important summering grounds for three 

sea turtle species: loggerhead, green, and Kemp’s ridley. The Kemp’s 

ridley sea turtle is the most endangered of the seven extant marine 

turtle species. Grassbed, channel, and flats habitats are important 

feeding areas for all three species. Such habitat in the Suwannee Sound, 

including miles of refuge coastline, may be critical to survival of the 

Kemp’s ridley. This study will inventory sea turtles, determine relative 

abundance, identify patterns of habitat use, and determine seasonal use. 

The estimated cost for the study is $50,000. 

Table 3. Funding Needs for Special Resource Projects of Cedar Keys National Wildlife Refuge

1 Project shared with Lower Suwannee Refuge; funding was identified in the Lower 

Suwannee Refuge Resource Project Funding Table.
 Comprehensive Conservation Plan 51

CEDAR KEYS

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan

Volunteers

Volunteer assistance to the refuge continues to be stable. The number 

of volunteers is low, but those individuals who do volunteer have made 

substantial contributions to the refuge. Students, local organizations, and 

retired individuals have provided volunteer assistance. However, many 

opportunities exist through the implementation of this comprehensive 

conservation plan and through staffing to greatly expand volunteer 

involvement. The formation of an official, registered “Friends Group” for 

Lower Suwannee and Cedar Keys National Wildlife Refuges will provide 

a source for recruiting interested citizens, developing meaningful projects 

for volunteers, and accomplishing refuge goals and objectives.

Monitoring and Evaluation

As indicated throughout this comprehensive conservation plan, the 

importance of monitoring flora and fauna and evaluating the effects of 

visitor use is critical to obtaining the stated goals and objectives. This 

plan will be augmented by revised, step-down management plans that will 

address specific types of monitoring and targeted species. Every 5 years 

the plan will be reviewed to document progress and reassess direction. 

Public involvement in evaluating progress and implementation will be 

encouraged.

Since Cedar Keys National Wildlife Refuge is a collection of small 

coastal islands with limited resources, monitoring is very important and 

achievable. Although not all inclusive, monitoring priorities include:

n colonial bird rookery

n neotropical bird use

n predation

n exotic species control

n natural vegetative communities

n aquatic grass beds

nwater quality

n public use and impacts

n cultural resources

Brazilian Pepper

USFWS ©Ken Litzenberger
52 Cedar Keys