APPENDIX B GREEN BAY NATIONAL WILDLIFE REFUGE DRAFT FISHING PLAN

Draft Green Bay National Wildlife Refuge ​ ​ ​ ​ Fishing Plan

January 2019

U.S. Fish and Wildlife Service

Green Bay National Wildlife Refuge W4279 Headquarters Road Mayville, WI 53050

Submitted By: Project Leader

______Signature Date

Concurrence:

Refuge Supervisor

______Signature Date

Approved:

Regional Chief, National Wildlife Refuge System ______Signature Date

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Table of Contents I. Introduction 4

II. Statement of Objectives 6

III. Description of Fishing Program 7 A. Areas to be Opened to Fishing 7 B. Species to be Taken, Fishing Periods, Fishing Access 7 C. Angler Permit Requirements 7 D. Consultation and Coordination with the State 7 E. Law Enforcement 7 F. Funding and Staffing Requirements 8

IV. Conduct of the Fishing Program 8 A. Angler Permit Application, Selection, and/or Registration Procedures 8 B. Refuge-Specific Regulations 8 C. Relevant State Regulations 8 D. Other Rules and Regulations for Anglers 8

V. Public Engagement 9 A. Outreach Plan for Announcing and Publicizing the Fishing Program 9 B. Anticipated Public Reaction to the Fishing Program 9 C. How the Public Will be Informed of Relevant Rules and Regulations 9

VI. Compatibility Determination 9 ​ ​

VII. References 9

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DRAFT GREEN BAY NATIONAL WILDLIFE REFUGE ​ ​ FISHING PLAN

I. Introduction ​

National wildlife refuges are guided by the mission and goals of the National Wildlife Refuge System (NWRS), the purposes of an individual refuge, United States Fish and Wildlife Service (Service) policy, and laws and international treaties. Relevant guidance includes the National Wildlife Refuge System Administration Act of 1966, as amended by the National Wildlife Refuge System Improvement Act of 1997, Refuge Recreation Act of 1962, and selected portions of the Code of Federal Regulations and Fish and Wildlife Service Manual.

Green Bay NWR was established by Executive Order 1487, February 21, 1912…

“…as a preserve and breeding ground for native birds.”

Public Law 91-504, October 23, 1970 designated the Green Bay NWR as a Wilderness Area.

Green Bay Refuge, Plum and Pilot Islands Additions were established by Public Land Order 7681, dated October 17, 2007…

“…to protect native and migratory bird habitat and endangered species habitat within the Basin ecosystem.”

Green Bay Refuge, St. Martin Island, was acquired September 21, 2015 for administration by the Secretary of the Interior through the United States Fish and Wildlife Service under authority of the NWRS Administration Act of 1966.

“…to protect native and migratory bird habitat and endangered species habitat within the Great Lakes Basin ecosystem.”

Green Bay Refuge, Rocky Island, was acquired August 14, 2014 pursuant of the Fish and Wildlife Act of 1956.

“…to protect native and migratory bird habitat and endangered species habitat within the Great Lakes Basin ecosystem.”

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Green Bay National Wildlife Refuge (Refuge) currently consists of six islands that stretch from the of Wisconsin to the Garden Peninsula in Michigan, totaling 1732 acres. The refuge is administratively managed by staff based at Horicon Refuge in Mayville, Wisconsin.

The chain of islands protect rare habitats including coastal fens and alvars as well as nesting colonies of migratory birds. These islands are an important part of the Great Lakes ecosystem and are important stopover areas for migrating birds crossing the Great Lakes. Island habitats include forest, wetlands, sedge meadows, and rocky barrens. Biodiversity on the islands is rich including; bird, plant, mammal, and reptile species occurring uniquely or in abundances different than mainland character.

The backdrop for the refuge is . Among the five lakes collectively known as the Great Lakes, Lake Michigan is second only to Lake Superior in depth and volume. Besides having a storied history in early exploration of the region and bearing important shipping routes, The Great Lakes are the third largest concentration of freshwater by volume on earth, after the polar ice caps and Lake Baikal in eastern Russia. Lake Michigan, which holds the refuge islands has an average depth of 279 ft. and holds 1,180 cubic miles of water within a surface area of 22,300 square miles (EPA 2015). Fishery resources on Lake Michigan are abundant and diverse with many opportunities for anglers. Anglers spent an estimated 2,542,842 hours fishing on Lake Michigan and Green Bay during 2017 with boat-angler effort at 2,083,505 hours, or almost 82% of the total hours (WI DNR 2018). The estimated harvest of 533,469 fish was dominated by yellow perch (119,893) followed by coho salmon (119,686). The boat fishery, comprised of launched-boat, moored-boat, and charter-boat anglers, dominated the fishery by harvesting an estimated 490,718 fish, which was 92% of the total harvest and was led by coho salmon and yellow perch. Pier anglers harvested primarily yellow perch, followed by Chinook salmon. Shore anglers harvested primarily brown trout, followed by yellow perch and Chinook salmon (WI DNR 2018). Smallmouth bass abundance in the area is due to prime spawning habitat in the shallow waters occurring around islands. State regulations prevent the fishing of smallmouth bass in the outlying waters of Green Bay and Lake Michigan within 1/4 mile of Washington, Detroit, Plum, Pilot, Hog or Rock Islands before July 1 (WI DNR 2018).

While many people in the area fish from boats, shore fishing is also desirable and fishing from islands presents a unique fishing experience for those who do not have boats for large lake fishing. The refuge currently includes one island conducive to public fishing, that being Plum Island. The other refuge islands are either difficult to access or have significant bird nesting colonies, closing them to public use. Plum Island has a dock for access and adequate shoreline for walking access and fishing. Islands acquired in the future may be opened to shore fishing if there is adequate access and it is compatible with refuge purposes.

The mission of the NWRS, as outlined by the National Wildlife Refuge System Administration Act (NWRSAA), as amended by the National Wildlife Refuge System Improvement Act (16 U.S.C. 668dd et seq.), is to:

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“... 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.”

The NWRSAA mandates the Secretary of the Interior in administering the System to (16 U.S.C. 668dd(a)(4): ● Provide for the conservation of fish, wildlife, and plants, and their habitats within the NWRS; ● Ensure that the biological integrity, diversity, and environmental health of the NWRS are maintained for the benefit of present and future generations of Americans; ● Ensure that the mission of the NWRS described at 16 U.S.C. 668dd(a)(2) and the purposes of each refuge are carried out; ● Ensure effective coordination, interaction, and cooperation with owners of land adjoining refuges and the fish and wildlife agency of the States in which the units of the NWRS are located; ● Assist in the maintenance of adequate water quantity and water quality to fulfill the mission of the NWRS and the purposes of each refuge; ● Recognize compatible wildlife-dependent recreational uses as the priority general public uses of the NWRS through which the American public can develop an appreciation for fish and wildlife; ● Ensure that opportunities are provided within the NWRS for compatible wildlife-dependent recreational uses; and ● Monitor the status and trends of fish, wildlife, and plants in each refuge.

Therefore, it is a priority of the Service to provide for wildlife-dependent recreation opportunities, including hunting and fishing, when those opportunities are compatible with the purposes for which the refuge was established and the mission of the National Wildlife Refuge System.

Public fishing on the refuge has not previously occurred. This plan will open fishing on designated areas according to state regulations. Currently, only the 325 acre Plum Island will be opened to fishing. Additional islands may be opened to shore fishing in the future if there is adequate public access and it is compatible with refuge purposes.

II. Statement of Objectives ​

The objectives of a fishing program on the refuge are to provide: ​ ​

● The public with a recreational experience to experience wildlife on more refuge lands and increase opportunities for anglers. ● Wildlife-dependent public recreation as mandated by and according to Service law and policy. ● Educate the public and neighboring landowners about Great Lakes resources. Page 6

The refuge Comprehensive Conservation Plan (CCP, U.S. Fish and Wildlife Service 2013) and associated Environmental Assessment (EA) has objectives to provide public access to enjoy quality wildlife-dependent recreation but did not specifically address fishing. A draft EA will address fishing and any potential impacts. Current Service policy (605 FW 3) recognizes fishing as a healthy, traditional outdoor pastime deeply rooted in the American heritage. Fishing can also instill a unique understanding and appreciation of fish and wildlife, their behavior and their habitat needs.

III. Description of Fishing Program ​

A. Areas to be Opened to Fishing Recreational sport fishing allowed on the shoreline of Plum Island only.

B. Species to be Taken, Fishing Periods, Fishing Access Fishing will be allowed for all fish species according to state regulations. Fishing will be permitted from Memorial Day weekend through Labor Day. Boat access and mooring allowed in designated areas only. Boats must use designated landing area at the boathouse dock and and kayak landing area on the south side of the island. Fishing will be prohibited from the Plum Island dock. piers, and structures.

C. Angler Permit Requirements Anglers will not be required to hold a special refuge permit, but must hold state licenses in accordance to that state laws

D. Consultation and Coordination with the State The refuge reviewed the fishing regulations for neighboring state areas and waters to find consistency where possible. The refuge has contacted the Wisconsin DNR and Michigan DNR to determine if there are any concerns with allowing shore fishing from refuge islands.

Letters have been sent to both Wisconsin and Michigan DNR biologists outlining proposed fishing on the refuge. The refuge, Wisconsin DNR and Michigan DNR will continue to work together to ensure safe and enjoyable recreational fishing opportunities. Fishing participation and harvest data are collected by the state. Law enforcement officers from both the refuge and Wisconsin DNR and Michigan DNR work together to patrol the refuge, safeguarding visitors, and fish and wildlife species.

E. Law Enforcement Enforcement of refuge violations normally associated with management of a national wildlife refuge is the responsibility of commissioned federal wildlife officers. Other officers, special agents, state game wardens, and the local Sheriff’s Department often assist the refuge Federal wildlife officer that works out of Horicon Refuge. Page 7

● The following methods are used to control and enforce fishing regulations: ● Designated boat access points, and areas closed to fishing will be clearly posted; ● Refuge brochures, website, kiosks, etc. will describe the fishing regulations; ● Refuge law enforcement staff will randomly check anglers for compliance with Federal and state law

F. Funding and Staffing Requirements

Annual fishing administration costs for the refuge including: salary, equipment, law enforcement, brochures, etc. totals approximately $2,000. Funding specifically for fishing has not been allocated but it is anticipated that funding would continue to be sufficient for the fishing program at Green Bay Refuge.

IV. Conduct of the Fishing Program ​

A. Angler Permit Applications, Selection, and/or Registration Procedures No special permits or other authorizations will be required for Plum Island visitors to fish from the shoreline.

B. Refuge-Specific Fishing Regulations ​ ​ ​ ​ Listed below are refuge-specific regulations that pertain to fishing on the refuge as of the date of ​ ​ this plan. These regulations may be modified as conditions change or if refuge expansion continues/occurs.

(b) Green Bay National Wildlife Refuge

(4) Sport Fishing. We allow fishing on designated areas of the refuge and subject to the ​ ​ following conditions: (i)We only allow fishing on Plum Island. (ii)We only allow fishing from the shoreline. Fishing from docks, piers, or other structures is prohibited.

C. Relevant State Regulations State regulations prevent the fishing of smallmouth bass in the outlying waters of Green Bay and Lake Michigan within 1/4 mile of Washington, Detroit, Plum, Pilot, Hog or Rock Islands before July 1 (WI DNR 2018).

D. Other Refuge Rules and Regulations for Fishing ● Fires are not permitted on the refuge. ● Boats must use designated landing area at the boathouse dock and kayak landing area on the south side of the island

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● No motorized vehicles or bikes. ● Artifact hunting is not allowed. ● No camping. ● Refuge lands are only open during daylight hours. ● Foot traffic is confined to mowed trails, mowed areas around buildings, and shorelines, to prevent the spread of invasive species.

V. Public Engagement ​

A. Outreach for Announcing and Publicizing the Fishing Program

The refuge maintains a mailing list for news release purposes, to local newspapers, radio, and websites. Special announcements and articles may be released in conjunction with fishing on the refuge. In addition, information about fishing will be available at Horicon Refuge headquarters or on the refuge website.

B. Anticipated Public Reaction to the Fishing Program

Wildlife-dependent recreation was described in the CCP, specifically on Plum Island. Allowing shore fishing will reduce confusion by the public about what is allowed on the island. Little negative public reaction is expected. Fishing is an important economic and recreational use of state natural resources.

C. How Anglers Will Be Informed of Relevant Rules and Regulations

General information regarding fishing and other wildlife-dependent public uses can be obtained at Horicon National Wildlife Refuge headquarters at W4279 Headquarters Road, Mayville, Wisconsin 53050 or by calling (920) 387-2658. Rules will also be posted in brochures found on ​ the kiosk at Plum island, and information will also be available on the Green Bay National ​ Wildlife Refuge website at: www.fws.gov/refuge/green_bay.

VI. Compatibility Determination ​

Fishing and all associated program activities proposed in this plan are compatible with the purposes of the refuge. See refuge Compatibility Determination (Attachment E of the Environmental Assessment). ​

VII. References ​ U.S. Fish and Wildlife Service. 2013. Gravel Island, Green Bay, Harbor Island, Huron, and Michigan Islands National Wildlife Refuges Comprehensive Conservation Plan. 307pp.

Wisconsin DNR. 2018. Wisconsin’s 2017 open water sportfishing effort and harvest from Lake Michigan and Green Bay. 12pp. Page 9