B09_Gulf-Islands-GMP-EIS-JULY-2014_0001.pdf

FINAL GENERAL MANAGEMENT PLAN / ENVIRONMENTAL IMPACT STATEMENT

National Park Service U.S. Department of the Interior

Gulf Islands natIonal seashore Florida and Mississippi

National Park Service U.S. Department of the Interior

Gulf Islands National Seashore

Final General Management Plan / Environmental Impact Statement

July 2014

General Management Plan / Environmental Impact Statement Gulf Islands National Seashore

Escambia, Santa Rosa, and Okaloosa Counties, Florida Jackson and Harrison Counties, Mississippi

Gulf Islands National Seashore was established by the U.S. Congress on January 8, 1971. Part of the national park system, the national seashore encompasses barrier islands and coastal mainland in Mississippi and Florida and consists of 12 separate units stretching along 160 miles from Cat Island in Mississippi to the eastern end of Santa Rosa Island in Florida. The current authorized acreage for the national seashore is 139,175 acres, which includes 3,800 acres that are designated wilderness.

In September 2003, Gulf Islands National Seashore initiated a general management planning effort to provide guidance for managing the national seashore during the next 20 years. The national seashore’s existing management plan, completed in 1978, does not provide adequate guidance for current environmental, social, political, and legal conditions influencing management of the national seashore. The existing management plan does not address the 2,000-acre Cat Island boundary expansion or the addition of designated wilderness (Horn and Petit Bois islands), and it also does not meet current NPS planning program standards. The current planning effort will develop and evaluate a range of alternative manage-ment strategies to address these issues and to address changing visitor use patterns, cultural resources, appropriate scale and type of seashore facilities, wildlife populations, threatened and endangered species, commercial services, and gateway community relationships. The series of storms experienced in the Gulf of Mexico between 2004 and 2005 resulted in a request to suspend the planning effort. During the winter of 2006, national seashore staff and the National Park Service Southeast Regional Office requested that the general management planning effort resume.

This new management plan examines four alternatives for managing Gulf Islands National Seashore for the next 15 to 20 years. It also analyzes the impacts of implementing each of the alternatives. Alternative 1 (the no-action alternative) continues the existing management and trends, including recovery efforts to reestablish the national seashore’s programs and facilities that existed in 2004 (before Hurricane Ivan).

This alternative serves as a basis for comparison in evaluating the other alternatives. The concept for management under alternative 2 would reduce the level of infrastructure rebuilt on the barrier islands and allow natural processes to predominate. The visitor experience would transition into a more primitive island experience, while mainland programs and services would be enhanced. The concept for management under alternative 3 would enhance visitor education, research, and resource protection opportunities throughout the national seashore.

Alternative 3 is the National Park Service preferred alternative. The concept for management under alternative 4 would expand and diversify visitor opportunities throughout the national seashore by leveraging additional partnerships.

Overall, the impacts of implementing alternative 1 would be minor to moderate, long term, and adverse on resources, visitor experience, and national seashore operations. Actions proposed in alternative 2 would be expected to have a long-term, minor to moderate, beneficial impact on national seashore operations.

Impacts on natural resources are expected to be long term, beneficial, and minor to moderate in intensity.

Impacts on visitor experience are expected to be long term, moderate in intensity, and adverse. Implemen-tation of alternative 3 would have long-term, beneficial, and moderate impacts on natural resources although in some areas, adverse impacts might occur.

Overall, impacts on visitor experience are expected to be long term, minor to moderate in intensity, and beneficial. The key impacts of implementing alternative 4 on natural resources are expected to be long term, beneficial, and moderate in intensity, although in some areas adverse impacts may occur.

Overall, impacts on visitor experience are expected to be long term, moderate in intensity, and beneficial.

Across all action alternatives, impacts on historic structures would be expected to be both adverse and beneficial and of negligible to minor intensity.

This Final General Management Plan / Environmental Impact Statement has been distributed to other agencies and interested organizations and individuals for their review and comment. A 30-day review period will commence with the release of this document. Following that period, the NPS Southeast Regional Director may sign a Record of Decision for this plan.

U.S. Department of the Interior • National Park Service

SUMMARY

NATIONAL SEASHORE

The Gulf Islands National Seashore (also referred to as the national seashore) was established by the U.S. Congress on January 8, 1971. As part of the national park system, the national seashore consists of two mainland and four barrier island portions in the northwest section of Florida’s panhandle and another mainland section and six barrier islands in Mississippi. These lands (139,175 acres total) were set aside for the purpose of preserving areas possessing outstanding natural, historic, and recreational values for public use and enjoyment.

PLANNING PURPOSE AND NEED

General management plans are required for all units of the national park system and are intended to establish the future management direction of a park unit. General management plans look 20 or more years into the future and consider the national park system unit holistically, in its full ecological and cultural context and as part of a surrounding region.

This general management plan will provide comprehensive guidance for perpetuating natural systems, preserving cultural resources, and providing opportunities for a quality visitor experience at Gulf Islands National Seashore. The purpose of this plan is to decide how the National Park Service (NPS) can best fulfill the national seashore’s purpose, maintain its significance, and protect its resources unimpaired for the enjoyment of present and future generations. The plan does not provide specific and detailed answers to every issue confronting the national seashore, but rather is a frame work to assist NPS managers in making decisions today and in the future.

The national seashore’s last management plan, completed in 1978, is outdated. Much has changed over the last 30 years or so, and the

1978 plan no longer adequately addresses the issues confronting the national seashore. New information about the significance of natural and cultural resources of the national seashore has been recognized. In Mississippi, the boundary of the national seashore has been expanded to include most of Cat Island and portions of Marsh Point near Davis Bayou. Horn and Petit Bois islands were designated wilderness in 1978 by the U.S.

Congress. Private development adjacent to and near the national seashore has increased, and this trend has accelerated in recent years.

Other noticeable trends include an increase in the intensity and frequency of storms in the Gulf of Mexico. This weather pattern has accelerated the rate of needed repairs on national seashore infrastructure resulting from storm damage. Climate change forecasts reinforce the likelihood that this trend will continue into the foreseeable future. The national seashore expects new management challenges as a result of these changes. This general management plan is needed to update the management frame work for the national seashore, address changing issues and conditions, incorporate new resource information, and provide management direction for new national seashore lands.

MANAGEMENT ZONES

Management zones prescribe how different areas of the national seashore would be managed. Seven management zones have been developed for the national seashore:

1. diverse visitor opportunity zone

2. recreational beach zone

3. natural settings with dispersed recreation zone

4. seagrass bed zone

5. nonmotorized, primitive visitor opportunity zone

6. resources management and science priority zone ii

Summary

7. national seashore operations zone

The diverse visitor opportunity zone includes areas capable of absorbing a diverse range of outdoor recreation and interpretive visitor opportunities combined within both natural and developed environments. Visitors are provided a variety of services including orientation, education, and other structured activities enabling them to enjoy and learn about the national seashore.

The recreational beach zone accommodates traditional recreational beach activities and facilities. Levels of visitor encounters are expected to be highest near access points to and from the beach.

The natural settings within the dispersed recreation zone includes areas largely undeveloped, in their natural settings, and managed for dispersed motorized and/or nonmotorized recreational activities.

The seagrass bed zone includes areas containing seagrass beds and/or areas of suitable habitat for seagrass establishment.

These areas are managed to prevent resource damage to seagrass beds from vessel groundings, anchoring, and propeller scarring. Depending on the degree of impacts observed and recorded through NPS monitoring efforts, restrictions may be placed on visitor use in these areas.

The nonmotorized, primitive visitor opportunity zone comprises undeveloped, primitive, intact wildlands that is managed to perpetuate the natural settings. Visitors would need to be self-reliant and prepared for personal challenges. There would only be occasional encounters with others outside of one’s group beyond the entrance of the zone.

The resources management and science priority zone contains areas of high resource sensitivity and intrinsic value and is managed for the highest level of protection. Visitor use is restricted unless permitted for research and/or educational purposes.

The national seashore operations zone includes areas of low resource sensitivity that are reserved for administrative and maintenance support of NPS operations.

Visitor use is discouraged in these areas;

however, visitors engaged in service projects or other official business may be involved in activities in this zone.

The alternatives presented in this document each propose a different configuration of the management zones within the national seashore based on the overall concept for each action alternative. (The no-action alternative, which describes existing conditions, contains no management zoning.)

In every management zone, the national seashore intends to preserve and protect natural and cultural resources to the greatest extent possible according to NPS Manage-ment Policies 2006 and available funds.

ALTERNATIVES

Four alternatives, including the preferred alternative, for future management of Gulf Islands National Seashore are presented in this document. Each alternative is consistent with maintaining the national seashore’s purpose, significance, and fundamental resources and values; as well as input from the public and agency staff. The alternatives present different choices for managing resources, visitor use, and facilities within the national seashore for the next 15 to 20 years.

The four alternatives are: alternative 1 (no-action alternative), alternative 2, alternative 3 (NPS preferred alternative), and alternative 4.

Alternative 1 (No-Action Alternative)

The no-action alternative primarily reflects current conditions and activities at the national seashore. This alternative is provided as a baseline against which to compare the “action” alternatives. Under this alternative, current national seashore management direction would continue as guided by the 1978 management plan and subsequent, more iii detailed implementation plans. NPS staff would continue to protect and maintain known cultural and natural resources as time and funding allow. Cultural and natural resource inventory work and monitoring would continue. NPS staff would continue to encourage and seek funding for the research needed to fill the gaps in knowledge about resources following the national seashore’s strategic plan.

The key impacts of continuing existing management conditions and trends would include use and rehabilitation of cultural resources such as fortifications and other structures. The changing demands from a growing population with different education and interpretive needs would not be met.

Natural resources management programs and funding would remain at current levels.

Partnerships with other agencies or local organizations would advance to some degree.

Stabilization work on historic structures would be beneficial and long term. Overall, the impacts of continuing actions under alternative 1 would be minor to moderate, long term, and adverse on resources, visitor experience, and national seashore operations.

Alternative 2

Under alternative 2, the national seashore would be managed to encourage, unimpeded, the dynamic coastal processes of the barrier island system. Except for continued preserva-tion of nationally significant forts and essential ship channel dredging, visitor access, beach recreation, and management would yield to the changing natural environment.

The opportunity to replace some roads with alternative transportation systems and to minimize developed facilities on barrier islands would be explored. Where appropriate, administrative and maintenance facilities would be relocated from the barrier islands to the mainland. Actions proposed in alternative 2 would be expected to have a long-term, minor to moderate, beneficial impact on national seashore operations.

Under this alternative, natural resources on the barrier islands would be allowed to adapt to natural coastal processes. For example, as storms occur, restoration activities would be focused on reestablishing natural conditions rather than rebuilding infrastructure or facilities on the barrier islands. A marine management program would be developed to inventory and manage marine resources.

Overall, impacts on natural resources are expected to be long term, beneficial, and minor to moderate in intensity.

A cultural management program would also be developed under this alternative. Key impacts on cultural resources would include documentation, stabilization, and preserva-tion of historic structures and fortifications.

Subsequent to a major storm or other natural event, cultural resource conditions would be assessed and recovery efforts would be limited to repair/replacement in kind, stabilization, and data collection. Impacts that are beneficial and long term, as well as adverse, long term, and of negligible to minor intensity because of the loss of historic fabric during rehabilitation and restoration work, would be expected for cultural resources. Stabilization work would be beneficial and long term.

Visitors would be provided with more primitive opportunities on the barrier islands, while recreational opportunities on the mainland would continue to be varied.

Educational and interpretive opportunities would be enhanced on the mainland to compensate for reduced visitor contact and education on the barrier islands. Overall, impacts on visitor experience are expected to be long term, moderate in intensity, and adverse.

Alternative 3 (NPS Preferred Alternative)

In addition to restoring services and facilities to pre-Hurricane Ivan conditions as outlined under alternative 1, under alternative 3, the national seashore would be managed as an outdoor classroom for exploring the natural iv

Summary and human history of the Gulf of Mexico’s barrier islands and coastal environments.

Interpretive programs would focus on illustrating how barrier islands provide protection to the mainland coastline and the part these islands have played in the last 5,000 years of historic human occupation. Manage-ment would also emphasize expanded research opportunities to help inform the educational and interpretive programs. The national seashore would establish an environmental education and research center and develop an active stewardship program while providing expanded educational and interpretive opportunities. The wild and undeveloped nature of the national seashore would be maintained while providing visitor access to seashore educational and recreational opportunities.

Elements of this alternative would support the resilience of the national seashore to expected impacts from climate change, such as sea level rise, coastal erosion, and higher storm surges, all of which may affect cultural and natural resources and visitor experience at the seashore. Strategies for climate change adaptation and sustainability in the preferred alternative include burying overhead powerlines to increase resilience, reducing the need for new development through facility rebuilding/reuse and use of mobile interpretive vans, rebuilding Fort Pickens Road only if feasible, enhancing use of alternative transportation and solar technology, and addressing long-term sustainability strategies and viability of future investments.

The key impacts of implementing alternative 3 would include the development of a cultural resources management program. Historic fortifications and other structures would be rehabilitated to portray their appearance or function during a specific period. Impacts on historic structures would be adverse, long term, and of negligible to minor intensity because of the loss of historic fabric during rehabilitation work. Stabilization work would be beneficial and long term.

Under this alternative, natural resources management would be greatly enhanced with the development of a marine management program, including enhanced scientific study and research in the national seashore. Overall, impacts on natural resources are expected to be long term, beneficial, and moderate in intensity, although in some areas, adverse impacts might occur.

Expanded interpretive programs would include bringing history to life at select coastal fortifications. Overall, impacts on visitor experience are expected to be long term, minor to moderate in intensity, and beneficial.

Alternative 4

The concept for management under alterna-tive 4 would also include the restoration of services and facilities to pre-Hurricane Ivan conditions as outlined under alternative 1. In addition, the national seashore would be managed to provide a diversity of recrea-tional and visitor educational opportunities for experiencing the Gulf of Mexico coastal environments. The National Park Service would seek to collaborate with educational and cultural institutions, nonprofit organiza-tions, and commercial service operators to provide national seashore visitors a greater array of recreational and educational opportunities than what is currently being provided.

The key impacts of implementing alternative 4 on cultural resources would include the adaptive reuse of some historic fortifications and structures to support a diverse range of visitor opportunities. Others might be used for contemporary purposes if they lack potential for restoration to a specific historic period.

Impacts on historic structures would be adverse, long term, and of negligible to minor intensity because of the loss of historic fabric during rehabilitation and restoration work.

Stabilization work would be beneficial and long term.

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Under this alternative, natural resources would be managed to provide a variety of settings that support access and opportunities for visitors. Some natural resources could be modified to provide a wide range of activities, services, and interpretive programs. Overall, impacts on natural resources are expected to be long term, beneficial, and moderate in intensity, although in some areas adverse impacts may occur.

The key impacts on visitor experience would include a greater diversity of visitor oppor-tunities provided by the national seashore and by commercial providers and partners. In some areas, there would be less solitude because of increased access. Overall, impacts on visitor experience are expected to be long term, moderate in intensity, and beneficial.

NEXT STEPS

Following distribution of the final plan and a 30-day no-action period, a Record of Decision may be prepared for signature by the NPS regional director documenting the selection of an alternative for implementation.

Although this General Management Plan / Environmental Impact Statement provides the analysis and justification for future national seashore funding proposals, this plan does not guarantee future NPS funding. Many actions would be necessary to achieve the desired conditions for natural resources, cultural resources, recreational opportunities, and facilities as envisioned in this plan. The National Park Service will seek funding to achieve these desired conditions. Although the national seashore hopes to secure this funding and will prepare itself accordingly, the national seashore may not receive enough funding to achieve all desired conditions.

National seashore managers will need to continue to pursue other options, including expanding the service of volunteers, drawing on existing or new partnerships, and seeking alternative funding sources, including the philanthropic community. Even with assistance from supplemental sources, NPS managers may be faced with difficult choices when setting priorities. The General Management Plan / Environmental Impact Statement provides the frame work within which to make these choices.

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CONTENTS

CHAPTER 1: INTRODUCTION 1

A GUIDE TO THIS DOCUMENT 3

OVERVIEW OF THE NATIONAL SEASHORE 4

BACKGROUND 9

Plan Purpose and Need 9 Planning Issues and Concerns 10

Issues 10

FOUNDATION FOR PLANNING AND MANAGEMENT 14

Purpose 14 Significance 14 Fundamental Resources and Values 14 Primary Interpretive Themes 15 Special Mandates and Administrative Commitments 20

National Seashore Legislative Boundary 20 Land Acquisition 20 Pensacola Naval Air Station 20 Wilderness Management 20 Navigation and Maritime Safety 21 Rights-of-Way and Easements 21 Local Utility Agreements and Easements 22 Hunting and Fishing 22 Commercial Services 22 Law Enforcement 23 Fire Protection and Emergency Medical Services 23 Fort Pickens Aquatic Preserve 24 Outstanding Florida Waters 24

Servicewide Laws and Policies 29

DESIRED CONDITIONS AND MANAGEMENT STRATEGIES 30

Natural Resources Management Strategies 31 Cultural Resource Management Strategies 39 Visitor Use Management Strategies 44 Other Management Strategies 49

BOUNDARY ADJUSTMENTS 53

RELATIONSHIP OF THE GENERAL MANAGEMENT PLAN TO OTHER PLANNING EFFORTS 54

NPS Management Plans and Studies 54 Fort Pickens / Gateway Community Alternative Transportation Plan 54 Fire Management Plan 54 Collections Management Plan 54 Personal Watercraft Use 55 Wilderness Management Plan 55

Other Agency Plans 56 Mississippi Coastal Improvement Program 56 vii

Marine Protected Area Planning 56 Big Lagoon State Park Management Plan 57

CHAPTER 2: ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE 59

INTRODUCTION 61

MANAGEMENT ZONES 62

Overview 62 Management Zone Descriptions 63

Diverse Visitor Opportunity Zone 63 Recreational Beach Zone 63 Natural Settings with Dispersed Recreation Zone 64 Seagrass Bed Zone 64 Nonmotorized, Primitive Visitor Opportunity Zone 65 National Seashore Operations Zone 65

USER CAPACITY 66

Overview 66 Indicators and Standards 68

Seabird Closures 68 Shorebird Mortality 68 Illegal Parking 69 Wait Time 69 Commuter Traffic on Park and VFW Roads 70 Impacts on Seagrass 70 Boat Densities on the Wilderness Islands 73 Cleanliness Complaints 73 Vandalism 73 Pet Violations 74

Long-term Monitoring 74

ALTERNATIVES 80

ALTERNATIVE 1 (NO-ACTION ALTERNATIVE) 81

Concept 81 Visitor Experience 81 Natural Resource Conditions 81 Cultural Resource Conditions 81

Area-Specific Management Actions—Florida Units 82 Naval Live Oaks Area 82 Pensacola Naval Air Station Historic Sites 82 Perdido Key Area 85 Fort Pickens Area 86 Santa Rosa Area 87 Okaloosa Area 88

Area-Specific Management Actions—Mississippi Units 88 Davis Bayou 88 Cat Island 89 West Ship Island 90 East Ship Island 91 Horn and Petit Bois Islands (Designated Wilderness) 91

Staffing and Costs 92

ALTERNATIVE 2 93

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Contents

Concept 93 Visitor Experience 93 Natural Resource Conditions 93 Cultural Resource Conditions 94

Area-Specific Management Actions—Florida Units 94 Naval Live Oaks Area 94 Pensacola Naval Air Station Historic Sites 95 Perdido Key Area 101 Fort Pickens Area 102 Santa Rosa Area 104 Okaloosa Area 105

Area-Specific Management Actions—Mississippi Units 106 Davis Bayou 106 Cat Island 107 West Ship Island 108 East Ship Island 108 Horn and Petit Bois Islands (Designated Wilderness) 109

Staffing and Costs 110

ALTERNATIVE 3 (NPS PREFERRED ALTERNATIVE) 112

Concept 112 Visitor Experience 112 Natural Resource Conditions 112 Cultural Resource Conditions 113

Area-Specific Management Actions—Florida Units 114 Naval Live Oaks Area 114 Pensacola Naval Air Station Historic Sites 115 Perdido Key Area 116 Fort Pickens Area 117 Santa Rosa Area 124 Okaloosa Area 125

Area-Specific Management Actions—Mississippi Units 125 Davis Bayou 125 Cat Island 127 West Ship Island 128 East Ship Island 129 Horn and Petit Bois Islands (Designated Wilderness) 130

Staffing and Costs 131

ALTERNATIVE 4 133

Concept 133 Visitor Experience 133 Natural Resource Conditions 134 Cultural Resource Conditions 134

Area-Specific Management Actions—Florida Units 135 Naval Live Oaks Area 135 Pensacola Naval Air Station Historic Sites 136 Perdido Key Area 141 Fort Pickens Area 142 Santa Rosa Area 144 Okaloosa Area 145

Area-Specific Management Actions—Mississippi Units 146 Davis Bayou 146 ix

Cat Island 147 West Ship Island 149 East Ship Island 150 Horn and Petit Bois Islands (Designated Wilderness) 150

Staffing and Costs 151

COST SUMMARY OF ALTERNATIVES 153

IMPLEMENTATION OF THE GENERAL MANAGEMENT PLAN 155

Implementation Funding 155 Key Implementation Plans 155

Marine Resources Management Plan 155 Resource Stewardship Strategy 156 Climate Change Planning 156 Commercial Services Plan 156 Pensacola Lighthouse Development Concept Plan 156 Cat Island Development Concept Plan 157 Wilderness and Backcountry Management Plan 157 Asset Management Plan 157 Archeological Overview and Assessment 157 Historic Resource Study 157 National Register of Historic Places Nominations 158 Historic Structure Reports and Resource Studies 158 Long-Range Interpretive Plan 158 Visitor Services Project 158 Administrative History 158 Cultural Landscape Studies 158

MITIGATION MEASURES FOR THE ACTION ALTERNATIVES 160

General 160 Cultural Resources 160 Natural Resources 161

General 161 Wetlands 161 Geology and Soils 161 Vegetation and Wildlife 162 Threatened and Endangered Species 162

IDENTIFICATION OF THE NPS PREFERRED ALTERNATIVE 165

ENVIRONMENTALLY PREFERABLE ALTERNATIVE 167

ALTERNATIVES AND MANAGEMENT ACTIONS CONSIDERED BUT DISMISSED 186

CHAPTER 3: AFFECTED ENVIRONMENT 187

INTRODUCTION 189

Deepwater Horizon, Mississippi Canyon 252 Oil Spill Incident 190

HISTORICAL OVERVIEW 192

Introduction 192 Prehistory 192

Paleo-Indian Period 192 Archaic Period 192 Woodland Period 193 Mississippian Period 193 x

Historic Period 194

CULTURAL RESOURCE TOPICS CONSIDERED AND ANALYZED IN DETAIL 197

Historic Structures 197 Introduction 197 List of Classified Structures 198 Forts on the National Register of Historic Places 198 Artillery Batteries 199 Additional Buildings and Structures in the Fort Pickens Area 200 Miscellaneous Structures 200

NATURAL RESOURCE TOPICS CONSIDERED AND ANALYZED IN DETAIL 203

Geological Processes 203 Santa Rosa Island 203 Mississippi–Alabama Barrier Islands 204

Soils 205 Water Quality 207

Florida District 208 Mississippi District 209 Water Quality Monitoring Programs 210

Wetlands 212 Terrestrial Vegetation and Wildlife 212

Emergent and Terrestrial Vegetation 213 Nonnative Plant Species 223 Wildlife and Wildlife Habitat 224 Nonnative Wildlife Species 226 Climate Change and Wildlife 226

Aquatic Vegetation and Wildlife 227 Submerged Aquatic Vegetation 227 Fish and Fish Habitat 228

Species of Special Concern 230 Federally Listed Threatened and Endangered Species 230 Other Special Status Species 238

VISITOR USE AND EXPERIENCE TOPICS ANALYZED IN DETAIL 244

Visitation 244 Visitor Opportunities 247

Swimming 248 Diving 248 Camping 248 Fishing 249 Trail Opportunities 249 Wilderness Experience 250 Shoreline Use 250 General Watercraft Use (Motorboats, Canoes, and Kayaks) 250 Wildlife-Watching 251 Picnicking 251 Bicycling 252 Exploring History 252

SOCIAL AND ECONOMIC ENVIRONMENT TOPICS ANALYZED IN DETAIL 253

Florida District Area of Influence 253 xi

Mississippi District Area of Influence 254 Overview 254 Jackson County, Mississippi 254 Harrison County, Mississippi 255

Urban Growth at the Boundaries of the National Seashore 256 Gulf Islands National Seashore’s Impact on Local and Regional Economy 256

Expenditures of National Seashore Visitors 256 Expenditures of the National Seashore 257 National Seashore Employee Salaries 258

NATIONAL PARK SERVICE OPERATIONS TOPICS ANALYZED IN DETAIL 259

Management Divisions 259 Superintendent’s Office and Administration Division 259 Resource Education Division 259 Resource and Visitor Protection Division 260 Science and Resources Management Division 260 Facility Management Division 261

Other NPS Operations 262

IMPACT TOPICS CONSIDERED BUT DISMISSED 263

Cultural Resources 263 Archeological Resources (Terrestrial and Marine) 263 Cultural Landscapes 264 Ethnographic Resources 265 Museum Collections 265

Natural Resources 267 Air Quality 267 Ecologically Critical Areas 268 Energy Efficiency and Conservation Potential 268 Natural or Depletable Resource Conservation Potential 268 Prime and Unique Agricultural Lands 268 Soundscapes 268 Water Quantity 269 Floodplains 269

OTHER TOPICS 269

Environmental Justice 269 Quality of the Built Environment 270 Indian Trust Resources 270 Wilderness Character 270 Carbon Footprint 271

CHAPTER 4: ENVIRONMENTAL CONSEQUENCES 273

INTRODUCTION 275

Terms and Assumptions 275 Impacts on Cultural Resources and Section 106 of the National Historic Preservation Act 276 Climate Change 276 Cumulative Impacts 277

Hurricane Recovery Projects 277 Deepwater Horizon Oil Spill Response 278 U.S. Army Corps of Engineers Dredging Activities 278 Mississippi Coastal Improvement Program 278 Oil and Gas Development 279 xii

Private Dredging Activities 279 Impairment of National Seashore Resources 279

IMPACTS ON HISTORIC STRUCTURES 280

Methods and Assumptions for Analyzing Impacts 280 Impacts of Implementing Alternative 1 280

Fort Pickens Area 280 Pensacola Naval Air Station / Fort Barrancas 281 Perdido Key 281 West Ship Island 282 Cumulative Impacts 282 Conclusion 283 Section 106 Summary 283

Impacts of Implementing Alternative 2 283 Fort Pickens Area 283 Pensacola Naval Air Station / Fort Barrancas 284 Perdido Key 284 West Ship Island 284 Cumulative Impacts 285 Conclusion 286 Section 106 Summary 286

Impacts of Implementing Alternative 3 286 Fort Pickens Area 286 Pensacola Naval Air Station / Fort Barrancas 287 Perdido Key 288 West Ship Island 288 Cumulative Impacts 290 Conclusion 290 Section 106 Summary 290

Impacts of Implementing Alternative 4 290 Fort Pickens Area 290 Pensacola Naval Air Station / Fort Barrancas 291 Perdido Key 292 West Ship Island 293 Cumulative Impacts 294 Conclusion 295 Section 106 Summary 295

IMPACTS ON GEOLOGIC PROCESSES 296

Methods and Assumptions for Analyzing Impacts 296 Impacts of Implementing Alternative 1 296

Florida District Areas 296 Mississippi District Areas 297 Cumulative Impacts 297 Conclusion 298

Impacts of Implementing Alternative 2 298 Florida District Areas 298 Mississippi District Areas 299 Cumulative Impacts 299 Conclusion 300

Impacts of Implementing Alternative 3 300 Florida District Areas 300 Mississippi District Areas 301 xiii

Cumulative Impacts 301 Conclusion 302

Impacts of Implementing Alternative 4 302 Florida District Units 302 Mississippi District Areas 303 Cumulative Impacts 304 Conclusion 304

IMPACTS ON SOILS 305

Methods and Assumptions for Analyzing Impacts 305 Impacts of Implementing Alternative 1 305

Florida District Areas 305 Mississippi District Areas 306 Cumulative Impacts 306 Conclusion 307

Impacts of Implementing Alternative 2 307 Florida District Areas 307 Mississippi District Areas 308 Cumulative Impacts 308 Conclusion 309

Impacts of Implementing Alternative 3 309 Florida District Areas 309 Mississippi District Areas 310 Cumulative Impacts 310 Conclusion 311

Impacts of Implementing Alternative 4 311 Florida District Areas 311 Mississippi District Areas 312 Cumulative Impacts 313 Conclusion 313

IMPACTS ON WATER QUALITY 314

Methods and Assumptions for Analyzing Impacts 314 Impacts of Implementing Alternative 1 314

Florida District Areas 314 Mississippi District Areas 315 Cumulative Impacts 315 Conclusion 316

Impacts of Implementing Alternative 2 316 Florida District Areas 316 Mississippi District Areas 317 Cumulative Impacts 318 Conclusion 319

Impacts of Implementing Alternative 3 319 Florida District Areas 319 Mississippi District Areas 319 Cumulative Impacts 320 Conclusion 321

Impacts of Implementing Alternative 4 321 Florida District Areas 321 Mississippi District Areas 322 Cumulative Impacts 322 xiv

Conclusion 323

IMPACTS ON WETLANDS 324

Methods and Assumptions for Analyzing Impacts 324 Impacts of Implementing Alternative 1 324

Florida District Areas 324 Mississippi District Areas 324 Cumulative Impacts 325 Conclusion 325

Impacts of Implementing Alternative 2 326 Florida District Areas 326 Mississippi District Areas 326 Cumulative Impacts 326 Conclusion 327

Impacts of Implementing Alternative 3 327 Florida District Areas 327 Mississippi District Areas 327 Cumulative Impacts 328 Conclusion 328

Impacts of Implementing Alternative 4 328 Florida District Areas 328 Mississippi District Areas 329 Cumulative Impacts 330 Conclusion 330

IMPACTS ON TERRESTRIAL VEGETATION AND WILDLIFE 331

Methods and Assumptions for Analyzing Impacts 331 Impacts of Implementing Alternative 1 331

Florida District Areas 331 Mississippi District Areas 332 Cumulative Impacts 333 Conclusion 333

Impacts of Implementing Alternative 2 333 Florida District Areas 333 Mississippi District Areas 334 Cumulative Impacts 335 Conclusion 335

Impacts of Implementing Alternative 3 336 Florida District Areas 336 Mississippi District Areas 336 Cumulative Impacts 337 Conclusion 338

Impacts of Implementing Alternative 4 338 Florida District Areas 338 Mississippi District Areas 339 Cumulative Impacts 340 Conclusion 341

IMPACTS ON AQUATIC VEGETATION AND WILDLIFE 342

Methods and Assumptions for Analyzing Impacts 342 Impacts of Implementing Alternative 1 342

Florida District Areas 342 xv

Mississippi District Areas 343 Cumulative Impacts 343 Conclusion 344

Impacts of Implementing Alternative 2 344 Florida District Areas 344 Mississippi District Areas 344 Cumulative Impacts 345 Conclusion 346

Impacts of Implementing Alternative 3 346 Florida District Areas 346 Mississippi District Areas 346 Cumulative Impacts 347 Conclusion 348

Impacts of Implementing Alternative 4 348 Florida District Areas 348 Mississippi District Areas 348 Cumulative Impacts 349 Conclusion 350

IMPACTS ON SPECIES OF SPECIAL CONCERN 351

Methods and Assumptions for Analyzing Impacts 351 Impacts of Implementing Alternative 1 352

Florida District Areas 352 Mississippi District Areas 353 Cumulative Impacts 353 Conclusion 354

Impacts of Implementing Alternative 2 354 Florida District Areas 354 Mississippi District Areas 355 Cumulative Impacts 355 Conclusion 356

Impacts of Implementing Alternative 3 356 Florida District Areas 357 Mississippi District Areas 357 Cumulative Impacts 358 Conclusion 359

Impacts of Implementing Alternative 4 360 Florida District Areas 360 Mississippi District Areas 361 Cumulative Impacts 361 Conclusion 362

IMPACTS ON VISITOR USE AND EXPERIENCE 363

Methods and Assumptions for Analyzing Impacts 363 Definitions of Intensity Levels 363 Type of Impact 363

Impacts of Implementing Alternative 1 363 Analysis 363 Cumulative Impacts 365 Conclusion 366

Impacts of Implementing Alternative 2 366 Analysis 366 xvi

Cumulative Impacts 368 Conclusion 369

Impacts of Implementing Alternative 3 369 Analysis 369 Cumulative Impacts 370 Conclusion 371

Impacts of Implementing Alternative 4 372 Analysis 372 Cumulative Impacts 373 Conclusion 374

IMPACTS ON THE SOCIAL AND ECONOMIC ENVIRONMENT 375

Methods and Assumptions for Analyzing Impacts 375 Definitions of Intensity Levels 375 Type of Impact 375

Impacts of Implementing Alternative 1 375 Analysis 375 Cumulative Impacts 376 Conclusion 377

Impacts of Implementing Alternative 2 377 Analysis 377 Cumulative Impacts 378 Conclusion 379

Impacts of Implementing Alternative 3 379 Analysis 379 Cumulative Impacts 380 Conclusion 381

Impacts of Implementing Alternative 4 381 Analysis 381 Cumulative Impacts 383 Conclusion 383

IMPACTS ON NPS OPERATIONS 385

Methods and Assumptions for Analyzing Impacts 385 Duration of Impact 385 Definitions of Intensity Levels 385 Type of Impact 385

Impacts of Implementing Alternative 1 385 Analysis 385 Cumulative Impacts 386 Conclusion 387

Impacts of Implementing Alternative 2 387 Analysis 387 Cumulative Impacts 388 Conclusion 389

Impacts of Implementing Alternative 3 389 Analysis 389 Cumulative Impacts 390 Conclusion 391

Impacts of Implementing Alternative 4 391 Analysis 391 Cumulative Impacts 392 xvii

Conclusion 393

OTHER REQUIRED ANALYSES 394

Unavoidable Adverse Impacts 394 Irreversible and Irretrievable Commitments of Resources 394 Relationship of Short-term Uses and Long-term Productivity 394 Energy Requirements and Conservation Potential 394

Alternative 1 (No Action) 394 Alternative 2 394 Alternative 3 (NPS Preferred Alternative) 395 Alternative 4 395

CHAPTER 5: CONSULTATION AND COORDINATION 397

PUBLIC AND AGENCY INVOLVEMENT 399

Public Involvement 399 Public Scoping 399 Hurricanes and Deferred Planning 399 Alternatives Development and Public Meetings 399 Planning Update / Draft General Management Plan 400 Summary of Public Comments from the 2004 Public Meetings and 2007 Newsletter and Public Meetings 400 Urban Encroachment 400 Enhancing Public Access 401 Enhancing Education and Interpretation 401 Increased Recreational Opportunities 402 Management of Cat Island 403 Planning Effort (Newsletter Respondents) 403 Draft General Management Plan and Public Meetings 404

Federal Agencies 404 State Agencies 405 American Indian Tribes 406

COMMENTS AND RESPONSES ON THE DRAFT ENVIRONMENTAL IMPACT STATEMENT / GENERAL

MANAGEMENT PLAN 408

LIST OF AGENCIES, ORGANIZATIONS, AND INDIVIDUALS RECEIVING A COPY OF THIS DOCUMENT

Federal Agencies 416 American Indian Tribal Governments 416 U.S. Senators and Representatives 416 State Officials, Senators, and Representatives 416 State Agencies and Commissions 416 Regional, County, and Local Governments 417 Organizations, Businesses, and Universities 417 Libraries 417 School Districts 417 Concessioners and Businesses 417 Newspapers and Magazines 417 Radio and Television Stations 418 Individuals 418 xviii

APPENDIXES, SELECTED REFERENCES, PREPARERS AND CONSULTANTS, AND INDEX 419

APPENDIX A: LEGISLATION 421

APPENDIX B: LIST OF PLANT SPECIES AND SCIENTIFIC NAMES 449

APPENDIX C: 1970 BOUNDARY MAP 453

APPENDIX D: STAKEHOLDER COMMENT LETTERS 459

SELECTED REFERENCES 521

PREPARERS AND CONSULTANTS 535

INDEX 537

Maps

Gulf Islands National Seashore Region 7 Gulf Islands National Seashore Legislative Boundary: Florida Units 25 Gulf Islands National Seashore Legislative Boundary: Mississippi Units 27 Alternative 1 83 Alternative 2: Florida Units 97 Alternative 2: Mississippi Units 99 Alternative 3: Florida Units 119 Alternative 3: Mississippi Units 121 Alternative 4: Florida Units 137 Alternative 4: Mississippi Units 139

Figures

Figure 1. User Capacity Frame Work 67 Figure 2. Annual Recreational Visitation to Gulf Islands National Seashore 245

Tables

Table 1. Summary of User Capacity Indicators, Standards, and Potential Management Strategies 76 Table 2. Cost Estimates for the Alternatives in 2013 154 Table 3. Summary Comparison of the Alternatives 169 Table 4. Summary of Impacts by Topic for Each Alternative 183 Table 5. National Register-Listed Historic Structures at the National Seashore 197 Table 6. Additional Buildings and Structures in the Fort Pickens Area 202 Table 7. Miscellaneous Structures 202 Table 8. Essential Fish Habitat for Key Species in Pensacola Bay and the Mississippi Sound 229 Table 9. List of Threatened and Endangered Species within Gulf Islands National Seashore 231 Table 10. Estimated Visitation at Locations within the Gulf Islands National Seashore 246 Table 11. Population Trends for Escambia and Santa Rosa Counties 253 xix

Table 12. Population Trends of Jackson County 255 Table 13. Population Trends of Harrison County 255 Table 14. Urban Communities Adjacent to Gulf Island National Seashore Units 256 Table 15. National Seashore Operations Budget 257 Table 16. National Seashore Nonsalary Contributions to the Regional Economy by State 258 Table 17. Combined NPS Salaries by County, FY 2008 258 Table 18. Summary of Federally Listed Species Determinations for the Preferred Alternative 360 xx

CHAPTER ONE

INTRODUCTION

GULF ISLANDS NATIONAL SEASHORE

A GUIDE TO THIS DOCUMENT

This Final General Management Plan / Environmental Impact Statement is organized into five chapters plus appendixes.

Each section is described below.

Chapter 1: Introduction describes the con-text for the entire document. It explains why the plan is being prepared and what issues it will address. It provides guidance (e.g., national seashore purpose, significance, fundamental resources and values, special mandates, and servicewide laws and policies) for the alternatives that are being considered, and how this plan relates to other plans and projects.

The chapter also details the planning opportunities and issues that were raised during public scoping meetings and initial planning team efforts (see insert box below);

the alternatives in the next chapter address these issues and concerns to varying degrees.

The primary goal of scoping is to gather information and to identify the range of issues and concerns to be addressed in the management plan.

Scoping is done with the national seashore staff and with the general public.

Chapter 2: Alternatives, Including the Preferred Alternative, discusses management zones, user capacity, and the four management alternatives (the focus of this plan). Mitigation measures proposed to minimize or eliminate the impacts of some proposed actions are described prior to the discussion of future studies and/or imple-mentation plans that would be needed. The evaluation of the environmentally preferred alternative is followed by summary tables of the alternative actions and the environ-mental consequences of implementing those alternatives. The chapter concludes with a discussion of alternatives or actions that were dismissed from detailed evaluation.

Chapter 3: Affected Environment describes those areas and resources that would be affected by actions proposed in the various alternatives—historic resources, natural resources, visitor opportunities and use, regional socioeconomics, and NPS operations. It also includes a discussion of impact topics considered but dismissed from detailed analysis.

Chapter 4: Environmental Consequences analyzes the anticipated impacts of implementing the alternatives. Methods used to assess impacts are outlined at the beginning of the chapter.

Chapter 5: Consultation and Coordination describes the history of public and agency coordination during the planning effort; it also lists agencies and organizations that received copies of the document.

The appendixes present supporting information for the document, along with bibliographic references and a list of the planning team and other consultants.

OVERVIEW OF THE NATIONAL SEASHORE

Gulf Islands National Seashore (hereafter referred to as the national seashore) was established by the U.S. Congress on January 8, 1971. As part of the national park system, the national seashore encompasses barrier islands and coastal mainland in Mississippi and Florida and comprises 12 separate units stretching along 160 miles from Cat Island in Mississippi to the eastern end of Santa Rosa Island in the northwest section of Florida’s panhandle (see “Gulf Islands National Seashore Region” map). The national seashore was set aside for the purpose of preserving areas possessing outstanding natural, historic, and recreational values for public use and enjoyment. The current authorized acreage of the national seashore is 139,175 acres.

The resources range from remote wilderness islands with limited visitation to readily accessible white sand beaches and historic sites visited by several million people each year. It also includes bayou, salt marsh, live oak, and southern magnolia forests. The natural environment of Gulf Islands provides support for complex plant and animal communities, both terrestrial and aquatic, that characterize the northern Gulf Coast.

More than 80% of Gulf Islands National Seashore is submerged land (open water), but the barrier island beaches are the most outstanding features for those who visit.

For administrative purposes, the national seashore is divided into the Florida District with six units and the Mississippi District with six units. Five out of the six Mississippi units are barrier islands: Horn Island, Petit Bois Island, East Ship Island, West Ship Island, and Cat Island. The sixth Mississippi Area, Davis Bayou, is on the mainland. Both Horn and Petit Bois islands are federally designated wilderness areas.

The Florida units in the western section of the panhandle, from west to east, include Perdido Key, the Pensacola Naval Air Station Historic Sites, Naval Live Oaks, Fort Pickens, Santa Rosa, and Okaloosa. The Naval Live Oaks Area on the mainland was at one time used as a naval live oak plantation by the federal government. The Pensacola Naval Air Station Historic Sites are also on the mainland, southwest of Pensacola. The other units are all barrier islands or part of barrier islands.

Gulf Islands National Seashore contains a number of 19th century forts built to defend Pensacola Bay. Construction of Fort Pickens, the largest, was initiated in 1829 and completed in 1834. There are also forts on Perdido Key and the mainland, including Fort Barrancas. Other forts include Advanced Redoubt on the mainland, and Fort McRee, which is now submerged within the Pensacola Pass Area. In the Mississippi District, a fifth fort (Fort Massachusetts) is on the western edge of West Ship Island. These forts were built as part of a fortification effort to protect all major U.S. harbors after the War of 1812. In addition to the coastal defense forts, numerous artillery batteries can be found that span the time from the Civil War to World War II. Gulf Islands National Seashore also preserves numerous prehistoric and historic archeological sites.

In both the Mississippi and Florida districts, annual temperature averages 77 degrees Fahrenheit (°F), ranging from the lower 60s in December and January to 90 in July and August. Annual precipitation is about 61 inches per year (SERCC 2007).

Hurricanes and tropical storms are important drivers of natural processes, along with human activity, at the national seashore. On September 16, 2004, Gulf Islands National Seashore was devastated by Hurricane Ivan, a

Overview of the National Seashore category 3 hurricane with sustained winds upwards of 130 miles per hour and storm surges 10–16 feet high. The Florida District sustained substantial damage to roads, contemporary and historic structures, a campground, utilities, and landscapes. The national seashore was making significant progress in their storm recovery efforts until the following storm season started. In 2005, severe storms including Hurricanes Cindy, Katrina, Dennis, and Rita plus Tropical Storm Arlene devastated the Mississippi District of the national seashore. Hurricane Katrina’s 30-foot storm surge washed many of the facilities on West Ship Island out to sea and severely damaged the Davis Bayou Area.

The Florida District received additional damages. Long-term recovery efforts are substantially complete in both districts.

Barrier islands help protect the mainland coast. But, the dune fields along Santa Rosa Island and Perdido Key have been scoured away and are, for the most part, reduced to a rise of only a few feet above sea level. This has led to problems with even minor storms pushing Gulf waters across the barrier islands.

State Boundary

National Seashore

0 20 Miles10

20 Kilometers10 North

292A

A

G U L F I S L A N D S N A T I O N A L S E A S H O R E

G U L F I S L A N D S N A T I O N A L S E A S H O R E

G U L F O F M E X I C O

Pe tit

B oi s P as s

Ho rn

Is la nd P as s

Do g

Ke ys

P as s

Sh ip

Is la nd Pa ss

ESCAMBIA

BAY

EAST

BAY

Santa Rosa Sound

PERDIDO

BA

Y

MOBILE

BAY

BON SECOUR

BAY

Yel low

Rive r

East Bay River

Blackw ater

River

P er di do

R er

Styx

R iver

Es ca ta w pa

Ri ve r

Pa sc ag ou la

R

Red Creek

Biloxi River

Blackwater River

Fis h R

Escam bia

River

Fow l

River

M I S S I S S I P P I S O U N D

F L O R I D A

A L A B A M A

M I S S I S S I P P I

Grand Bay

Vancleave

Gautier

Passenger ferry

(no cars)

Cantonment Milton

Holley

Toll bridge

Navarre

Navarre Beach Eglin Air Force Base

Santa Rosa Island

To Tallahassee

Mary Esther

Fort Walton Beach

Alabama Port

Fairhope

Loxley

Robertsdale

Foley

Gulf Shores

Toll Ferry

Moss Point

Pascagoula

Bayou La Batre

Dauphin Island

Mobile

Ocean SpringsTo

New Orleans

Gulfport

Biloxi

D'Iberville

To Wiggins

To Lucedale Prichard

Fort Massachusetts

Fort Gaines

Fort Morgan

Historic Blakeley State Park

Gulf State Park

Opal Beach

Pensacola

GULF ISLANDS NATIONAL SEASHORE REGION

Horn Island

Santa…