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Table of Contents

INTRODUCTION________________________________________________1

Mission of the National Wildlife Refuge System ___________________________________ 1

Description of the Refuges ____________________________________________________ 1

Purpose of and Need for Plan __________________________________________________ 1

Overview of the Department of the Interior________________________________________ 3

Mission of the Fish and Wildlife Service _________________________________________ 3

Ecosystem Management and Priorities __________________________________________ 3

Legal Policy, Administrative Guidelines, and Other Considerations ____________________ 5

PLANNING ISSUES AND OPPORTUNITIES___________________________5

Overview of the Public Involvement Process ______________________________________ 5

Scope of Issues, Concerns and Opportunities _____________________________________ 6

LOWER SUWANNEE NATIONAL WILDLIFE REFUGE ____________________7

Background Information ______________________________________________________ 7

Location _______________________________________________________________ 7

History ________________________________________________________________ 7

Purpose _______________________________________________________________ 7

Function within the Ecosystem ___________________________________________ 8

Agreements____________________________________________________________ 8

Management Direction _______________________________________________________ 8

Mission ________________________________________________________________ 8

Vision Statement ______________________________________________________ 10

Management Alternatives ______________________________________________ 10

Management Action____________________________________________________ 10

Goals, Objectives and Strategies _________________________________________ 11

Plan Implementation________________________________________________________ 22

Partnerships __________________________________________________________ 22

Annual Work Plans_____________________________________________________ 23

Step-Down Management Plans __________________________________________ 23

Funding and Staffing ___________________________________________________ 25

Resource Projects _____________________________________________________ 25

Volunteers ____________________________________________________________ 33

Monitoring and Evaluation ______________________________________________ 34

CEDAR KEYS NATIONAL WILDLIFE REFUGE _________________________35

Background Information _____________________________________________________ 35

Location ______________________________________________________________ 35

History _______________________________________________________________ 35

Purpose ______________________________________________________________ 35

Function within the Ecosystem __________________________________________ 37

Agreements___________________________________________________________ 37

Management Direction ______________________________________________________ 38

Mission ______________________________________________________________ 38

Vision Statement ______________________________________________________ 38

Management Alternatives ______________________________________________ 38

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Management Action____________________________________________________ 38

Goals, Objectives and Strategies _________________________________________ 39

Plan Implementation________________________________________________________ 46

Partnerships __________________________________________________________ 46

Annual Work Plans_____________________________________________________ 46

Step-Down Management Plans __________________________________________ 46

Funding and Staffing ___________________________________________________ 48

Resource Projects _____________________________________________________ 48

Volunteers ____________________________________________________________ 51

Monitoring and Evaluation ______________________________________________ 51

APPENDIX A. ________________________________________________53

Legal Mandates____________________________________________________________ 53

Service-Wide Policy Directions _______________________________________________ 55

APPENDIX B. ________________________________________________57

The Public Involvement Process

Value Statements________________________________________________________ 58

Keys Issues and Concerns Summary_________________________________________ 59

Attachment One: Summary of 

Public Scoping Comments ____________________________________________ 65

Attachment Two: Notes from the

Public Scoping Meeting, September 21,1999 ____________________________ 66

Attachment Three: Notes from the

Public Scoping Meeting, July 27, 1999 __________________________________ 68

Attachment Four: Background Information,

Comment Sheet, and Mailing Request Form ____________________________ 70

Attachment Five: Planning Update____________________________________ 77

APPENDIX C. ________________________________________________83

Mailing List of Agencies and Individuals

APPENDIX D. ________________________________________________87

Comments and Service Responses to the Draft Comprehensive Conservation Plans

APPENDIX E. _________________________________________________95

References

APPENDIX F. _________________________________________________99

Glossary of Terms

APPENDIX G. _______________________________________________ 103

Refuge Operational Needs System

Maintenance Management System 

APPENDIX H. _______________________________________________ 105

Federal and State Listed Species

APPENDIX I. ________________________________________________ 121

Lower Suwannee National Wildlife Refuge Compatibility Determination 
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APPENDIX J. ________________________________________________ 133

Cedar Keys National Wildlife Refuge Compatibility Determination 

APPENDIX K. _______________________________________________ 141

Intra-Service Section 7 Consultation

APPENDIX L. ________________________________________________ 145

List of Preparers

FIGURES

1. Organizational Chart of the Fish and Wildlife

Service within the U.S. Department of the Interior _______________________________ 2

2. North Florida Ecosystem Map, Fish and Wildlife Service __________________________ 4

3. Vicinity Map, Lower Suwannee National Wildlife Refuge _________________________ 9

4. Organizational Chart for Lower Suwannee and

Cedar Keys National Wildlife Refuges _______________________________________ 26

5. Land Acquisition Map, Lower Suwannee National Wildlife Refuge_________________ 29

6. Vicinity Map, Cedar Keys National Wildlife Refuge _____________________________ 36

TABLES 

1. Inholdings Within the Approved Boundary of

Lower Suwannee National Wildlife Refuge ___________________________________ 30

2. Funding Needs for Special Resource Projects of

Lower Suwannee National Wildlife Refuge ___________________________________ 33

3. Funding Needs for Special Resource Projects of

Cedar Keys National Wildlife Refuge ________________________________________ 50

4. Federal and State Listed Species that Occur or

May Potentially Occur on Lower Suwannee National Wildlife Refuge _____________ 105

5. Federal and State Listed Species that Occur or

May Potentially Occur on Cedar Keys National Wildlife Refuge __________________ 109

6. Priority Bird Species for South Atlantic Coastal Plain __________________________ 111

7. Species Suites for Lower Suwannee and

Cedar Keys National Wildlife Refuges ______________________________________ 119
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INTRODUCTION

Mission of the National Wildlife Refuge System

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. 

Description of the Refuges

Located along the southern edge of the Big Bend Region of Florida’s 

west coast, Lower Suwannee and Cedar Keys National Wildlife Refuges 

represent two jewels of the National Wildlife Refuge System (Fig. 2). 

Lower Suwannee National Wildlife Refuge was established on April 10, 

1979, for the purpose of protecting, maintaining, and enhancing a rare 

and beautiful ecosystem. The refuge, which is predominantly wetlands, 

is bisected by 20 miles of Stephen Foster’s famous Suwannee River 

and includes 20 miles of coastal marsh habitat along the Gulf coast. 

The salt marshes and tidal flats at the river’s mouth are a paradise for 

shorebirds and fish. The refuge also encompasses an unusual diversity 

of floodplain hardwoods; cypress-lined sloughs; cabbage palm and cedar 

islands; cypress domes; hydric, mesic, and xeric hardwood hammocks; and 

low pine flatwoods. 

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

to protect a breeding ground for colonial nesting migratory birds. Today, 

the refuge is comprised of 13 islands ranging in size from 1 to 120 acres 

and totaling 762 acres. Four of the islands, Snake, Seahorse, North and 

Deadman Keys, are designated Wilderness Areas. Additionally, Atsena 

Otie Key is state-owned and managed as part of Cedar Keys National 

Wildlife Refuge through a Memorandum of Understanding. Cedar Keys 

Refuge ranks as one of the largest nesting areas for colonial wading birds 

in north Florida.

Purpose of and Need for the Plan

Under the provisions of the National Wildlife Refuge System 

Improvement Act of 1997, the U. S. Fish and Wildlife Service is required 

to develop comprehensive conservation plans for all lands and waters of 

Introduction

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USFWS Ken Litzenberger

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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 these plans. 

The following Comprehensive Conservation Plans and have been prepared 

for the Lower Suwannee and Cedar Keys National Wildlife Refuges, 

located in Levy and Dixie Counties, Florida. Their purposes are to identify 

the roles the refuges will play to support the mission of the National 

Wildlife Refuge System and the North Florida Ecosystem. The plans 

outline issues, concerns, and opportunities expressed to the Service during 

a series of public scoping meetings, workshops, and on comment sheets. 

They also provide a description of desired future conditions and propose 

long-range guidance to accomplish the purposes, missions, and visions of 

the refuges. This guidance is presented for each refuge in a listing of 

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

management alternatives. 

The final plans will serve as operational guides for management of these 

refuges over the next 10 to 15 years.

The plans will:

n provide a clear statement of the desired future conditions when refuge 

purposes and goals are accomplished;

n provide refuge neighbors and visitors with a clear understanding of the 

reasons for management actions on the refuge;

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

National Wildlife Refuge System;

n ensure refuge management is consistent with federal, state, and county 

plans;

n provide long-term continuity in refuge management; and

n provide a basis for operation, maintenance, and capital improvement 

budget requests.

River Trail Overlook

USFWS ©Ken Sourbeer

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Figure 1. Organizational Chart of the Fish and Wildlife Service within the U.S. Department of the Interior
Comprehensive Conservation Plan 3

Overview of the Department of the Interior

The Department of the Interior is the principal landowner of most of 

our nationally owned public lands and cultural resources. Management 

responsibilities include 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, managing the National 

Wildlife Refuge System, and providing for the enjoyment of life through 

outdoor recreation (Fig. 1).

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 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 520 national wildlife refuges 

covering more than 93 million acres 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 offering a wide variety of recreational 

opportunities. Many refuges have visitor centers, wildlife trails, and 

environmental education programs. Nationwide, more than 30 million 

visitors annually hunt, fish, observe and photograph wildlife, or participate 

in interpretive activities on national wildlife refuges. The Service also 

manages all national fish hatcheries.

Ecosystem Management and Priorities 

For the Service, the North Florida Ecosystem includes portions of south 

Georgia and most of north and central Florida (Fig 2). The area includes 

southern temperate and subtropical climates, numerous physiographic 

districts, and many unique and widely varied habitat types. The northern 

boundary of this ecosystem includes the watersheds of the St. Mary’s 

and Suwannee Rivers, including the Okefenokee Swamp. The northeast 

boundary begins at Camden County, Georgia, and proceeds down the east 

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Figure 2. North Florida Ecosystem Map, Fish and Wildlife Service
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coast of Florida to the line separating Brevard and Indian River Counties. 

The ecosystem boundary then turns west and includes Orange, Lake, and 

Sumter Counties as its southern border. The western boundary includes 

all Florida counties from Sarasota north through Taylor and Jefferson 

Counties. In Georgia, the ecosystem is inclusive of all counties east 

and south of Thomas, Colquitt, Worth, Turner, Ben Hill, Coffee, Ware, 

Charlton, and Camden Counties.

Habitats found within this ecosystem include barrier islands; xeric scrub; 

pine flatwoods; freshwater marshes, lakes, streams and springs; mixed 

hardwood/pine forests; cypress swamps and domes; dry prairies; maritime 

forests; hardwood hammocks; estuarine marshes; pine rocklands; sandhill 

woodlands; coastal strands; sawgrass prairies; sloughs; and tree islands. 

The North Florida Ecosystem team currently has three priorities which 

include restoring scrub habitat, conserving coastal habitat, and protecting 

the water quality of the Suwannee River Basin. 

Legal Policy, Administrative Guidelines, and Other Considerations

Administration of national wildlife refuges is governed by various 

international treaties, federal laws, Presidential Executive Orders and 

regulations affecting land and water, as well as by the conservation 

and management of fish and wildlife resources. Policies for management 

options for 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.

Select legal summaries of treaties and laws relevant to administration of 

the National Wildlife Refuge System and management of these refuges are 

provided in Appendix A. 

Overview of the Public Involvement Process

The Comprehensive Conservation Plans for Lower Suwannee and Cedar 

Keys National Wildlife Refuges have been prepared in compliance with 

the provisions of the National Wildlife Refuge System Improvement 

Act of 1997. Plan preparation is in compliance with the National 

Environmental Policy Act of 1969, which requires the Service to 

actively seek public involvement in the preparation of environmental 

assessments and environmental impact statements. It also requires the 

Service to seriously consider all reasonable alternatives, including a No 

Action Alternative and a Proposed Alternative. These alternatives are 

described in Environmental Assessements prepared in conjunction with 

the comprehension conservation plans for both Lower Suwannee and 

Cedar Keys Refuges.

Planning Issues

and Opportunities

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USFWS Allyne Askins

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Identification of important issues provides a sound basis for initiating 

the development of management alternatives, objectives, and strategies. 

To ensure that the future management of these refuges reflects the 

issues, concerns, and opportunities expressed by the public, a variety 

of scoping mechanisms was used. A complete description of the public 

participation process during the draft and final plan preparation is included 

in Appendices B and D.

Public Participation Highlights

nA comment packet was used to gather general information on current 

and potential refuge operations.

n Letters were mailed to affected and interested members of the public to 

inform them of the planning process and to invite their participation.

nRefuge personnel presented informative programs to community 

organizations and stakeholder groups.

nA series of stakeholder workshops and public scoping meetings were 

held to develop components of the draft plans. 

n The draft plans were distributed to approximately 300 individuals, 

organizations, agencies, and Native American tribes.

n More than 80 participants attended a public meeting to discuss the draft 

plans.

n Both written and oral comments were received during a 60-day 

comment period.

Scope of Issues, Concerns, and Opportunities

Several key issues and concerns surfaced during two public meetings, two 

stakeholder workshops, and from written comments. The planning team 

reviewed the issues and concerns raised by the approximately 100 people 

who participated in the scoping process. This list was based on the team’s 

knowledge of the area, information gathered during the scoping meetings, 

and written comments submitted by the public.

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Lower Suwannee

National Wildlife Refuge 

Location

Located along the southern edge of the Big Bend Region of Florida’s 

west coast, the Lower Suwannee National Wildlife Refuge is found in the 

westernmost part of Levy County and the southern tip of Dixie County 

(Fig. 3). The refuge is approximately 50 miles southwest of Gainesville, 

Florida.

History 

Lower Suwannee National Wildlife Refuge was established on April 10, 

1979, under the authority of the Fish and Wildlife Act to protect the lower 

Suwannee River ecosystem. The initial acquisition in 1979 was 5,300 acres 

of land at Shired Island. Additional parcels of land were acquired over a 

15-year period, until the refuge reached its present size of 52,935 acres. 

The refuge, which is predominantly wetlands, is bisected by 20 miles of 

Stephen Foster’s famous Suwannee River and includes more than 20 miles 

of coastal marsh along the Gulf coast. The refuge also encompasses an 

unusual diversity of floodplain hardwoods; cypress-lined sloughs; cabbage 

palm and cedar islands; cypress domes; hydric, mesic, and xeric hardwood 

hammocks; and low pine flatwoods. Each of these diverse vegetative 

communities contributes to making Lower Suwannee National Wildlife 

Refuge one of the largest undeveloped river delta-estuarine systems in the 

United States. 

Purpose

The purpose of Lower Suwannee National Wildlife Refuge is:

“...for the development, advancement, management, conservation, 

and protection of fish and wildlife resources....” 16 U.S.C. § 742f(a)(4)* and

“...for the benefit of the United States 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....” 16 U.S.C. § 742f(b)(1) (Fish and Wildlife Act of 1956, 

16 U.S.C. § 742f(a)-754, as amended. 

Background

Information

Aerial View of the Suwannee River

USFWS Ken Litzenberger

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Lower Suwannee National Wildlife Refuge was established to protect, 

maintain, enhance, and where appropriate, restore habitats along the 

lower reaches of the Suwannee River. The refuge also protects water 

quality and quantity through sound land resource management and 

cooperative relationships with state agencies that have jurisdictional 

authority over the water and aquatic resources therein. Further, the 

refuge provides habitat for several threatened and endangered species and 

species of special concern in the State of Florida (Appendix H).

Function within the Ecosystem

Lower Suwannee National Wildlife Refuge, along with Okefenokee 

National Wildlife Refuge, anchors the Suwannee River Basin - an area 

consisting of 10,000 square miles across two states. The primary focus 

of the Service in this ecosystem is to maintain the quality of large, 

undeveloped forested and wetland habitats in the upper and lower portions 

of the Suwannee River by linking those areas with a corridor of habitat 

along the river. The Service is also concerned with maintaining the 

quantity and quality of river flows and the rich biological heritage of the 

native plant species within the river basin. The refuge plays an integral 

role in meeting these ecosystem goals by protecting nearly 53,000 acres of 

riverine habitat and more than 20 miles of river corridor along the lower 

reaches of the Suwannee River.

Agreements 

n Memorandum of Understanding with the Suwannee River Water 

Management District for management of its 420-acre St. Petersburg 

tract, as part of the Lower Suwannee National Wildlife Refuge.

n Memorandum of Understanding that gives management authority of 

the 146-acre, Service-owned Canavan tract in Columbia County to the 

District. This property was a Farmers Home Administration property 

that the Service acquired and is adjacent to other property owned by the 

Suwannee River Water Management District.

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

Service to manage 624 acres in T 12 S, R 11 E, Section 16, as part of the 

Lower Suwannee National Wildlife Refuge.

n Lease agreement with The Nature Conservancy for the Service to 

manage the 786-acre, Conservancy-owned, Cummer tract, as part of the 

Lower Suwannee National Wildlife Refuge.

n Lease agreement with the Dixie County Board of Commissioners for the 

Commissioners to maintain the Shired Island boat ramp.

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. 

n Memorandum of Understanding between the Service and Dixie County 

Sheriff’s Department allowing either agency to provide emergency 

assistance to the other upon request.

n Memorandum of Understanding between the Service and the State of 

Florida, Department of Agricultural and Consumer Services, Division of 

Forestry, to provide wildfire suppression.

Mission

The mission of the Lower Suwannee National Wildlife Refuge is to protect, 

maintain, and enhance a significant natural ecosystem which encompasses 

flood plain hardwoods, coastal and freshwater marshes, and upland forests; 

provide optimum habitat conditions and protection for native wildlife with 

special emphasis on threatened and endangered species and migratory 

birds; provide wildlife-oriented recreational/educational opportunities to 

the public; and preserve significant archaeological sites.

Management

Direction

Paddling the Refuge Canoe Trail

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Figure 3. Vicinity Map, Lower Suwannee National Wildlife Refuge
10 Lower Suwannee

Vision Statement

The watershed and estuary of the Lower Suwannee National Wildlife Refuge 

contain valuable water resources and fish and wildlife habitat. The refuge will be 

managed for the conservation of fish and wildlife and their habitat, with special 

emphasis on the protection and restoration of wetland and upland communities. 

Education, research, and wildlife-dependent recreational opportunities will be 

available, insofar as they are compatible with refuge health and preservation. 

Management will partner with local, state and federal agencies; community 

organizations; and individuals to ensure the protection and conservation of the 

vast Suwannee River ecosystem for current and future generations.

Management Alternatives

Once the key issues and concerns were identified, the planning team determined 

a reasonable range of alternatives for managing the refuge. 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 was selected based on conformity with the refuge’s 

mission, vision, ecosystem function, and current uses, as well as on the needs 

expressed by the public during the scoping process. The action will result in a 

better understanding of the refuge resources used by threatened and endangered 

species, migratory birds, and resident wildlife; the protection and enhancement 

of these resources; the protection of water quality and quantity; the restoration 

of refuge habitats; and accessibility of the refuge to the public for compatible 

wildlife-dependent public uses.

An overriding concern reflected in the plan is that wildlife comes first in refuge 

management. Public uses are allowed and encouraged if they are compatible 

with wildlife conservation. Wildlife-dependent recreational uses such as hunting, 

fishing, wildlife observation, wildlife photography, and environmental education 

and interpretation are emphasized.

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.

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Goals, Objectives, and Strategies to Support the Management Action

Five management goals for Lower Suwannee National Wildlife Refuge 

were developed from several workshops held during the scoping process.

n Wildlife Expand scientifically based monitoring and research to support 

management decisions regarding wildlife habitat and populations.

n Habitat Restore, conserve, and enhance the natural diversity, abundance, 

and ecological function of refuge habitat, with an emphasis on managing 

habitat to benefit threatened and endangered species and species of 

special concern in the State of Florida.

n Resource Protection Protect the natural and cultural 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 in accordance with the 

National Wildlife Refuge System Improvement Act of 1997.

n Landscape Management Promote interagency and private landowner 

cooperation and partnerships for the management and protection of 

natural and cultural resources within the Big Bend Region of Florida, 

the Suwannee River Basin, and the North Florida Ecosystem to benefit 

wildlife, water quality and quantity, and the American people.

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.

Wildlife

Goal

1. Expand scientifically based monitoring and research to support 

management decisions regarding wildlife habitat and populations.

Objective

1.1 Conduct surveys of vertebrates, invertebrates, and plant 

species and habitat associations; develop monitoring 

programs for priority species; and establish targets for 

population levels. Expand current monitoring programs.

Strategies

1.1.1 Continue current monitoring program for bald eagles 

during the nesting season using aerial surveys 

to determine nest status and production. Provide 

data to the Florida Fish and Wildlife Conservation 

Commission and the Service to aid in monitoring the 

delisting of this species. 

1.1.2 Continue current monitoring program during the 

osprey nesting season to determine fledgling success 

and to evaluate overall population trends.

1.1.3 Expand the current, sporadic monitoring program 

for manatees into a regular, consistent monitoring 

program using aerial surveys of the coastal and 

riverine habitats of the refuge. Provide data to the 

Service Manatee Recovery Coordinator to aid in 

statewide monitoring and recovery efforts.

Snapping Turtle

USFWS Ken Litaenberger

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1.1.4 Continue to support the U.S. Geological Survey 

and the Service’s efforts to monitor threatened Gulf 

sturgeon that use the Suwannee River and coastal 

estuary. Provide assistance for storage, transporting, 

and setting up equipment. Assist in field research as 

needed.

1.1.5 Continue monitoring the population status and health 

of resident wildlife species (e.g., white-tailed deer 

and wild turkey) and tailor management activities 

and hunting regulations to maintain healthy and 

stable populations of game species. Use Southeastern 

Cooperative Disease Study Unit at the University of 

Georgia to monitor health of deer herd on a 5-year 

basis. 

1.1.6 By 2001, develop and implement an annual Breeding 

Bird Survey.

1.1.7 By 2001, participate in migratory shore bird surveys 

in spring and fall and provide data to the Manomet 

Laboratory.

1.1.8 By 2002, conduct a population survey of gopher 

tortoises and their habitat associations. Trap five 

tortoises and conduct blood tests to determine 

if the population harbors the respiratory disease 

which threatens this species. Beginning in 2005, 

monitor gopher tortoise populations every 5 years 

to determine long-term population trends. (Resource 

Project 4)

1.1.9 By 2003, conduct furbearer counts, determine their 

effects on the ecosystem, and develop population 

management strategies (e.g., hunting and trapping) 

to promote diversity and stability among species and 

their habitats.

1.1.10 By 2003, initiate a nesting survey of swallow-tailed 

kites to be conducted every 5 years to determine 

long-term population trends.

1.1.11 By 2004, identify exotic plant and animal species on 

the refuge and develop a strategy to eliminate or 

control them. 

1.1.12 By 2005, partner with the University of Florida to 

conduct a survey of herpetofauna and develop a longterm monitoring technique for amphibians.

1.1.13 By 2005, partner with the Suwannee River Water 

Management District and/or the U.S. Geological 

Survey to conduct an aquatic inventory of fishes and 

mussels of the lower reaches of the Suwannee River.

1.1.14 By 2008, develop a list of significant flora and conduct 

surveys for rare and endangered plant species.

Objectives

1.2 By 2004, revise the Wildlife Inventory Plan into a Wildlife 

Management Plan which would be based on data gathered 

during initial surveys. The Wildlife Management Plan would 

guide all aspects of refuge management and be based on 

reliable data and sound techniques.

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USFWS ©Bruce Colin

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USFWS ©Bruce Colin
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1.3 By 2010, conduct a biological review of the refuge. 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 its revision to 

determine if biological strategies outlined in the plan and in 

the Wildlife Management Plan are resulting in good science 

and sound management practices. 

1.4 Develop a Geographic Information System database 

management and mapping system with plant and wildlife 

communities and management layers. (Resource Project 7).

Strategies

1.4.1 By 2003, develop a computerized database for current 

and past monitoring and research activities using 

Microsoft Access and input all available records.

1.4.2 By 2003, develop a computerized database for current 

and past forestry and fire activities using Microsoft 

Access and input all available records.

1.4.3 By 2003, maintain database and develop a query 

system to facilitate data retrieval.

1.4.4 By 2004, train professional staff in data collection and 

usage of Geographic Information System. 

1.4.5 By 2006, build Geographic Information System 

databases with several coverages including: roads; 

land cover types; prescribed burn units; timber 

sales; inholdings; hydrology; soils; wildfires; boundary 

maintenance; boundaries; breeding bird survey 

transects; data points and data; eagle nests; osprey 

nests; gopher tortoise burrows; gopher tortoise 

study transects; archaeological and cultural sites; 

topography; assets (structures and facilities); public 

use structures and trails; swallow-tailed kite nests; 

forest compartments and stands; insect/disease/

disturbance events; beaver ponds and dams; refuge 

ponds; blue bird boxes; and wood duck boxes.

Habitat

Goal

2. Restore, conserve, and enhance the natural diversity, abundance, 

and ecological function of refuge habitats, with an emphasis on 

managing habitat to benefit threatened and endangered species and 

species of special concern in the State of Florida.

Objective

2.1 Maintain habitat for migrating, wintering, nesting, and 

foraging birds, with special emphasis on threatened and 

endangered species, neotropical migratory birds, and 

colonial wading birds.

Strategies

2.1.1 Maintain existing pine and hardwood habitat for at 

least 20 pairs of swallow-tailed kites. 

2.1.2 Maintain existing nesting habitat for 4 pairs of bald 

eagles.

2.1.3 Maintain existing habitat for 30 to 40 nesting pairs 

of osprey.

2.1.4 Provide high quality foraging habitat for colonial 

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Pine Lily

USFWS Robert LeMarie
14 Lower Suwannee

wading birds by manipulating water levels in three 

existing management areas. 

2.1.5 By 2002, initiate a research project with the Service’s 

Ecological Services Division, the University of 

Florida, and the Suwannee River Water Management 

District to study mercury levels in the river and its 

tributaries and the effects on foraging wading birds.

Objective

2.2 Refine and implement a prescribed fire program to restore 

and maintain healthy, fire-dependent communities.

Strategies

2.2.1 Implement the Fire Management Plan (1997), with 

annual reviews and updates to incorporate applied 

research findings. 

2.2.2 Continue on an annual basis to use prescribed fire on 

at least 3,000 acres, using a combination of dormant 

season and growing season burns. Both uplands and 

marshlands will be burned.

2.2.3 By the 2003 fire season, initiate fire research on the 

effects of burning frequency, seasonality, and spatial 

distribution on the refuge’s pine flatwoods, mixed 

cypress, and marsh ecosystems. (Resource Project 5)

2.2.4 By 2004, investigate the impacts of prescribed 

fire on isolated wetlands in relation to restoring 

and maintaining aquatic habitats for herpetofauna 

threatened by hardwood succession caused by the 

exclusion of fire. (Resource Project 5)

Objective

2.3 Refine and implement an active forest management 

program to restore and maintain healthy and diverse forest 

communities.

Strategies

2.3.1 Plant wiregrass plugs in the longleaf pine restoration 

sites and log decks at a density of 1,000-per-acre with 

an annual average restoration of 10 acres. 

2.3.2 Maintain and promote propagation of wiregrass 

through prescribed fire. 

2.3.3 In 2001, monitor restoration efforts of native long 

leaf pine and wiregrass communities on slash 

pine conversion sites (clearcuts). Conduct seedling 

survival counts in the restoration areas to determine 

survival rate.

2.3.4 By 2002, update and implement the Forest 

Management Plan (1989).

2.3.5 By 2002, complete inventory preparations for the 

forested habitats, including inventory schedules, data 

to be collected, preparation of cruise maps based 

on refuge management compartment maps, and 

methods for analyzing data. 

2.3.6 In 2002, begin inventory of the 32,571 acres of 

forested habitats to obtain the necessary data to 

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Logging Deck

USFWS Ken Litzenberger

Planting Trees

USFWS Ken Litzenberger

Marsh Burning

USFWS Ken Litzenberger
Comprehensive Conservation Plan 15

refine forest and wildlife management strategies. A 

minimum of 3,000 acres will be inventoried annually. 

Complete the inventory project in 2011, followed by 

the necessary revisions to the Forest Management 

Plan.

2.3.7 Use commercial timber sales to thin slash pine 

plantations to promote the regeneration of early 

successional understories, provide quality habitat 

and forage for native wildlife species, and prepare 

plantations for a shift to growing season fires. 

Specific harvest schedules will be developed in the 

Forest Management Plan.

2.3.8 Monitor and evaluate the wiregrass restoration 

effort and determine if the project should continue 

past 2004. 

2.3.9 If adequate, wiregrass stands could be used as a seed 

source. Implement a seed harvest program to expand 

the restoration process, if previous restoration 

efforts are successful.

Objective

2.4 Protect wildlife habitat and water quality and quantity 

through land acquisition. (Resource Project 3)

Strategies

2.4.1 Protect important habitat for threatened Gulf 

sturgeon and water quality of the Suwanee 

River by acquiring, through fee title ownership 

or easements, the tracts identified in the 

Environmental Assessment and Land Protection 

Plan for the Expansion of the Lower Suwannee 

National Wildlife Refuge (1995).

2.4.2 Protect and restore Florida scrub jay habitat and 

provide contiguous habitat for numerous other 

species through the acquisition of the Caber Tract, if 

this land becomes available for purchase.

2.4.3 Acquire the 17 remaining privately owned properties 

(inholdings) within the original approved acquisition 

boundary of the refuge, as they become available for 

purchase.

Resource Protection

Goal

3. Protect the natural and cultural resources of the refuge to ensure 

their integrity and to fulfill the mission of the National Wildlife 

Refuge System.

Objective

3.1 Protect known archaeological and historical sites on the 

refuge from illegal take or damage in compliance with 

the Archaeological Resources Protection Act, the Native 

American Graves Protection and Repatriation Act, and the 

National Historic Preservation Act.

Strategies

3.1.1 Conduct law enforcement patrols at all known 

archaeological and historical sites on a regular basis 

to inspect for disturbance and illegal digging and/or 

looting. 

Pine Forest

USFWS ©Ken Sourbeer

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3.1.2 By 2003, compile a comprehensive literature review 

of past archaeological, anthropological, and historical 

investigations within and near the refuge. Produce 

an annotated bibliography to document the area’s 

history.

3.1.3 By 2006, inventory and GPS the refuge’s 

archaeological sites. (Resource Projects 7 and 14)

3.1.4 By 2010, develop and implement a plan to protect 

identified archaeological sites in consultation with 

the Service’s Archaeologist, the State Historic 

Preservation Office, Native American tribes, and 

the professional archaeological community. (Resource 

Project 14)

Objectives

3.2 Annually evaluate a minimum of 15 miles of refuge 

boundary. Delineate refuge boundaries with signs and paint, 

as needed.

3.3 Continue to protect refuge habitats from wildfire through 

the fire program, properly trained staff, and equipment 

readiness. The station will monitor fire conditions and 

respond according to approved plans and procedures.

3.4 Continue to protect bald eagle nests by monitoring for 

disturbance and, if necessary, by closing areas around nests 

during the nesting season.

3.5 Continue to provide visitor safety, protect resources, and 

ensure compliance with refuge regulations for more than 

100,000 annual visitors through law enforcement patrols and 

public use contacts.

Strategy

3.5.1 By 2005, revise and update the refuge’s Law 

Enforcement Plan.

Objectives

3.6 Continue to work cooperatively with local, state, and other 

federal law enforcement agencies to enhance resource 

protection.

3.7 Maintain present road system containing 50 miles of 

primary refuge roads by grading, mowing, and replacing 

culverts, as needed, for public vehicle access and for habitat 

improvement, protection, and management. 

3.8 Maintain access to secondary roads system by mowing, 

boom axing, grading, and replacing culverts, as needed, 

for habitat protection, management, and improvement for 

refuge staff and for public foot and bicycle traffic.

3.9 Identify additional lands and seek funding to acquire such 

lands that will improve resource protection and aid in 

fulfilling the mission and purpose of the refuge. 

3.10 Maintain more than $1,000,000 worth of capitalized 

equipment used in all aspects of refuge management 

including habitat, wildlife, and public use. 

Grading Roads

USFWS Ken Litzenberger

Shired Creek Bridge

USFWS Ken Litzenberger

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3.11 By 2006, conduct a wilderness review of the refuge. The 

purpose of a wilderness review is to determine whether 

any 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.

Public Use

Goal

4. Provide opportunities for environmental education and 

interpretation and wildlife-dependent recreation in accordance 

with the National Wildlife Refuge System Improvement Act of 

1997.

Objectives

4.1 By 2003, develop and implement a Visitor Services 

Management Plan.

4.2 By 2002, identify site for a visitor center or visitor contact 

station to serve both Lower Suwannee and Cedar Keys 

National Wildlife Refuges. Visitors will learn about the 

Service, the National Wildlife Refuge System, and both 

local refuges and the trust resources they protect. Seek 

funding support from Congressional representatives, local 

governments, organizations, and individuals. (Resource 

Project 2)

4.3 Develop and implement an environmental education 

program that will result in a greater understanding and 

appreciation of refuge flora, fauna, and habitats.

Strategies

4.3.1 By 2001, quarterly provide ranger- or volunteer-led 

canoe tours, wildflower and butterfly walks, and 

birding trips. 

4.3.2 By 2002, develop environmental education 

curriculum for the refuge consistent with Florida 

Department of Education (Sunshine State) 

standards.

4.3.3 By 2002, develop at least three refuge specific 

messages, complete with a teacher’s guide on 

wetlands and wetlands species for local teachers and 

community organizations. 

4.3.4 By 2003, develop teacher workshop materials and 

host an annual teacher’s workshop for environmental 

education curriculum.

4.3.5 Provide and train staff, student interns, and 

community volunteers to implement an 

environmental education program. By 2003, increase 

staff and volunteer presence in the public schools and 

the community for educational purposes.

4.3.6 By 2005, provide temporary housing and 

transportation for student interns. 

Objective

4.4 Update existing materials and develop new interpretive 

materials, including brochures, interpretive panels, kiosks, 

and exhibits that highlight refuge resources.

Cub Scouts

USFWS Allyne Askins

Fishbone Creek Observation Tower

USFWS Ken Litaenberger

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Strategies

4.4.1 By 2001, replace temporary marsh walkways with 

elevated, accessible boardwalks. To provide resting 

spots, place benches along the trail. (Resource 

Project 9)

4.4.2 By 2001, develop interpretive panels which highlight 

the Dixie County portion of the refuge. The panels 

will be included on kiosks located near the refuge, on 

property owned by the county and town of Suwannee. 

4.4.3 By 2002, develop a self-guided walking trail through 

the pine forests and marsh at Salt Creek.

4.4.4 By 2002, replace visitor’s kiosk at River Trail with a 

new structure, panels, and brochure box. (Resource 

Project 8)

4.4.5 By 2003, develop interpretive panels and build a kiosk 

at the Shell Mound Unit. Interpretive panels will 

highlight coastal habitat and associated wildlife. A 

map will be included to identify refuge lands and 

public use facilities. (Resource Project 9) 

4.4.6 By 2003, construct an observation tower at Dennis 

Creek Landing similar to the tower/disability 

accessible deck on the River Trail. (Resource 

Project 9)

4.4.7 By 2004, establish a native plants, wildflower, and 

butterfly garden at the refuge headquarters. Through 

interpretive signs and an accompanying guide, the 

area would become an outdoor classroom and serve 

as a demonstration area for “Backyard Wildlife 

Management.” 

4.4.8 By 2005, develop interpretive panels and incorporate 

into kiosks for the Dennis Creek and Shell Mound 

trails similar to those found along the River Trail. 

(Resource Project 9)

4.4.9 By 2006, construct an observation tower with 

interpretive panels overlooking an interior 

freshwater marsh/pond along the visitor loop road in 

Levy County.

4.4.10 Evaluate other areas where walking trails for 

wildlife observation might be compatible with 

the purpose and mission of the refuge or 

refuge system.

Objective

4.5 Provide opportunities for hunting and fishing 

on the refuge in a manner which minimizes 

conflicts between consumptive and 

non-consumptive user groups.

Strategies

4.5.1 Provide high quality hunting opportunities 

for small game, big game, and waterfowl 

consistent with sound biological principles and in 

accordance with the approved Refuge Hunt Plan 

(1988).

Hunter

USFWS Ken Litzenberger

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4.5.1.1 Maintain the archery-only area in Dixie 

County.

4.5.1.2 Continue to staff a centralized check station 

in each county during the general gun 

season to collect harvest data and provide a 

hunter contact point.

 4.5.1.3 Continue to monitor and evaluate the 

hunt program annually to determine health 

of game species. Modify seasons and/or 

regulations, if necessary, to ensure the 

hunt program is based on sound biological 

information and achieving management 

goals.

4.5.1.4 By 2001, increase law enforcement presence 

during hunting seasons to ensure hunter 

safety, to provide contact information, and 

to monitor compliance.

4.5.1.5 By 2002, designate non-hunting areas in 

both counties to minimize potential conflicts 

between hunters and non-hunters. Potential 

areas to be included are the property owned 

by The Nature Conservancy, Shell Mound, 

Fishbone Creek, and Shired Island. These 

areas have public use facilities (e.g., trails 

and boardwalks).

4.5.1.6 By 2002, modify deer hunting regulations 

to increase the number of does harvested. 

This will achieve a balanced sex ratio and 

improve overall deer herd health.

4.5.1.7 By 2003, evaluate the potential of 

conducting a youth-oriented deer hunt.

4.5.2 Provide high quality fishing opportunities consistent 

with sound biological principles. 

4.5.2.1 By 2001, increase law enforcement patrol 

of fishing areas to ensure public safety and 

maintain refurbished facilities. 

4.5.2.2 By 2002, construct a disability-accessible 

fishing platform at Fishbone Creek.

4.5.2.3 By 2004, repair boat launch and resurface 

parking area at Shired Island. (Resource 

Project 12)

4.5.2.4 By 2005, explore additional ways to increase 

land based fishing opportunities by 

emphasizing access and facility 

improvements. 

4.5.2.5 By 2006, develop and implement a fisheries 

management plan.

4.5.2.6 By 2008, support National Fishing Week by 

conducting an annual event.

Fishing at Shell Mound Pier

USFWS Ken Litzenberger

Mother and Son Fishing

USFWS Ken Litaenberger

Volunteer with Children

USFWS Ken Litaenberger

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Objective

4.6 Develop a volunteer program which offers resource, 

educational, and maintenance projects to accommodate a 

diverse volunteer community.

Strategies

4.6.1 Create partnerships with community-based 

organizations to adopt specific refuge trails and/or 

areas.

4.6.1.1 Continue coordinating with the Wetlands 

Clubs from area high schools to conduct 

regular clean-up days on the refuge. 

4.6.1.2 By 2002, partner with the Suwannee River 

Chamber of Commerce to adopt the Dixie 

Mainline Trail.

4.6.2 Provide volunteer training opportunities. 

4.6.2.1 Continue to provide training to teach refuge 

volunteers about the Service, the refuge 

system, and the local refuges.

4.6.2.2 By 2002, provide opportunities for 

volunteers to attend teacher workshops to 

develop skills for conducting educational 

programs.

4.6.2.3 By 2003, provide opportunities for 

volunteers to attend Service-sponsored 

training on related topics to improve their 

ability to serve refuge needs.

4.6.3 By 2001, provide support and recognition to 

volunteers for their contributions to refuge 

operations and programs.

4.6.4 By 2003, develop volunteer-led tours of various 

refuge trails.

4.6.5 By 2004, use volunteers to assist with staffing needs 

for the new refuge visitor center or contact station.

Objective

4.7 By 2001, develop a Friends Group for Lower Suwannee and 

Cedar Keys National Wildlife Refuges.

Landscape Management

Goal

5. Promote interagency and private landowner cooperation and 

partnerships for the management and protection of natural and 

cultural resources within the Big Bend Region of Florida, the 

Suwannee River Basin, and the North Florida Ecosystem to benefit 

wildlife, water quality and quantity, and the American people.

Objectives

5.1 Continue participation on North Florida Ecosystem Team 

and support team priorities and projects. Lily Pads

USFWS ©Bruce Colin

Stugeon Capture

USFWS Jim Clugston

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5.2 By 2005, develop partnerships with local school districts 

and state environmental agencies such as the Suwannee 

River Water Management District, Florida Department 

of Environmental Protection, and Florida Fish and 

Wildlife Conservation Commission to promote and provide 

environmental education opportunities on and off the 

refuge.

Strategies

5.2.1 By 2003, expand partnership with the Levy County 

School District to include it as an involved 

participant in the Interdisciplinary Watershed 

Education Program.

5.2.2 By 2004, expand partnership with the Dixie County 

School District to assist with the development of 

environmental education facilities and programs. 

(Resource Project 10)

Objective

5.3 By 2006, develop partnerships to protect water quality and 

quantity and to promote research on the trust resources of 

the refuge.

Strategies

5.3.1 By 2002, expand partnership with the University 

of Florida to conduct research on the refuge and 

provide research sites and field experiences to 

students.

5.3.2 By 2002, expand partnership with the Suwannee 

River Water Management District and the U.S. 

Geological Survey to include monitoring water flows 

and quality in the lower reaches of the Suwannee 

River, to inventory and study aquatic species, 

and to protect the Suwannee River corridor from 

development and activities which could negatively 

impact water quantity and quality. 

5.3.3 By 2003, explore potential for working with the 

Florida Fish and Wildlife Conservation Commission 

to reintroduce black bear into the Big Bend Region 

of Florida. 

5.3.4 Conduct a basin-wide mussel survey to determine 

species abundance and distribution with emphasis on 

determining status of the Suwannee moccasinshell 

mussel for possible listing, by the year 2005. Threats 

to the Suwannee River Basin include degradation 

of water quality resulting from increased pesticide 

and fertilizer use by dairy and poultry operations, 

contaminants from phosphate mines and pulp mills, 

and increased ground and surface water consumption 

(specifically, a proposal to divert water from the 

Suwannee River to the Tampa area [minimum flows 

issue]).

Objective

5.4 Maintain partnerships with local community organizations 

and environmental agencies to promote and guide the 

development of nature-based tourism while maintaining the 

“wildlife first” requirement of the Refuge Improvement Act.

Bicyclists on the Dixie Mainline

USFWS 

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Strategies

5.4.1 Continue to work with the Florida Park Service and 

other governmental agencies, as well as community 

organizations, in the sponsorship of the Suwannee 

River Naturefest, an annual nature-based festival.

5.4.2 Continue to partner with local organizations to seek 

out and apply for grants on collaborative projects.

5.4.3 By 2002, work with the Suwannee River and 

Dixie County Chambers of Commerce to develop 

interpretive material about the Dixie County 

portion of the refuge and nature-based recreation 

opportunities provided by the refuge.

5.4.4 By 2003, seek support from community organizations 

and governmental agencies for the establishment of 

a Refuge Visitor and Education Center which will 

serve both refuges and could serve as a central 

information point for environmental activities in the 

area.

Objectives

5.5 Continue to develop partnerships with national and state 

organizations to acquire necessary lands for the protection 

of trust resources and the fulfillment of the purpose and 

mission of the refuge. 

5.6 Seek mutual cooperation with recognized Native American 

tribes in Florida to protect Native American sites on the 

refuge. 

Strategy

5.6.1 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. 

Partnerships

A crucial component to implementing this comprehensive conservation 

plan is the development and expansion of partnerships with the local 

community and other environmental agencies. Significant partnerships 

with the Suwannee River Water Management District and The Nature 

Conservancy contributed to both the establishment and management of 

the refuge. Local organizations that have contributed to the operation of 

the refuge include the Suwannee River and Dixie County Chambers of 

Commerce, the Suwannee Audubon Society, and the “Save Our Suwannee” 

organization. Personal contacts and working relationships have been 

established with other governmental organizations including the following: 

University of Florida; Florida Fish and Wildlife Conservation Commission; 

Florida Park Service; Florida Department of Environmental Protection; 

Florida Division of Forestry; Levy County School District; Dixie County 

School District; Chiefland City Council; Levy County Commissioners; 

Dixie County Commissioners; Levy County Development Authority; 

North Florida Economic Development Council; Levy County Economic 

Development Council; and North Central Florida Regional Planning 

Council.

In addition to dynamic partnerships with organizations, the refuge is 

fortunate to have a small but dedicated group of individuals who volunteer 

and assist the refuge with various projects. These volunteers will continue 

to play a pivotal role in the accomplishment of refuge objectives and 

Swamp Lily

USFWS Robert LeMarie

Plan

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strategies. In addition to assisting with refuge projects, this cadre of 

volunteers serves as an important link with the community at large, 

promoting refuge messages and garnering additional support for the 

refuge system.

Partnerships with other environmental agencies, local school districts, 

and community groups have the greatest potential to benefit refuge 

resources. Biological and environmental research and monitoring will 

be improved through enhanced partnerships with the Suwannee River 

Water Management District, the University of Florida, and the Florida 

Fish and Wildlife Conservation Commission. Environmental education 

opportunities will be enhanced through expanded partnerships with both 

local school districts, the Suwannee River Water Management District 

and the Florida Fish and Wildlife Conservation Commission. The limiting 

factor in the advancement of these partnerships is the lack of staffing and 

funding to nurture these programs and relationships. 

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 time are available, these work plans will be used to 

implement various components of the plan.

Step-Down Management Plans

The comprehensive conservation plan provides conceptual guidance 

for potential future expansion, management and development of the 

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

plans. Examples are fire management, forestry management and hunting 

management. The refuge’s approved step-down plans are listed below. 

Before implementing the goals and projects of this comprehensive 

conservation plan, some specific step-down plans may need revisions, while 

others will need to be developed.

Approved Plans

n Aircraft Pre-Accident Aircraft are used for fire control and management, 

habitat monitoring, and biological surveys. The purpose of the Aircraft 

Pre-Accident Plan is to outline general procedures to be followed during 

routine flights and flight emergencies. (Approved 5/6/94)

n Continuity of Operations 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 the safety and 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). (Approved 1/8/97)

nHurricane Action The purpose of the Hurricane Action Plan 

is to outline general procedures to be followed during and 

after hurricanes and the associated tornadoes which may occur. 

(Approved 12/17/90)

nStation Safety The purpose of the Station Safety and 

Environmental Health Management Plan is to outline 

responsibilities and procedures necessary to minimize accidents/

incidents which may result in personal injury or property damage to 

Service employees and the visiting public. Included are guidelines 

for employees to follow in case of emergencies, correct procedures 

for reporting accidents, and an emergency action directory. 

(Approved 10/21/84)

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Visitors at Shell Mount

USFWS ©Ken Sourbeer

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USFWS ©Bruce Colin
24 Lower Suwannee

nTrapping The purpose of this plan is to identify methods to reduce beaver 

impacts on refuge roads and timber in the Dixie County portion of the 

refuge. The plan does not seek to eliminate beaver from the refuge, merely 

minimize damage caused to refuge roads and timber by flooding, and thus 

ensure visitor and staff safety when using these roads. (Submitted 1/12/00)

Approved Plans, Scheduled for Revisions

nForest Management The purpose of this plan is to provide guidelines which 

will strive to make the best use of available management techniques to 

provide suitable habitat for native wildlife in refuge forest lands. This 

plan is scheduled to be updated by 2002. (Approved 4/19/89)

nLaw Enforcement This plan’s 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.

n Visitor 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 plan will be revised in 2003. 

(Approved 6/28/88)

n Hunting The purpose of the Hunting Plan is to establish 

guidelines for hunting on the refuge which will provide the 

general public with a quality wildlife-oriented recreational 

experience, an opportunity to utilize a renewable resource, and 

the ability to maintain wildlife populations at levels compatible 

with refuge habitat. This plan will be updated and incorporated 

into the Visitor Services Management Plan by the 2003-2004 

hunt season. (Approved 4/18/88)

n Fishing The purpose of the Fishing Plan is to provide guidelines 

and objectives for the sportfishing program, which will serve 

to increase wildlife-dependent recreational opportunities and 

further the public’s opportunity to enjoy a renewable resource. 

The plan will be updated and included in the Visitor Services 

Management Plan, which is scheduled to be updated and revised 

by 2003. (Approved 8/16/88)

n Sign (part of Public Use Management Plan) The sign plan, which is 

now obsolete, outlined the design and placement of refuge signs 

to provide information to the public. Sign management will now 

be included in the Visitor Services Management Plan. (Approved 

6/28/88)

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

Wildlife Inventory Plan was to establish which species to inventory, 

standard techniques for conducting the inventories, and projected costs. 

This plan is now obsolete. A new Wildlife Management Plan will be 

written to replace this plan. This project is to be conducted by 2004. 

(Approved 4/21/86)

Needed Plans or Reviews

n Cultural Resource Management Plan The purpose of this plan is 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. 

n Wilderness Review The purpose of this review is to determine whether 

any refuge lands or waters meet the qualifications of a “Wilderness 

Area.” Any areas determined to meet these criteria will then be 

nominated for inclusion as wilderness. The Wilderness Review will be 

conducted by 2006.

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n Fisheries Management Plan The purpose of this plan is to determine if and 

what management actions could be conducted to improve fish habitat on 

refuge waters. Fisheries biologists from the Service’s Ecological Field 

Offices would provide the expertise needed for this evaluation. The 

fisheries plan will be conducted by 2006. 

n Biological 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 its revision to determine if biological 

strategies outlined in this plan and the Wildlife Management Plan are 

resulting in good science and sound management practices. This review 

should occur by 2010.

Funding and Staffing

To bring the vision of the Lower Suwannee National Wildlife Refuge 

to a reality—expanded biological monitoring, enhanced public use 

opportunities, and construction of related facilities—appropriate funding 

and staffing are essential! Although a portion of this new funding could be 

from partnership opportunities and grants, the bulk of the funding must 

be allocated by the U.S. Congress. Current base funding is inadequate 

to meet staff costs and to complete routine maintenance and upkeep of 

facilities and equipment. 

A staff of eight permanent full-time, one permanent half-time, two career 

seasonals, and one temporary firefighter (Fig. 4) are currently allocated to 

Lower Suwannee National Wildlife Refuge (gray boxes). To accomplish the 

goals, objectives, and strategies outlined in this plan, additional staffing is 

needed. Five additional full-time permanent positions are required to fully 

implement this plan (white boxes). Additionally, two full-time positions 

willbe shared with Cedar Keys National Wildlife Refuge (white boxes 

with bold bordering). Finally, the current Assistant 

Refuge Manager position, GS-0485-5/7/9, will become a 

Refuge Operations Specialist position with the primary 

responsiblity of overseeing the daily operations of 

Cedar Keys Refuge. One of the identified new positions 

will be a Deputy Project Leader position, GS-0485-

11/12, which would oversee staff and daily operations 

of Lower Suwannee Refuge. 

If the Service is to succeed in the full implementation 

of this plan, base funding and minimum staffing must 

be increased. Along with base funding, maintenance 

funding must also increase so that the refuge may 

upgrade and improve facilities and equipment, as 

needed. Without the financial support from the U.S. 

Congress, Lower Suwannee National Wildlife Refuge 

will not be able to successfully manage habitat 

for threatened and endangered species and trust 

resources. The refuge will be unable to provide 

adequate environmental education and outreach. 

Wildlife-dependent recreational opportunities will be 

inadequate to meet the needs of society. Finally, the 

refuge will not endure as a unique resource for future 

generations.

Resource Projects

The following projects directly support the refuge’s 

goals and objectives. They do not necessarily fit under 

one goal, but rather support several goals.

River Trail Kiosk

USFWS ©Ken Sourbeer

Cypress Swamp

USFWS ©Ken Sourbeer

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Comprehensive

Conservation

Plan
26 Lower Suwannee

Project Leader

(Refuge Manager)

GS-0485-13

Office Assistant

GS-0303-7

Office Clerk

GS-0303-3/4/5

Deputy Project Leader

GS-0485-11/12

Law Enforcement

Police Officer

GS-0083-07

Forestry Management Operations

Forester

GS-0460-9/11

Refuge Operations Specialist

(Assistant Refuge Manager)

Cedar Keys NWR

GS-0485-5/7/9

Wildlife Managment

Wildlife Biologist

GS-048607/9/11

Shared with Cedar Keys NWR

Maintenance Operations

Engineering Equipment Operator

WG-5716-08

Public Use Management

Outdoor Recreation Planner

GS-0023-9/11

Shared w/Cedar Keys NWR

Forestry Management Operations

Forestry Technician

Fire Control Officer

GS-0462-8

Forestry Management Operations

Forestry Aid

GS-0462-4 (CS)

Forestry Management Operations

Forestry Technician

GS-0462-7

Maintenance Operations

Automotive Worker

WG-5823-08

Maintenance Operations

Engineering Equipment Operator

Stationed in Dixie County

WG-5716-08

Maintenance Operations

Engineering Equipment Operator

WG-5716-08

Wildlife Management

Biological Sciences Technician

GS-0404-5/6/7

Stationed at Cedar Keys

Forestry Management Operations

Forestry Technician

GS-0462-5 (CS)

Forestry Management Operations

Forestry Aid

GS-0462-3 (TS)

Public Use Management

Volunteer Coordinator/

Visitor Center Manager

GS-0023-7/9

Figure 4. Organizational Chart for Lower Suwannee and Cedar Keys National Wildlife Refuges
Comprehensive Conservation Plan 27

Project 1

Initial Base Funding Additional base funding is needed to hire staff 

and cover normal, routine expenses. Five new full-time positions for 

Lower Suwannee National Wildlife Refuge and two new full-time positions 

to be shared with Cedar Keys National Wildlife Refuge are needed to 

meet minimum staffing needs. These positions will require equipment and 

transportation and will also affect utility expenses. The estimated costs for 

these new positions including salaries, benefits, and operations will total 

approximately $700,000 for the first year and $600,000 for recurring years.

Project 2

Administrative Facilities, Visitor’s Services, and Education Center 

Construction of a headquarter’s facility is needed and will include a 

visitor center with interpretive displays and exhibits; a book store; an 

environmental education classroom; a large conference room; and six 

administrative offices. This facility, which will also serve Cedar Keys 

National Wildlife Refuge, will be in a location that supports both refuges 

and will serve large numbers of visitors. The construction cost will be 

approximately $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 for minor exhibits and a meeting room. The cost for this 

project will be approximately $400,000. 

Project 3

Land Acquisition This land acquisition project has two sections--

inholdings and refuge expansion. Currently, 17 inholdings are within the 

approved refuge boundary (Fig. 5). Table 1 prioritizes the purchase of 

these lands if funding becomes available. If all the tracts were to be 

purchased, the cost will exceed $10,000,000.

The second part of the land acquisition project concerns the proposed 

expansion of the Lower Suwannee National Wildlife Refuge. In 1994, 

several tracts along the Suwannee River, outside the refuge’s original 

acquisition boundary, were identified as nursery and spawning habitat 

for the endangered Gulf sturgeon. At that time, a Preliminary Project 

Proposal was conducted and followed with a Land Protection Plan and 

Environmental Assessment concerning this proposed expansion of the 

refuge. The project entered the Land Acquisition Priority System and 

was ranked number two in the country in 1996. It was not funded and 

in 2000 was ranked 84th in the country. The total acreage of the proposed 

acquisition is 9,970 acres with an estimated purchase cost of $15,000,000. 

Project 4

Gopher Tortoise Population Study The Gopher tortoise is a species of 

special concern in the State of Florida. As a keystone species for the sandy 

soil pine woods ecosystem, gopher tortoise absence can indicate a loss of 

suitable habitat or unfavorable management conditions. Gopher tortoise 

burrows serve a variety of other species. The absence of gopher tortoises 

in the ecosystem can have negative implications for rare, threatened and 

endangered species. Gopher tortoises are falling victim to a contagious 

respiratory disease that has the potential to adversely affect the species 

throughout its range. A study of the refuge’s population will provide 

preliminary data, a population index, and determine the prevalence of the 

disease among this population. This study may also identify secondary 

burrow users, such as the endangered eastern indigo snake. The cost of the 

study is estimated at $80,000.

Project 5

Fire Effects Research The refuge currently has an active fire management 

program. However, baseline information and post-burn vegetation analysis 

are needed to tailor the burn program to meet specific management 

LOWER

SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan

Pine Plantation Burn

USFWS Ken Litzenberger
28 Lower Suwannee

objectives. This project will initiate fire research on the effects of 

burning frequency, seasonality, and spatial distribution on the refuge’s pine 

flatwoods, mixed cypress, and marsh ecosystems. Additionally, the refuge 

has large reptile and amphibian populations (e.g., the endangered eastern 

indigo snake and the gopher tortoise, a species of special concern). Basic 

research is needed to evaluate how prescribed fire parameters such as 

season, ignition methods and burn rotation affect refuge herpetofauna. This 

study will further investigate the impacts of prescribed fire on isolated 

wetlands. These wetlands may be maintained and possibly restored 

through the use of periodic prescribed fire to halt hardwood encroachment 

and succession. In many areas of Florida, fire was excluded from the 

isolated wetlands and, subsequently, suitable habitat for herpetofauna 

disappeared. The third treatment of this study will compare herpetofauna 

response in isolated wetlands where fire is used to those where 

fire has been excluded. The results from these three studies will 

provide information for managing habitats and wildlife populations on 

Lower Suwannee National Wildlife 

Refuge, tailor the forestry and 

fire management programs to meet 

specific habitat and population 

objectives, and provide valuable 

insight about herpetofauna which 

could be applied by other land 

managers. The cost of these 

research projects is estimated at 

$200,000.

Project 6

Dixie Compound Garage Facility 

and Crew Building The Dixie 

County portion of the refuge is 

a 1-hour drive from the current 

headquarters. This portion of the 

refuge contains approximately 

29,000 acres and 40 miles of roads. 

Equipment such as road graders, 

trucks, and bulldozers is stored 

in a pole shed located in the 

Dixie Compound. Presently, the 

refuge lacks a shop and a place 

to store tools. Additionally, a 1979 

dilapidated mobile home is located 

in the compound. This structure was used as a sub-headquarters, crew 

room for staff, and temporary quarters for visiting researchers and 

volunteers. However, it is unsafe and an eyesore. A small garage with a 

tool room, crew room, and rest room facilities is needed. The cost of this 

project is estimated at $240,000.

Project 7

Enhance Resource Assessment through Geographic Information System A 

Geographic Information System will permit refuge staff to digitize refuge 

habitats and incorporate biological, archaeological, and public use resources 

into databases. The refuge currently has a single-user GIS system and one 

GPS PLGR unit. A digitizer to capture fine scale data and a plotter for 

printing scales maps are necessary to have a fully functioning GIS system. 

The project will require new computer hardware, software, training, and 

a computer specialist to get the system up and running. The position will 

be a term position, not to exceed 4 years. This person will be required to 

train staff on how to use and maintain the system. The cost is estimated 

at $250,000.

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SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan

Bird Watchers

USFWS Ken Litzenberger
Comprehensive Conservation Plan 29

Figure 5. Land Acquisition Map, Lower Suwannee National Wildlife Refuge
30 Lower Suwannee

 

 TRACT ACRES ESTIMATED VALUE1 WILLING SELLER2

 Asbell 156 150,000 yes

 Drummond 75 (2 parcels) 40,000 yes

 Roe 13 200,000 no

 Caber 5295 8,000,000 unknown

 Sowell 80 200,000 unknown

 Calton 11 25,000 no

 Williams, et al. 74 (camp cabin) 500,000 no

 Hicks 5 (home) 200,000 no

 Osteen 1 (home) 75,000 no

 Abager 91 300,000 yes

 Allen 3 10,000 unknown

 Coon Island <3 10,000 yes

 Yon 30 (5 upland) 50,000 yes

 Phillips 79 150,000 yes

 Brown 10 25,000 yes

 Batts 72 150,000 yes

 Hudson 65 25,000 unknown

 TOTALS 6075 10,110,000

1The estimated value figures are “best guess” estimates. Appraisals will be conducted to 

obtain fair market value prices. The Service is not allowed, by law, to pay above appraised 

value.

2The Service only acquires land from willing sellers.

Table 1. Inholdings Within the Approved Boundary of Lower Suwannee National Wildlife Refuge LOWER

SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan
Comprehensive Conservation Plan 31

Project 8

River Trail and Entrance Drive Enhancements The entrance drive to 

the refuge, which leads to the administrative complex and an adjacent 

trail head area, is currently surfaced in limerock. This project proposes 

to resurface the 0.8-mile drive, the 500-square-foot trail head parking 

area, and the visitor contact station/administrative office parking lot. 

Additionally, the kiosk at the trail head is rotten and infested with 

termites. The information panels are outdated and in poor condition. 

The trail is approximately 0.5-mile in length with a 400-foot boardwalk 

and observation platform on the historic and beautiful Suwannee River. 

Approximately 10,000 people annually use this trail area. A new kiosk and 

interpretive panels are needed to replace the current structure and to 

highlight the trail improvements including the boardwalk and observation 

platform. The estimated costs of the entrance drive resurfacing, paving of 

two small parking lots, and replacing the information kiosk total $340,000.

Project 9

Shell Mound Enhancements The Shell Mound Unit of the refuge receives 

more than 50,000 visitors a year. Current public use amenities include a 

1-mile, uninterpreted loop trail, a 0.3-mile loop trail with two information 

panels, a brochure box and small parking area at the trail heads, a small 

boat launching area, and a 400-foot disability accessible boardwalk and 

fishing pier. This project calls for the construction of two marsh boardwalks 

for the 1-mile trail. Currently, this trail is only fully accessible during 

low tide, as the marsh areas are wet during high tide. Additionally, an 

observation tower at Dennis Creek would greatly enhance the user’s 

ability to observe wildlife and scenic vistas. The trail passes through 

unique coastal habitat and interpretive signs along the trail will educate 

visitors about the natural features found along the trail. On the Shell 

Mound Trail, two information panels are outdated and in poor condition. 

These panels would be replaced with new panels. In the parking area, 

the refuge sign and brochure box would be replaced with a 3-sided kiosk 

housing panels about the two trails, natural features and wildlife, for both 

Lower Suwannee and Cedar Keys Refuges. The estimated cost of this 

project is $50,000.

Firefighter with Drip Torch

USFWS Ken Litaenberger

Sunset at Shell Mound

USFWS Ken Sourbeer

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SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan
32 Lower Suwannee

Project 10

Develop Education Facilities The Dixie County School District leases 16 

acres of land near Fishborne Creek from the State of Florida which is 

surrounded by the refuge. The school district has plans to construct an 

environmental education facility on the property, but is short of funding. 

The Service needs to work cooperatively with the school district to apply 

for a grant to fund this project. The Service could help with the purchase of 

materials and provide construction supervision. The county could provide 

labor, probably from the correctional facility, to build a pole shed type 

structure. Grant money could be used to purchase a recycling, composting 

toilet for the site, while installation could also be by inmate labor with 

refuge supervision. The total estimated cost of the project is $20,000, with 

the Service’s share being approximately $10,000, depending on funding or 

grant specifications.

Project 11

Fire Equipment Storage and Cache The original site plan for the 

administration area calls for an enclosed equipment building for vehicle 

storage. Presently, fire cache equipment is stored in several scattered 

locations due to space constraints. Additionally, equipment such as the 

engine, pumper unit, fire transport, and dozer are unprotected. This 

project will include the construction of an enclosed, 5-bay garage, with 4 

bays for fire equipment storage and 1 bay for the fire cache. The estimated 

cost of this project is $300,000.

Project 12

Shired Island Enhancements Shired Island receives more than 40,000 

visitors annually. The boat launch and parking area are in poor condition. 

This project will involve clearing and leveling the parking area and gravel 

resurfacing. The boat launch is eroding and needs bank stabilization. 

Currently, no signs or information panels for the refuge are located 

at this highly visited area. In addition to the parking area and launch 

improvements, a kiosk with refuge information and panels highlighting the 

unique natural features of the area will be constructed. The estimated cost 

of this project is $200,000.

Project 13

Boundary Survey Boundary surveys between refuge property and 

adjacent private property have not been conducted at several locations in 

Levy and Dixie Counties. These surveys were never conducted because 

the property was within the original acquisition boundary and it was 

assumed that these sites would eventually become part of the refuge. 

Several locations exist in both counties where the property remains in 

private ownership and the lack of a boundary line has caused management 

problems related to forest and fire management activities, public use, and 

law enforcement. Under this plan, the surveys will be conducted. The 

estimated cost for this project is $250,000.

LOWER

SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan

Cypress Kness

USFWS Jerry Gamble
Comprehensive Conservation Plan 33

Project 14

Archaeological and Historical Survey A comprehensive archaeological 

survey of the refuge is needed. The refuge contains archaeological sites 

that are more than 2000 years old. This project is necessary to identify, 

protect, and interpret the refuge’s cultural resources. The estimated cost 

is $200,000.

Project 15

Replacement of Heavy Equipment The refuge currently has two pieces of 

heavy equipment in need of replacement. The Fiat Allis crawler tractor 

was obtained by the Service in 1984, as used, excess property from the 

Army Corps of Engineers. This tractor is used to maintain 50 miles of road 

right-of-way. It is also used for land clearing, habitat management projects, 

and fire protection. A Champion brand motor grader, which is more than 

20 years old, needs replacing. This grader was received by the refuge in 

1979. The grader is used to maintain more than 50 miles of refuge roads 

for forestry and wildlife management, fire management and protection, and 

public access. The estimated replacement cost for both pieces of equipment 

is $325,000.

Volunteers

Volunteer assistance to the refuge has been valuable, particularly in the 

area of public use. Lower Suwannee Refuge has a small, but dedicated 

corps of volunteers. One volunteer works more than 200 hours annually 

at Shell Mound maintaining the trails and collecting litter. He has also 

assisted with the construction of a boardwalk and a kiosk. Several 

volunteers assist with data entry and other office work. Other volunteers 

lead nature walks, canoe tours, wildflower walks, and birding trips for 

special refuge events such as National Wildlife Refuge Week, and assist 

in staffing festival exhibits. Still others assist with colonial bird, shorebird, 

and migratory bird surveys. Volunteers contribute approximately 1,000 

hours annually to refuge projects.

1First year need for these projects is included in the one time cost figure.

PROJECTS ONE TIME COST FIRST YEAR NEED1 RECURRING BASE

1. Initial Base Funding $700,000 $600,000

2. Visitor Center et al. $2,000,000 50,000

3. Land Acquisition 10,110,000 75,000

4. Gopher Tortoise Study 80,000 5,000

5. Fire Effects 200,000 100,000

6. Garage and Crew Shop 240,000 5,000

7. GIS System 250,000 100,000

8. River Trail Projects 340,000 5,000

9. Shell Mound Projects 50,000

10. Education Facilities 10,000

11. Fire Equipment Storage 300,000 5,000

12. Shired Island Projects 200,000 5,000

13. Boundary Survey 250,000 5,000

14. Archaeological Survey 200,000 5,000

15. Heavy Equipment 325,000

 TOTAL 14,475,000 980,000 760,000

Table 2. Funding Needs for Special Resource Projects of Lower Suwannee National Wildlife Refuge

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WILDLIFE

REFUGE

Comprehensive

Conservation

Plan
34 Lower Suwannee

Volunteers will continue to play an integral role in assisting staff with 

fulfilling the mission and vision of this refuge. The current limiting factor 

in volunteer recruitment is not a lack of community interest, but the 

lack of staff to nurture and oversee this program. The development of a 

“Friends” group will provide interested citizens with an outlet to become 

more involved. However, this program will not fully develop without a staff 

person to make this dream a reality.

Monitoring and Evaluation

Extensive research and monitoring of natural resources will occur once 

this plan is implemented and minimum staffing needs are met. This 

knowledge will give refuge managers and staff specialists the data to 

judge how habitat management has impacted refuge resources. A major 

objective of the investigations is not only to provide information to 

local managers, but to provide a database which will benefit other land 

managers with similar resources.

This plan will be augmented with detailed step-down management plans 

to address management actions in support of refuge goals and objectives, 

and to implement the identified strategies. Annual work guidance and the 

Maintenance Management System and Refuge Operational Needs System 

are the annual mechanisms for requesting funding and accounting for 

completion of the objectives, strategies, and projects identified in the plan. 

It will be reviewed every 5 years to determine if these goals and objectives 

are being met and if different strategies are needed to assist the refuge in 

moving towards fulfilling its vision. Public involvement in the evaluation 

process and in plan implementation will be encouraged.

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SUWANNEE

NATIONAL

WILDLIFE

REFUGE

Comprehensive

Conservation

Plan