508_SalinasRiver_Final_CCP_0001.pdf

U.S. Fish & Wildlife Service

Salinas River National Wildlife Refuge Comprehensive Conservation Plan

CCPs provide long term guidance for management decisions and set forth goals, objectives, and strategies needed to accomplish refuge purposes and identify the Service’s best estimate of future needs. These plans detail program planning levels that are sometimes substantially above current budget allocations and, as such, are primarily for Service strategic planning and program prioritization purposes. The plans do not constitute a commitment for staffing increases, operational and maintenance increases, or funding for future land acquisition.

Salinas River National Wildlife Refuge Comprehensive Conservation Plan

Vision Statement

U.S. Fish & Wildlife Service

“The Refuge will be managed for the conservation and enhancement of populations of native species of plants, wildlife, fish, and their habitats. Endangered or threatened species will receive management priority, with special emphasis placed on the conservation and recovery of the western snowy plover. Whenever possible, habitats and populations will be managed in partnership with local landowners, local and regional organizations, and local, State, and other Federal agencies to achieve regional conservation goals.”

December 2002

U.S. Fish & Wildlife Service California/Nevada Refuge Planning Office 2800 Cottage Way, Room W-1916 Sacramento, CA 95825

Salinas River National Wildlife Refuge Comprehensive Conservation Plan

Prepared by:

U.S. Fish and Wildlife Service

Region 1

California/Nevada Refuge Planning Office 2800 Cottage Way, W-1916

Sacramento, CA 95825

San Francisco Bay National Wildlife Refuge Complex 1 Marshlands Road Newark, CA 94536

Approved:

Operations Manager

"?--c, DEC 2 0 2002 Date: __________ _

Implementation of this Comprehensive Conservation Plan and alternative management actions/programs have been assessed consistent with the requirements of the National Environmental Policy Act (42 USC 4321 et seq.).

Acting California Nevada Operations Manager

I

National Wildlife Refuge Table of Contents

Comprehensive Conservation Plan 1. Introduction and Background ________________________________________ 1 Content and Purpose of This Document ____________________________________ 1 Need for This CCP _____________________________________________________ 2 The U.S. Fish and Wildlife Service and the NWR System _____________________ 2

U.S. Fish and Wildlife Service Responsibilities _______________________ 2 The National Wildlife Refuge System _______________________________ 2

The Salinas River National Wildlife Refuge ________________________________ 4 Introduction to the Salinas River NWR ______________________________ 4 Establishment and History of the Salinas River NWR _________________ 4 Salinas River NWR Vision Statement _______________________________ 5 Management Goals for the Salinas River NWR _______________________ 6 Existing Partnerships for Management of the Salinas River NWR _______ 6 Adaptive Management ____________________________________________ 7

Document Organization _________________________________________________ 7

2. The Comprehensive Conservation Planning Process ___________________ 9 The Planning Process – How This CCP Was Developed _________________________ 9

The Planning Team ________________________________________________ 9

Public Involvement in Planning _____________________________________ 10

Public Comments on Refuge Planning ______________________________________ 11

Recreation and Public Use _________________________________________ 11

Habitat and Wildlife Management ___________________________________ 11

Administration and Management ____________________________________ 12

Planning Process _________________________________________________ 12

Development of Refuge Goals _____________________________________________ 12

Development of Alternatives ______________________________________________ 13

Plan Implementation ___________________________________________________ 13

3. Current and Future Refuge Management ____________________________ 15 Current Management __________________________________________________ 15 Management Alternatives ______________________________________________ 16 Refuge Management Direction: Objectives and Strategies ___________________ 17

Organization ____________________________________________________ 18 Goals, Objectives, and Strategies __________________________________ 18

Mitigation Measures ___________________________________________________ 29 Water Quality/Contaminants ______________________________________ 29 Hazardous Materials and Safety Issues _____________________________ 30 Biological Resources _____________________________________________ 30 Cultural Resources _____________________________________________ 33

4. Existing Conditions ____________________________________________ 35 Physical Resources ____________________________________________________ 35

Climate ________________________________________________________ 35 Surface Hydrology ______________________________________________ 35 Geology ________________________________________________________ 38 Soils ___________________________________________________________ 39 Air Quality _____________________________________________________ 41 Hazardous Materials and Contaminants ____________________________ 42

Biological Resources at the Refuge _______________________________________ 44 Historic and Regional Context ____________________________________ 44 Vegetation _____________________________________________________ 45 Wildlife ________________________________________________________ 48 Federally Listed Species at the Refuge _____________________________ 52

Cultural Resources ____________________________________________________ 58 Cultural Setting _________________________________________________ 58

Social Environment ____________________________________________________ 61 Land Use ______________________________________________________ 61

II

Traffic and Public Access _________________________________________ 61 Recreation _____________________________________________________ 62

5. Plan Implementation ___________________________________________ 65 Funding and Personnel _________________________________________________ 65 Step-Down Management Plans __________________________________________ 68 Compliance Requirements ______________________________________________ 68 Partnership Opportunities ______________________________________________ 68 Adaptive Management _________________________________________________ 68 Plan Amendment and Revision __________________________________________ 69

III

Appendices

APPENDIX A. Citations

APPENDIX B. Glossary of Terms

APPENDIX C. Refuge Plant List and Special-Status Species on the Refuge

APPENDIX D. Relationship between Vegetation Types Used in this CCP and National Vegetation Classification System

APPENDIX E. Planning Team Members and Persons Responsible for Preparing this Document

APPENDIX F. Wilderness Review

APPENDIX G. Compatibility Determinations

APPENDIX H. Salinas River NWR Avian Predator Management Plan

APPENDIX I. Salinas River NWR Wildland Fire Management Plan

APPENDIX J. Salinas River NWR Hunting Plan

APPENDIX K. Response to Comments

IV

Figures

Figure 1. Location map __________________________________________________________________________________ follows 4

Figure 2. Refuge map ___________________________________________________________________________________ follows 4

Figure 3. Comprehensive conservation planning process ___________________________________________________________ 10

Figure 4. Hierarchy of Refuge planning levels in the National Wildlife Refuge System __________________________________ 13

Figure 5. Public Use Plan ________________________________________________________________________________ follows 18

Figure 6. Coastal dunes and land ownership along southern Monterey Bay ______________________________________ follows 26

Figure 7. Vegetation map ________________________________________________________________________________ follows 46

Tables

Table 1. 15-year vision for the primary habitats and for recreation on the Refuge _______________________________________ 6

Table 2. Current partnerships on the Salinas River National Wildlife Refuge ___________________________________________ 7

Table 3. Organization of the Comprehensive Conservation Plan ______________________________________________________ 8

Table 4. Soils of the Salinas River National Wildlife Refuge _________________________________________________________ 40

Table 5. Estimates of annual recreation use at the Salinas River National Wildlife Refuge _______________________________ 64

Table 6. Recreation use at public parks along the coast near the Refuge ______________________________________________ 64

Table 7. Budget proposal for Salinas River NWR Comprehensive Conservation Plan ___________________________________ 66

Comprehensive Conservation Plan 1

Sand verbena (Verbena sp.)

USFWS Photo

Chapter 1. Introduction and

Background Content and Purpose of This Document This document is a Comprehensive Conservation Plan (CCP) designed to guide the management of the Salinas River National Wildlife Refuge in Monterey County, California for the next 15 years. The U.S. Fish and Wildlife Service’s (Service) management planning process for National Wildlife Refuges (NWRs) involves two phases: (1) the development of a broad Comprehensive Conservation Plan (CCP) that articulates a vision and specific goals for the refuge, and (2) the formulation of more detailed “step-down” management plans that enable the implementation of the CCP’s vision.

The purposes of this CCP are:

O To provide a clear statement of direction for the management of the

Salinas River National Wildlife Refuge (Refuge) over the next 15 years;

O To provide long-term continuity in Refuge management;

O To communicate the Service’s management priorities for the Salinas

River NWR to its neighbors and visitors and to the public;

O To provide an opportunity for the public to help shape the future management of the Salinas River NWR;

O To ensure that management programs on the Salinas River NWR are consistent with the mandates of the National Wildlife Refuge System (Refuge System) and the purpose of the Refuge as stated in establishing legislation;

O To ensure that the management of the Salinas River NWR is consistent with Federal, State, and local plans; and

O To provide a basis for budget requests to support the Salinas River NWR’s needs for staffing, operations, maintenance, and capital improvements.

Chapter 1

2 Salinas River National Wildlife Refuge

This document incorporates a CCP and three new step-down plans: an Avian Predator Management Plan, Wildland Fire Management Plan, and Hunt Plan. In addition, the existing Predator Management Plan (U.S. Fish and Wildlife Service 1993a) will remain in place as a step-down plan.

When it is implemented, this CCP will further the purposes and goals of the Salinas River National Wildlife Refuge, contribute to the overall mission of the National Wildlife Refuge System (see page 3), and address other relevant mandates, such as recovery of endangered species.

Chapter 2 describes the CCP planning process. Chapter 3 presents the management program proposed in this CCP.

Need for This CCP The National Wildlife Refuge System Improvement Act of 1997 (Public Law 105-57) (Improvement Act) requires that all Federal refuges be managed in accordance with an approved CCP by 2012. Moreover, the Salinas River National Wildlife Refuge currently has no integrated plan that guides the management of all of its resources and uses. In order to meet the dual needs of complying with the Improvement Act and providing long-term integrated management guidance for the Refuge, the Service proposes this CCP.

The U.S. Fish and Wildlife Service and the National Wildlife Refuge System U.S. Fish and Wildlife Service Responsibilities The Service is the primary Federal agency responsible for conserving and enhancing the Nation’s fish and wildlife populations and their habitats.

Although the Service shares this responsibility with other Federal, State, Tribal, local, and private entities, the Service has specific responsibilities for migratory birds, threatened and endangered species, anadromous fish, and certain marine mammals. The Service has similar responsibilities for the lands and waters it administers to support the conservation and enhancement of fish and wildlife.

The National Wildlife Refuge System The National Wildlife Refuge System is the world’s largest collection of lands specifically managed for fish and wildlife conservation. Operated and managed by the Service, it comprises more than 500 national wildlife refuges with a combined area of more than 92 million acres. The majority of refuge lands (approximately 77 million acres) are located in Alaska. The remaining 15 million acres are spread across the other 49 states and several island territories.

National Wildlife Refuge System Mission and Goals. The mission of the National Wildlife Refuge System, as stated in the Improvement Act, 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” (16 USC 668dd et seq.).

Introduction and Background

Comprehensive Conservation Plan 3

The goals of the National Wildlife Refuge System are:

O To preserve, restore, and enhance in their natural ecosystems (when practicable) all species of animals and plants that are endangered or threatened with becoming endangered;

O To perpetuate the migratory bird resource;

O To preserve a natural diversity and abundance of fauna and flora on refuge lands; and O To provide an understanding and appreciation of fish and wildlife ecology and the human role in the environment and to provide refuge visitors with high-quality, safe, wholesome, and enjoyable recreational experiences oriented toward wildlife to the extent these activities are compatible with the purposes for which the refuge was established.

The Service has adopted an ecosystem approach to resource management and has identified 52 ecosystem units within the United States. The Salinas River National Wildlife Refuge is situated in the Service’s Southern California Ecoregion. The Draft Conceptual Management Approach for Southern California Ecoregion Goals can be obtained from the Service by request. Specific ecoregion goals relevant to the Salinas River National Wildlife Refuge are discussed in Chapter 3 of this CCP.

Legal and Policy Guidance for Management of National Wildlife Refuges.

Individual refuges (refuge units) are guided by the mission and goals of the National Wildlife Refuge System (see preceding section) and by the designated purpose of the refuge unit as described in establishing legislation or executive orders, Service laws and policy, and international treaties. Key concepts guiding the System are contained in the Refuge Recreation Act of 1962, the National Wildlife Refuge System Administration Act of 1966, Title 50 of the Code of Federal Regulations, the Fish and Wildlife Service Manual, and, most recently, the Improvement Act.

The National Wildlife Refuge System is the only network of Federal lands administered first for the protection of wildlife. No use of a refuge may be allowed unless it is determined to be compatible with the refuge’s purpose.

A compatible use is a use that, in the sound professional judgment of the refuge manager, will not materially interfere with or detract from the fulfillment of the mission of the National Wildlife Refuge System or the purposes of the individual refuge unit. Sound professional judgment is further defined as a decision that is consistent with principles of fish and wildlife management and administration, available science and resources, and adherence with law. In this context, the Refuge Recreation Act of 1962 authorizes the Secretary of the Interior to administer refuges, hatcheries, and other conservation areas for recreational use when such uses do not interfere with the area’s primary purpose.

The National Wildlife Refuge System Administration Act of 1966 provides guidelines and directives for administration and management of all areas in the System, including wildlife refuges, areas for the protection and conservation of fish and wildlife threatened with extinction, wildlife ranges, game ranges, wildlife management areas, and waterfowl production areas.

This Act was amended in 1997 by passage of the Improvement Act, which includes a unifying mission statement for the National Wildlife Refuge System (see page 3), establishes new guidelines for determining compatible uses on refuges, and requires that each refuge be managed under a CCP developed in an open public process. Under the Improvement Act, all refuge units are required to have a CCP in place by the year 2012.

The Improvement Act further states that wildlife conservation is the

4 Salinas River National Wildlife Refuge priority of National Wildlife Refuge System lands and that the Secretary of the Interior shall ensure that the biological integrity and diversity and the environmental health of refuge lands are maintained. In addition, the Improvement Act encourages partnerships with Federal and State agencies, Tribes, organizations, industry, and the general public.

The Improvement Act identifies six wildlife-dependent recreational uses as priorities: hunting, fishing, wildlife observation and photography, environmental education, and environmental interpretation. As expressed priorities of the National Wildlife Refuge System, these public uses take precedence over other potential uses in refuge planning and management.

However, the Improvement Act also requires identification of existing compatible wildlife-dependent uses that will be permitted to continue on an interim basis pending completion of the CCP development process.

Refuge Vision. A vision statement is developed or revised for each individual refuge unit as part of the CCP process. Vision statements are grounded in the unifying mission of the National Wildlife Refuge System, and describe the desired future conditions of the refuge unit in the long term (more than 15 years), based on the refuge’s specific purposes, the resources present on the refuge, and any other relevant mandates.

The Salinas River National Wildlife Refuge Introduction to the Salinas River NWR The Salinas River National Wildlife Refuge (hereafter, Refuge) encompasses 367 acres located 11 miles north of Monterey, California, where the Salinas River empties into Monterey Bay (Figures 1 and 2). The Refuge is part of the San Francisco Bay National Wildlife Refuge Complex, which has its headquarters in Fremont, California.

Refuge lands include a range of terrestrial and aquatic habitats, including coastal dunes and beach, grasslands, wetlands, and riparian scrub. Because of its location within the Pacific Flyway, the Refuge is used by a variety of migratory birds during breeding, wintering, and migration periods. It also provides habitat for several threatened and endangered species, including western snowy plover, California brown pelican, Smith’s blue butterfly, Monterey gilia, and Monterey spineflower. Approximately 40 species that occur or are suspected to occur on the Refuge are considered sensitive by Federal or State agencies (see Appendix C). Current recreational uses on the Refuge include wildlife observation and photography and access to surf fishing and waterfowl hunting. Chapter 4 presents a detailed description of natural resources on the Salinas River National Wildlife Refuge.

Establishment and History of the Salinas River NWR The Refuge was established in 1973 because of its “particular value in carrying out the national migratory bird management program” (16 USC Sec. 667b). The land was acquired by the Service through a transfer of surplus military land from the U.S. Army and the U.S. Coast Guard. From 1974 through 1991, what is now the Refuge was operated as a Wildlife Management Area under a cooperative agreement with the California Department of Fish and Game. By the mid-1980s, growing awareness of the Refuge’s importance as habitat for sensitive species prompted a shift toward more active management and protection of its resources. In 1991, the Service began managing the area as a National Wildlife Refuge (NWR) under the National Wildlife Refuge System Administration Act of 1966, the Refuge Recreation Act of 1962, and the Improvement Act of 1997.

Refuge Purpose: The Refuge was established in 1973 because of its “particular value in carrying out the national migratory bird management program” (16 USC Sec. 667b).

National Wildlife Refuge

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Figure 1. Location Map

ICA/NV Refuge Planning Office - July 2001

CALIFO

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Area Enlarged

10 0 10 20 305

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CA/NV Refuge Planning Office - July 2001

Figure 2. Refuge Map

-•-•• Approved Refuge Boundary

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Comprehensive Conservation Plan 5

Since 1991, Refuge management efforts have focused on sensitive species protection, habitat enhancement (including riparian restoration along the Salinas River), and public use management. Limited recreational opportunities have also been available to the public, including waterfowl hunting, access to surf fishing, and wildlife observation and photography.

Much of the management and monitoring on the Refuge has been accomplished in cooperation with various partner organizations (see Existing Partnerships below). The Service’s approach to managing the Refuge has been regional in perspective, and has emphasized balancing appropriate uses among the various public lands in the Monterey Bay area.

Additional detailed information on past and current Refuge management is provided in Chapters 3 and 4.

Salinas River NWR Vision Statement This CCP incorporates the following vision statement for the Salinas River National Wildlife Refuge.

The Refuge will be managed for the conservation and enhancement of populations of native species of plants, wildlife, fish, and their habitats. Endangered or threatened species will receive management priority, with special emphasis placed on the conservation and recovery of the western snowy plover. Whenever possible, habitats and populations will be managed in partnership with local landowners, local and regional organizations, and local, State, and other Federal agencies to achieve regional conservation goals.

The vision for the Refuge reflects the regional approach that the Service has taken since it began active management of the Refuge in 1991. Under this approach, the Refuge is viewed as part of a mosaic of different types of open spaces (State beaches, private lands, the Refuge, etc.) in the Monterey coastal region. Each type of open space may support different recreational uses that reflect the particular mission of the agency or entity with stewardship responsibility for those lands.

In keeping with this approach and with the mission of the National Wildlife Refuge System, the Refuge will continue to offer limited but unique wildlife-oriented recreational opportunities; however, significant increases in public use will not be encouraged. State and local beaches will continue to provide the primary recreational opportunities for the Monterey Bay area shoreline. State beaches in Monterey Bay typically offer opportunities for recreational activities—such as hang-gliding, camping, and horseback riding—that the Refuge does not allow. These uses, as well as unrestricted public use in general, are incompatible with the Refuge’s purpose. The Refuge vision statement reflects the Service’s view that, within the wider context of public lands along the Monterey Bay, the Refuge should support relatively undisturbed habitat for threatened and endangered species and other wildlife, where public uses are subordinate to the primary purpose of wildlife conservation.

6 Salinas River National Wildlife Refuge

Table 1 presents the 15-year vision for the Refuge’s four primary habitats and for recreation.

Table 1. 15-year vision for the primary habitats and for recreation on the Refuge.

Coastal Dunes and Beach

The natural processes of dune formation will be restored.

Native vegetation in the dune complex of the Refuge will be protected and enhanced. Populations of endangered and threatened species such as Smith’s blue butterfly, Monterey gilia, Monterey spineflower, brown pelican, and western snowy plover will be protected and enhanced.

Grassland The native coastal prairie will be restored by mimicking natural processes through active management. The restored coastal prairie will provide excellent foraging habitat for native grassland birds.

Wetlands The saline pond will be maintained for migratory bird use.

The salt marsh habitat will be enhanced for use by migratory and resident birds. Historic wetlands on the Refuge will be identified and restored.

Riparian/Riverine Habitats

Riparian scrub will be restored along the Salinas River to provide habitat for migratory and resident birds while allowing for natural migration of the river channel. Riverine habitat will be enhanced for use by native waterfowl and fish.

Recreation Limited wildlife-dependent recreation will occur on the Refuge, when compatible with the purpose of the Refuge and the conservation and recovery of endangered species.

Management Goals for the Salinas River NWR Three goals have been identified to realize the vision proposed for the Refuge.

Goal 1. Protect, restore, and enhance populations of migratory birds and other native species and their habitats.

Goal 2. Protect and enhance populations of endangered, threatened, and rare species and promote their recovery by restoring and enhancing their natural habitats.

Goal 3. Provide opportunities for safe, unique, wildlife-dependent recreation when compatible with the Refuge purpose and with other Refuge goals.

These goals represent broad statements of the priorities for ongoing Refuge management.

Existing Partnerships for Management of the Salinas River NWR Partnerships are integral to the success of many refuges, and the Service encourages partnerships with local organizations who share the Service’s mission to conserve and enhance natural resources. The Refuge currently maintains partnerships with many organizations to help achieve its goals and those of the partner organizations. Table 2 summarizes current partnerships on the Refuge.

Comprehensive Conservation Plan 7

Table 2. Current partnerships on the Salinas River National Wildlife Refuge.

Organization Nature of Partnership

U.S. Department of Agriculture Wildlife Services

Assists with the Refuge’s predator management program

California Department of Fish and Game

Coordinates programs for managing special-status species, such as western snowy plover, on nearby State lands.

California Department of Parks and Recreation

Assists the Service with public use monitoring, habitat management, and snowy plover management

Watershed Institute of California State University, Monterey Bay

Conducts restoration of native grassland and riparian habitats, erosion monitoring, and scientific research

Point Reyes Bird Observatory Conducts monitoring of western snowy plover populations

Santa Cruz Predatory Bird Research Group

Assists with the Refuge’s experimental avian predator management program

Neighboring landowners Control nonnative plants on dune habitat

Source: Christopher Barr and Ivette Loredo, USFWS

Adaptive Management The Service acknowledges that much remains to be learned about the species, habitats, and physical processes that occur on the Refuge, and about the ecological interactions between species. When faced with uncertainty resulting from complex ecological interactions or gaps in available data, the most effective approach to resource management over the long term is an adaptive one. Adaptive management refers to a management style in which the effectiveness of management actions is monitored and evaluated, and future management is modified as needed, based on the results of this evaluation or other relevant information that becomes available. The Service has been practicing adaptive management on the Refuge since 1991 and plans to continue this practice. Accordingly, the management scenario proposed in this CCP provides for ongoing adaptive management of the Refuge; its adaptive management component is described more fully in Chapter 6, Plan Implementation.

Document Organization This document is organized into six chapters and eleven appendices. Table 3 summarizes their contents.

8 Salinas River National Wildlife Refuge

Table 3. Organization of the Comprehensive Conservation Plan.

Document

Section Content

Chapter 1 Description of CCP development process. Overview of mission and responsibilities of U.S. Fish and Wildlife Service and goals of National Wildlife Refuge System. Summary of history and vision of Salinas River NWR.

Chapter 2 Summary of process for development of this CCP, including specific public concerns identified and addressed during CCP development.

Chapter 3 Descriptions of current and future management of the Salinas River NWR.

Chapter 4 Description of existing resources on the Salinas River NWR.

Chapter 5 Overview of process for implementing this CCP.

Appendix A List of references cited.

Appendix B Glossary of technical terms.

Appendix C List of special-status plant and animal species with the potential to occur on the Salinas River NWR or in the surrounding area.

Appendix D Matrix showing relationship between vegetation classification system used in this document and National Vegetation Classification System.

Appendix E List of members of the Salinas River NWR CCP planning team and members of the team that prepared this document.

Appendix F Overview of wilderness review process (process that establishes whether lands should be recommended to Congress for designation as wilderness and inclusion in the National Wilderness System) and results of wilderness review for Salinas River

NWR.

Appendix G Compatibility determinations (results of formal review of compatibility of proposed public uses with stated refuge purpose) for Salinas River NWR.

Appendix H Salinas River NWR Avian Predator Management Plan (step-down plan).

Appendix I Salinas River NWR Wildland Fire Management Plan (step-down plan).

Appendix J Salinas River NWR Hunt Plan (step-down plan).

Appendix K Response to Comments

1See discussion in Chapter 1.

Comprehensive Conservation Plan 9

Chapter 2. The Comprehensive

Conservation Planning

Process This CCP for the Salinas River National Wildlife Refuge is intended to meet the requirements of compliance with the Improvement Act1. The development of this CCP was also guided by the refuge planning policy outlined in Part 602, Chapters 1, 3, and 4 of the U.S. Fish and Wildlife Service Manual (May 2000).

Service policy, the Improvement Act, and the National Environmental Policy Act (NEPA) provide specific guidance for the planning process. For example, Service policy and NEPA require the Service to actively seek public involvement in the preparation of environmental documents such as Environmental Assessments (EAs). NEPA also requires the Service to give serious consideration to all reasonable alternatives, including the “no action” alternative, which represents continuation of current conditions and management practices. Alternative management scenarios were developed as part of the planning process described in this chapter.

The Planning Process – How This CCP Was Developed Key steps in the Service’s CCP planning process include:

1. Forming the planning team and conducting preplanning;

2. Initiating public involvement and scoping;

3. Identifying issues and developing or revising vision and goal statements;

4. Developing alternatives and assessing their environmental effects;

5. Identifying the proposed action (i.e., the preferred alternative);

6. Publishing the draft plan and NEPA document;

7. Revising the draft plan and publishing a final plan; and

8. Implementing the plan.

Figure 3 diagrams the CCP planning process; the following sections provide additional detail on individual steps in the process.

The Planning Team The planning team responsible for leading the CCP effort included Service biologists, planners, and public use specialists from the San Francisco Bay NWR Complex and the California/Nevada Refuge Planning Office.

Biologists and planners from Jones & Stokes, an environmental consulting firm, also participated in the planning team effort. This document was prepared by a technical team from Jones & Stokes, under the direction and with the assistance of the Service. Appendix E lists the members of the planning and technical teams.

Chapter 2

10 Salinas River National Wildlife Refuge

Figure 3. Comprehensive Conservation Planning Process

Coordination and cooperation among participating stakeholders was a fundamental element of the CCP development process. The Planning Team considered the interests and expertise of many agencies and organizations, including:

O U.S. Fish and Wildlife Service, O California Department of Fish and Game, O California Department of Parks and Recreation, O Point Reyes Bird Observatory, O Santa Cruz Predatory Bird Research Group, O California State University, Monterey Bay Watershed Institute, and O U.S. Department of Agriculture, Wildlife Services.

Project planning meetings attended by representatives of these entities were held regularly throughout the planning process, from November 1999 through July 2000. Issues, concerns, and opportunities were identified through discussions with planning team members and key contacts and through public involvement.

Public Involvement in Planning Public involvement is an essential component of the CCP process. The Service announced the initiation of the Refuge planning effort to the public on May 19, 2000, through a planning update newsletter, followed by a formal notice in the Federal Register published on May 23, 2000. A press release was also issued prior to the public meeting.

NEPA

Notify the public NEPA Public scoping of issues Preplanning:

planning the plan

Review and revise plan

NEPA

Involve the public

Initiate public involvement and scoping

NEPA

Identity significant issues

Review vision statement and goals, and determine significant issues

Steps in the Comprehensive Conservation

Planning Process

NEPA

Notify the public

Implement plan, monitor. and evaluate

Prepare and adopt final plan

NEPA

FONSI (EA)

or ROD

(EIS)

NEPA

Assess the effects

Develop and analyze alternatives, including the proposed action

NEPA

Final CCP/EA or EIS

NEPA

Respond to substantive comment

NEPA

Identify preferred alternative

Prepare draft plan and NEPA document NEPA

Identify proposed action

NEPA

Reasonable range of alternatives NEPA

Draft

CCP/EA

or EIS

NEPA

Public review and comment

The Comprehensive Conservation Planning Process

Comprehensive Conservation Plan 11

Public scoping meeting, Monterey, CA Jones & Stokes Photo

There were several avenues for public involvement in Refuge planning. A public workshop was held on June 1, 2000, in Monterey, California, to inform the public of the planning process, and written public comments were solicited until the public comment period ended on June 22, 2000.

Public Comments on Refuge Planning The following sections present issues, concerns, and opportunities summarized from all public input received during the scoping process.

(The public workshop and written comment period are collectively referred to as the scoping process.)

Recreation and Public Use Public comments included concerns over recreation use, including both access issues and issues related to impacts. Some respondents felt that access to the portion of the Salinas River mouth below high tide should be prohibited. Concern was also expressed regarding the effects of human population density and recreational use on native plants and wildlife.

Commentors suggested that snowy plover signage should be posted in English, Spanish, Chinese, and Tagalog. Some commentors suggested that signage prohibiting dogs should be clarified and increased. Others suggested that the Service issue a map showing areas in the Monterey region where dogs are allowed. Commentors recommended enhanced signage to identify areas of the Salinas River (both within and beyond the Refuge boundaries) where fishing is permitted. A desire for bilingual Spanish and English signage was expressed. Investigation into the impacts of hunting and other recreational activities on wildlife, such as disturbance of non-target species, was requested. The Service was also asked to consider the incompatibility of recreational hunting on the Refuge.

Habitat and Wildlife Management Many people were concerned about the loss of wildlife habitat and felt that protecting, restoring, and enhancing wildlife populations and habitats should be a Refuge priority. Development of a database of pertinent scientific information regarding habitats and wildlife on the Refuge was

12 Salinas River National Wildlife Refuge suggested. Some commentors recommended a rigorous biological assessment and inventory of all plant, fish, and wildlife species present on the Refuge, including birds and invertebrates. Respondents suggested that the Service consider the use of prescribed burning to restore grassland.

Control of invasive species was also identified as a concern, and respondents recommended that additional approaches to avian predator management be considered, such as creating foraging habitat by mowing grassland. People stressed the need for long-term, effective, humane, and socially acceptable predator-management strategies. In addition, commentors expressed concern for the maintenance of good water quality on the Refuge.

Administration and Management The Service received a variety of comments related to Refuge administration and management. Some comments suggest that the Refuge requires improved and additional publicity; many members of the public had not heard of the Refuge or the CCP process. Commentors recommended that the Service determine the CCP’s consistency with other relevant programs and existing watershed and ecosystem efforts and ensure partnership with the California Department of Fish and Game.

They also pointed out the need to comply with each requirement of the Refuge Administration Act, and to prioritize activities proposed in the CCP. Adoption of monitoring, evaluation, and adaptive management strategies was also suggested. Other commentors indicated a need for additional refuse receptacles at the Refuge, recommended that the access road be maintained as unpaved, suggested that the Refuge entrance and parking lot be moved to a location directly adjacent to the highway, and requested that areas in the Salinas River where fishing is allowed be clearly defined. Improved communication with local airports was also recommended, because low-flying airplanes and hang gliders have been spotted over the Refuge; commentors expressed concern about disturbance to wildlife. Participants expressed interest in identification of additional research opportunities. One respondent suggested that additional funding sources to support expanding the Refuge should be identified.

Planning Process Some meeting participants recommended that mechanisms for providing a response to public comments be established.

Development of Refuge Goals The purpose of the Refuge is established by law; however, before this CCP effort, the Refuge had no vision statement. Under the Improvement Act, the task of the planning team was to revise and further develop the management focus of the Refuge within the Service’s planning framework (Figures 3 and 4). Developing the new vision statement was given high priority because its description of desired future conditions on the Refuge helped guide the remainder of the planning process. The vision statement was based, in part, on the public comments received during the scoping period. Once the vision statement was articulated, the planning team used it to examine and clarify the Refuge’s three interim goals. The revised Refuge goals that resulted are presented in Chapter 1.

The Comprehensive Conservation Planning Process

Comprehensive Conservation Plan 13

Figure 4. Hierarchy of Refuge Planning Levels in the National Wildlife Refuge System

Development of Alternatives The remaining steps in the CCP process, including development of alternatives, assessment of their environmental effects, and identification of the preferred management alternative (proposed action) were addressed in the EA (published as a CCP/EA).

Plan Implementation Chapter 5 describes the process for implementing the management plan proposed in this CCP.

* Established by law.

** May be required to implement some projects;

sometimes included in CCP.

U.S. Fish and Wildlife Service Mission*

National Wildlife Refuge System Mission*

Ecosystem Vision/Goals/Objectives

Refuge Purposes**

Developed or Revised as Part of CCP Process Refuge Vision

Goals

Objectives

Strategies

Step-Down Management

Plans**

Projects

14 Salinas River National Wildlife Refuge

Comprehensive Conservation Plan 15

Wildlife monitoring USFWS Photo

Chapter 3. Current and

Future Refuge Management

Current Management The Refuge currently has no integrated plan to guide the management of all of its resources and uses. Current management efforts on the Refuge focus on the protection of sensitive species, the enhancement of their habitats, and the management of public access to and use of Refuge lands.

A major emphasis of current management is the protection of the western snowy plovers by a variety of means, including: “Sensitive Wildlife Habitat

– Closed Area” signs; nest exclosures; symbolic fencing (low cable fence used to keep humans from approaching nests); and law enforcement patrols. Western snowy plovers are monitored each breeding season for reproductive success and all chicks are banded for further monitoring. In addition, mammalian predators (including nonnative red foxes, feral cats, and skunks) are managed to selectively remove problem predators during the snowy plover breeding season. Black legless lizards are surveyed monthly using a standardized protocol. Coastal sand dune habitat on the Refuge is maintained by intensive hand-weeding and chemical control of invasive nonnative vegetation. Native grassland has been restored and is maintained by regular mechanical mowing and weed-whacking, and riparian restoration is an ongoing effort along the Salinas River.

Wildlife and habitat protection has been a clear management priority for the Refuge because of the National Wildlife Refuge System’s conservation responsibility. Unrestricted or uncontrolled public use is not compatible with this mission nor with the purpose for which the Refuge was created.

However, limited recreational opportunities have been available for the public on the Refuge, including waterfowl hunting, surf fishing access, and wildlife observation and photography. Because the State Lands Commission owns the land below mean high water, the Service cannot, under any alternative, prohibit public access to these tidal lands adjacent to the Refuge.

Chapter 3

16 Salinas River National Wildlife Refuge

Beach access trail Jones & Stokes Photo

Management Alternatives In compliance with NEPA, four management alternatives were developed:

O Alternative 1: No Action, O Alternative 2: Reduce Public Use and Improve and Expand Resource

Management, O Alternative 3: Improve Public Use and Resource Management, and O Alternative 4: Expand and Improve Public Use and Resource

Management.

See the Draft CCP/EA for a summary and description of these alternatives.

Following comprehensive review and analysis, the Service selected Alternative 3 as its proposed action for the Refuge because it is the alternative that the Service believes best meets the following criteria.

O Achieves the mission of the National Wildlife Refuge System.

O Is consistent with the Service's ecoregion goals.

O Achieves the purpose of the Salinas River National Wildlife Refuge.

O Will be able to achieve the 15-year vision and goals for the Refuge.

O Maintains and restores the ecological integrity of the habitats and populations on the Refuge.

O Addresses the important issues identified during the scoping process.

O Addresses the legal mandates of the Service and the Refuge.

O Addresses the legal mandates of the Service and the Refuge.

O Is consistent with the scientific principles of sound fish and wildlife management and endangered species recovery.

Under Alternative 3, Improve Public Use and Resource Management, public use of the Refuge will be improved but not substantially expanded.

For example, informational signs and interpretive exhibits will be installed on the Refuge. In addition, the existing parking lot will be improved (e.g., graded and covered with gravel or another pervious material). The area in which seasonal waterfowl hunting is permitted will be reduced by approximately 15% to protect roosting California brown pelicans (Figure 5).

Current and Future Refuge Management

Comprehensive Conservation Plan 17

Coastal sand dunes USFWS Photo

All of the current management activities will continue. Some activities, such as special-status species inventories, will be substantially expanded.

New management tools and techniques will include: use of prescribed fire to augment mowing and herbicide use in the grassland/shrubland habitat;

inventories of all habitats on the Refuge; translocation of problem avian predators of the western snowy plover; and creation of a GIS database to track vegetation and population trends. In addition, the Service will pursue a long-term lease with the State Lands Commission so it can manage the beach and tidelands below mean high water. The selected management scenario is described in detail in the next section.

Refuge Management Direction: Objectives and Strategies Under the Improvement Act, specific management direction for NWRs is expressed in terms of objectives and strategies. As discussed in Chapter 1, refuge goals are broad, open-ended statements of refuge emphasis and direction. Refuge goals may or may not be feasible within the 15-year time frame of the CCP. In contrast, refuge objectives are concise statements of what will be achieved to help meet a particular refuge goal. When possible, refuge objectives should be measurable, clear, and specific, and should be feasible within the 15-year lifespan of the CCP. Refuge strategies describe specific actions or combinations of actions that can be used to meet an objective. In some cases, strategies describe specific projects in enough detail to assess funding and staffing needs. In other cases, further site-specific detail is required to implement a strategy; this usually takes the form of a step-down management plan (see Figure 4).

The three Refuge management goals stated in Chapter 1 are repeated below to provide the context for the proposed management direction. The objectives and strategies of this CCP are listed below as they apply to each of the three Refuge goals.

18 Salinas River National Wildlife Refuge

Organization Each objective and each strategy is given a unique numeric code for easy reference. Objectives have a two-digit code (e.g., 1.1, 1.2, 2.1, 2.2). The first digit corresponds to the goal to which the objective applies. The second digit is sequential and corresponds approximately to the priority given to that objective relative to others under the same goal. Similarly, each strategy has a three-digit code (e.g., 1.1.1, 1.1.2, 2.1.1, 2.1.2). The first and second digits refer to the appropriate goal and objective, respectively. The third digit is sequential; it indicates priority only for actions with deadlines.

Strategies are sometimes also grouped by subtopic.

Goals, Objectives, and Strategies

Goal 1.0. Protect, restore, and enhance populations of migratory birds and other native species and their habitats

Objective 1.1:

By 2017, the Refuge will restore native riparian vegetation along at least 1,500 feet of the south bank of the Salinas River to increase the density and diversity of migratory and resident songbirds on the Refuge.

Rationale: Protection and enhancement of riparian habitat, coastal lagoons, and estuaries is a major ecoregional goal. The Salinas River is specifically identified as a priority site in The Riparian

Bird Conservation Plan (RHJV 2000), and recommendations therein will guide habitat restoration efforts along the river.

Promoting structural diversity and volume of the understory and to restoring the width of the riparian corridor will be of primary importance. In addition to enhancing productivity of riparian-dependent birds, riparian restoration efforts will improve conditions for native fish by shading and cooling the water’s edge.

Restoration should also help slow erosion of the river bank.

Special consideration will be given to habitat needs of USFWS Birds of Conservation Concern that are included on the Pacific Region and Coastal California Bird Conservation lists (hereafter, Birds of Conservation Concern) (see Table C-2 in Appendix C).

Objective 1.1 – Restore Native Riparian Vegetation Code Strategy

Restore Native Riparian Vegetation

1.1.1 Continue to plant and maintain riparian trees and shrubs native to the lower Salinas River along the riverbank using cuttings from upstream populations; focus on improving structural diversity and corridor width and maintaining dense shrub and herbaceous layer vegetation.