Draft Hunting Plan for Unit 12 of the Minidoka National Wildlife Refuge
March 2020
U.S. Fish and Wildlife Service
Minidoka National Wildlife Refuge 961 E Minidoka Dam Road Rupert, ID 83350
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……………………………...………………………………….. 5
II. Statement of Objectives…………………..………………………………………7
III. Description of Hunting Program………………………………………………...7
A. Areas to be Opened to Hunting…………………………………7
B. Species to be Taken, Hunting Periods, Hunting Access………...9
C. Hunter Permit Requirements ……………………………………9
D. Consultation and Coordination with the State………………..10
E. Law Enforcement……………………………………………..10
F. Funding and Staffing Requirements ………………………….11
IV. Conduct of the Hunt Program….…………………………………………… 11
A. Hunter Permit Application, Selection, and/or Registration Procedures.…………………………………….. ………………11
B. Refuge-Specific Regulations ……………………………………11
C. Relevant State Regulations ………………………………………12
D. Other Rules and Regulations for Hunters………………………14
V. Public Engagement
A. Outreach Plan for Announcing and Publicizing the Hunt………15
B. Anticipated Public Reaction to the Hunting Program …………15
C. How the Public Will be Informed of Relevant Rules and Regulations…………16
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VI. Compatibility Determinations………………………………………………16
Appendix A, Minidoka National Wildlife Refuge, Environmental Assessment for the Proposed Hunts on Unit 12...………………………17
Appendix B, Draft Compatibility Determinations for Big Game Hunting, and Migratory Bird and Upland Game Hunting on Minidoka NWR...…………………………………………………………….53
List of Maps
Map A. Minidoka National Wildlife Refuge, Unit 12………………………………………………………………………8
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DRAFT HUNTING PLAN for UNIT 12 of the MINIDOKA NATIONAL WILDLIFE REFUGE
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, U.S. 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.
Minidoka Wildlife Refuge was established in 1909 by President Theodore Roosevelt under Executive Order (E.O.) 1032. The Refuge was then modified by four subsequent E.O.s by President William H. Taft (E.O. 1486) on February 21, 1912; by President Herbert Hoover (E.O. 5375) on June 23, 1930; and President Franklin D. Roosevelt (E.O. 7417) on July 17, 1936. Executive Order 7417 supersedes, through revocation, the three previous E.O.s. In 1940, President Franklin D. Roosevelt signed his second E.O. for Minidoka, E.O. 8600, changing the name of the Refuge from “Minidoka Wildlife Refuge” to “Minidoka National Wildlife Refuge” (NWR, Refuge) and adding 360 acres (withdrawn for reclamation purposes) to the Refuge boundary. The Refuge boundary has not been expanded since President Franklin D. Roosevelt issued E.O. 8600.
The Refuge purpose is derived from Executive Order 7417: “. . .as a refuge and breeding ground for birds and other wildlife” (E.O. 7417 – Franklin D. Roosevelt, July 17, 1936).
Minidoka NWR is located on the Snake River Plain in south-central Idaho, 12 miles northeast of Rupert in Minidoka, Blaine, Cassia, and Power Counties. The primary feature of the Refuge is Lake Walcott, the reservoir formed by the construction of the Minidoka Dam in 1906. The Refuge includes 80 miles of shoreline around Lake Walcott, from Minidoka Dam upstream about 25 miles. The Refuge encompasses a total of 20,752 acres. Most of the Refuge (17, 923 acres) represents a secondary withdrawal encompassing Lake Walcott and surrounding lands. The primary withdrawal is controlled by the U.S. Bureau of Reclamation (BOR) and managed primarily for irrigation purposes (Minidoka Project). The Minidoka Dam, power plant, irrigation canals, and Lake Walcott water levels are all managed by BOR. Service management of public use on overlay Refuge lands, where the Service has secondary jurisdiction, is governed by a Cooperative Agreement with BOR (1964, amended 1976). Minidoka NWR is one of a handful of refuges with a state park on Refuge-controlled lands: Lake Walcott State Park. The park (originally “Walcott Park”) was managed by the BOR for much of its history. In 1996 the Idaho Legislature authorized the Idaho Park Board to enter into an agreement with the BOR for the Minidoka NWR Draft Unit 12 Hunting Plan Page 5
operation of recreational facilities at Lake Walcott, which became known as Lake Walcott State Park. The park provides the public with picnic, camping, and boat launch facilities.
About half of the Refuge (11,300 acres) are the open waters of Lake Walcott, the Snake River, and some small marsh areas. Uplands surrounding the lake are primarily sagebrush-steppe (approximately 3,500 acres) and grasslands (approximately 5,900 acres). The Refuge is surrounded primarily by Bureau of Land Management (BLM) lands; however, in certain areas, including the portion of the Refuge south of Lake Walcott and east of the Raft River, and Unit 12, private lands lie adjacent to the Refuge boundary.
Areas of high quality submergent aquatic vegetation (SAV) occur on the eastern side of the Refuge, which is closed to boating. This is a locally important molting area for geese and ducks. Tens of thousands of ducks and geese use this portion of the Refuge as a safe haven during this flightless period (early July through September). Historically, peak populations of 100,000 molting waterfowl have been recorded, but recent highs have been about half that number. The SAV beds are important nesting sites for western and Clark’s grebes, one of only three nesting sites for both species in Idaho. Several islands on the Refuge provide habitat for colonial nesting birds, including gulls, black-crowned night-herons, egrets, and one of only three nesting colonies of American white pelicans in the state of Idaho.
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:
“... 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;
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● 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 recreational 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.
The Refuge was opened to waterfowl and upland game bird (pheasant and partridge) hunting in 1965. The Refuge currently has two designated hunting areas: one on the south side of Lake Walcott and one on the eastern end of the Refuge around Tule Island. These areas are currently open to the hunting of migratory birds (duck, goose, coot, and snipe) and upland game (pheasant, partridge, and cottontail rabbit) in accordance with state seasons and regulations. Hunting of upland game may occur on the Refuge only if the Idaho season for those species is open concurrently with the waterfowl season. The Refuge is currently closed to all hunting once the Idaho waterfowl season is closed. In 2019, a portion of the Refuge’s East Hunt Unit, which was already open to migratory bird and upland game hunting, was opened to big game (elk) hunting. We propose to open Unit 12 to hunting of select migratory bird, big game, upland game, and furbearer species in accordance with IDFG seasons and regulations.
II. Statement of Objectives
The objectives of a hunting program on Minidoka NWR are:
• To provide compatible wildlife-dependent recreational opportunities as mandated by and according to Service law and policy; and • To provide additional hunting opportunities and greater alignment with the state as mandated by Secretarial Orders Number 3347 and 3356.
III. Description of Hunting Program
A. Areas to be Opened to Hunting
Hunting for select migratory bird, big game, upland game, and furbearer species would occur on the Refuge’s Unit 12 (also known as the Lake Channel unit). Unit 12 comprises approximately 362 acres and is a disjunct unit of the Refuge, approximately one mile north of the Snake River, and 1.75 miles northeast of the Refuge’s East Hunt Area. The unit contains sagebrush-steppe, scattered junipers, and 94 acres of seasonal wetlands, including both emergent wetland and the only true wet meadow habitat on the Refuge (National Wetlands Inventory data).
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U.S. Fish & Wildlife Service Minidoka National Wildlife Refuge - Unit 12
Minidoka NWR East Approved Refuge Boundary Hunting Lake Walcott Area Unit 12 Open to mule deer, elk, upland game bird, and small game hunting under State seasons and Washington West Hunting Area regulations* Montana
Bureau of Land Management Oregon Idaho Area of East Hunting Wyoming 86 Interest ¨¦§ Area - South *Subject to additional restrictions under Refuge specific regulations. Raft River Hunters must obtain permission to cross private lands to Hunting Area access Refuge hunt areas. Nevada
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Produced by NWRS Geospatial Services Portland, Oregon 0 0.5 1 Map Date: 1/23/2020 Miles Basemap: ESRI Image Service Image Date: 9/17/2018 Kilometers E File: R1_NWRS_FY20_263_MND_hunting_unit12.mxd 0 0.5 1 UTM12 NAD 83
B. Species to be Taken, Hunting periods, Hunting Access
Unit 12 of the Refuge would be closed to all hunting from April 1st through August 15th to provide habitat for migrating and breeding songbirds, waterfowl, waterbirds and shorebirds, landbirds (including sagebrush-obligate species), and other wildlife. The unit would be open to hunting from August 16th through March 31st in accordance with IDFG regulations for the species listed below.
BIG GAME HUNTING: Hunting for elk and mule deer would occur on Unit 12 as prescribed by Idaho Fish and Game (IDFG) during the Idaho general and controlled hunt seasons for Unit 68 in the Big Desert Zone.
UPLAND BIRD HUNTING: Hunting for gray partridge, sage-grouse, and ring-necked pheasant, chukar, and sage-grouse would occur on Unit 12 as prescribed by Idaho Fish and Game (IDFG).
MIGRATORY BIRD HUNTING: Hunting for duck, coot, light geese, dark geese, snipe, mourning dove, and crow would occur on Unit 12 as prescribed by Idaho Fish and Game (IDFG).
SMALL GAME AND FURBEARER HUNTING: Hunting for cottontail rabbit and bobcat would occur on Unit 12 as prescribed by Idaho Fish and Game (IDFG).
Access to Unit 12 would be via the West Lake Channel Road. The northwest corner of Unit 12 may be accessed on foot via adjacent BLM lands. All other areas require access through private land (landowner permission) before reaching the Refuge. Hunters will self-navigate to their location on foot; vehicles are prohibited off-road. Entry times for Unit 12 are from one hour before sunrise to one hour after sunset.
C. Hunter Permit Requirements
Hunters must comply with all applicable IDFG regulations and must obtain all necessary state licenses, tags, or permits for each season. No Refuge permit is required.
Under current State regulations, deer and elk hunters must carry a valid Idaho hunting license with archery or muzzleloader permit validation if these weapons are used. To pursue doves, ducks, geese, coots, sandhill cranes or Wilson's snipe, hunters must purchase a hunting license and Migratory Bird (HIP) permit. Hunters sixteen years or older also need a federal duck stamp for ducks, geese and coots. To hunt sage-grouse and/or sharp-tailed grouse, hunters must purchase a hunting license and a Sage/Sharp-tailed grouse permit. A hunting license is required to hunt pheasants. Hunters who pursue partridge, rabbit, and crows must purchase a hunting license. No special permits are required. A hunting license is required to practice falconry in Idaho. Falconers must also obtain proper state and federal permits for training and possessing a
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bird of prey. Nonresident falconers must have a valid Idaho hunting license, all necessary validation and a valid falconry permit from their state of residence.
D. Consultation and Coordination with the State
In 2018, Refuge staff reviewed Idaho state hunting framework and regulations to find consistency where possible. IDFG’s recommendations were used as the foundation for this hunt plan and the proposed alternative in the Environmental Assessment (EA) for the hunt plan. On July 23, 2019, U.S. Fish and Wildlife Service regional senior staff, including the Assistant Regional Director-Refuges and SE Idaho NWR Complex Project Leader Tracy Casselman, had a hunting and fishing coordination meeting with the IDFG’s leadership team. IDFG leadership present at the coordination meeting included the Director, Deputy Director, Wildlife Chief, Fisheries Chief, Region Manager, support staff, and an Association of Fish and Wildlife Agencies (AFWA) Governmental Affairs representative. The IDFG leadership team outlined the State’s priorities, and the Service and IDFG came to mutual agreement on phasing of hunting and fishing openings and expansions on Idaho National Wildlife Refuges, including opening Unit 12 of Minidoka NWR to big game, upland game, and migratory bird hunting in 2020. Refuge staff will contact the IDFG Region 5 (Southeast) office letting them know that the Service is proposing to open Unit 12 of the Refuge to hunting. IDFG was given an advance copy of this Draft Hunt Plan and EA and were invited to provide comments, prior to issuance of the Draft Hunt Plan and EA for public comment. WE have incorporated their comments into these documents.
Minidoka NWR and the IDFG will continue to work together to ensure safe and enjoyable recreational hunting opportunities. Hunter participation and harvest data are collected by the state, and law enforcement officers from both the SE Idaho NWR Complex and IDFG work together to patrol the Refuge, safeguarding hunters, visitors, and both game and nongame 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 (FWOs). The SE Idaho Complex currently has one FWO. Other officers, special agents, state game wardens, and the local Sheriff’s Department often assist the Southeast Idaho National Wildlife Refuge Complex’s full time federal wildlife officers.
The following methods are used to control and enforce hunting regulations:
• Refuge and hunt area boundaries will be clearly posted; • The Refuge will provide a hunting brochure that shows hunt areas; and • Southeast Idaho National Wildlife Refuge Complex law enforcement staff will randomly
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check hunters for compliance with federal and state Laws.
F. Funding and Staffing Requirements
The Refuge is administered by the Southeast Idaho National Wildlife Refuge Complex (Complex), which also administers the Deer Flat, Camas, Bear Lake, and Grays Lake National Wildlife Refuges. Only the Refuge Manager and Wildlife Biologist are stationed at Minidoka NWR; they are responsible for day-to-day operations. Personnel stationed at Complex headquarters, located in Chubbuck, Idaho, provides support to Minidoka NWR and other refuges in the Complex. The distance of the Refuge to shared staff can present logistical challenges. However, they can be overcome by incorporating the management of the Unit 12 hunts into existing hunt programs currently in place within the Complex. Given that the proposed hunts would fall within the state hunting framework which is managed by IDFG, the proposed hunts would require relatively little oversight from Refuge staff. Estimated costs to implement the hunt would be approximately $4,000.00 annually to cover staff time needed to consult and coordinate with the state and to cover costs of additional law enforcement patrols to enforce hunting regulations, and $15,000 in one-time costs for fence repairs, installation of a new gate, new brochures and signs. There are currently enough funds in Refuge operations to implement this program.
IV. Conduct of the Hunting Program
A. Hunter Permit Application, Selection, and/or Registration Procedures
Hunting of deer, elk, migratory birds, upland game, and furbearer species listed above is permitted in accordance with all state regulations (see section IV. C. below). No Refuge permit is required at this time.
B. Refuge-Specific Hunting Regulations
Listed below are Refuge-specific regulations that pertain to hunting on Minidoka NWR as of the date of this plan, and proposed changes to regulations as a result of the new Unit 12 hunts as proposed in this plan. These regulations may be modified as conditions change or if Refuge expansion occurs.
Current Hunting Regulations:
(1) Migratory game bird hunting. We allow hunting of duck, goose, coot, and snipe on designated areas of the refuge subject to the following conditions: (i) We allow only hunters and dogs to retrieve game in designated hunting areas. (ii) You may only use portable blinds or construct temporary blinds of dead natural vegetation. Blinds will be available for general use on a first-come, first-served basis. You must remove Minidoka NWR Draft Unit 12 Hunting Plan Page 11
portable blinds at the end of each day’s hunt (see §27.93 of this chapter). We prohibit use of rock piles above the high-water mark for blind construction. (iii) On West Hunting Area (Lake Walcott), we allow hunting on the uplands and over water within 100 yards (90 meters) of the shoreline. We allow use of boats only for retrieval of game. (iv) On East Hunting Area (Tule Island), we allow boats during the waterfowl hunting season.
(2) Upland game hunting. We allow hunting of pheasant, grouse, partridge, and cottontail rabbit on designated areas of the refuge.
(3) Big game hunting. We allow hunting elk on designated areas of the refuge subject to the following condition: Elk hunters may enter the hunt area from 1 and ½ hours before legal hunting time to 1 and ½ hours after legal hunting time.
Proposed Changes to the Hunt Regulations:
(1) Migratory game bird hunting. We allow hunting of duck, goose, coot, snipe, dove, and crow on designated areas of the refuge subject to the following conditions: (i) We allow only hunters and dogs to retrieve game in designated hunting areas. (ii) You may only use portable blinds or construct temporary blinds of dead natural vegetation. Blinds will be available for general use on a first-come, first-served basis. You must remove portable blinds at the end of each day’s hunt (see §27.93 of this chapter). We prohibit use of rock piles above the high-water mark for blind construction. (iii) On West Hunting Area (Lake Walcott), we allow hunting on the uplands and over water within 100 yards (90 meters) of the shoreline. We allow use of boats only for retrieval of game. (iv) On East Hunting Area (Tule Island), we allow boats during the waterfowl hunting season.
(2) Upland game hunting. We allow hunting of pheasant, grouse, partridge (chukar and gray partridge), cottontail rabbit, and bobcat on designated areas of the refuge subject to the following condition: Condition (f)(1)(i) applies.
(3) Big game hunting. We allow hunting of deer and elk on designated areas of the refuge subject to the following condition: Deer and elk hunters may enter the hunt area from 1 and ½ hours before legal hunting time to 1 and ½ hours after legal hunting time.
C. Relevant State Regulations
● Idaho Big Game Seasons and Rules (For complete rules see https://idfg.idaho.gov/sites/default/files/seasons-rules-big-game-2019-2020.pdf) Hunting Hours Big game animals may be hunted only from one-half hour before sunrise to one-half hour after sunset. Mandatory Report Requirements All deer, elk, and pronghorn hunters are required to complete a Mandatory Hunter Minidoka NWR Draft Unit 12 Hunting Plan Page 12
Report for each tag they purchase. Hunters are required to submit a report by phone or internet within 10 days after harvest. Hunters who do not harvest, or did not hunt with their tag, are required to report within 10 days after the close of the hunting season. Muzzleloader Only Season Any person hunting in a “muzzleloader” only season, including controlled hunts, must have their license with muzzleloader permit validation.
Archery Only Season Any person hunting in an archery-only season, including controlled hunts, must have in their possession their license with archery permit validation. During an archery- only season, it is illegal for hunters to use any firearm or implement other than a longbow, compound bow, or recurve bow in compliance with general archery equipment requirements or: • Any bow equipped with magnifying sights. • Any device that holds a bow at partial or full draw. Except hunters possessing a disabled archery permit may use a device that holds a bow at partial or full draw. Applications for the use of devices holding a bow at partial or full draw by disabled hunters are available at Fish and Game offices. • Any crossbow. Except disabled hunters possessing a permit may use a crossbow. Applications for the use of crossbows by disabled hunters are available at Fish and Game offices.
● Idaho Migratory Game Bird Seasons and Rules (For complete rules see https://idfg.idaho.gov/sites/default/files/seasons-rules-migratory-game-bird-2019- 2020.pdf) License and Permit Requirements: To pursue doves, ducks, geese, coots, sandhill cranes or Wilson's snipe, hunters must purchase a hunting license and Migratory Bird (HIP) permit. Hunters 16 years or older also need a federal duck stamp for ducks, geese and coots. Shooting Hours Official shooting hours for migratory game birds (except crows) are from ½ hour before sunset until sunset. No person shall take American crows: from one-half hour after sunset to one-half hour before sunrise.
● Idaho Upland Game, Furbearer and Turkey Seasons and Rules (For complete rules see https://idfg.idaho.gov/sites/default/files/seasons-rules-upland-2018- 2019.pdf) License and Permit Requirements: A hunting license is required to hunt pheasants. Hunters who pursue quail, partridge, forest grouse, rabbit, hare, crows, predators and unprotected species must purchase a hunting license. No special permits are required. Any person hunting sage- or sharp-tailed grouse must have in possession their hunting license with a sage/sharp-tailed grouse permit validation.
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Falconry: All Idaho residents hunting by falconry must have in their possession a valid Idaho falconry permit, a valid hunting license and all necessary validations. All nonresidents hunting by falconry must have in their possession a valid Idaho hunting license, all necessary validations and a valid falconry permit from their state of residence. Shooting Hours: Upland game birds: From one-half hour before sunrise to one-half hour after sunset. Upland game animals: No person shall take upland game animals from one-half hour after sunset to one-half hour before sunrise. Mandatory Report Requirements Bobcat Mandatory Check and Report: Any person taking bobcat whether by hunting or trapping must comply with the mandatory check and report and pelt tag requirements by: Presenting the pelts of all bobcat taken to a regional office, the McCall office or official check point to obtain the appropriate pelt tag and complete a harvest report.
D. Other Refuge Rules and Regulations for Hunting
Information for Minidoka NWR hunting is listed below and/or can be downloaded from the Minidoka NWR website: https://www.fws.gov/refuge/Minidoka/visit/rules_and_regulations.html
● Ammunition: Approved nontoxic shot is required for hunting all species. ● Retrieving: Hunters or their dogs may retrieve downed game only within designated hunting areas. Hunters are not allowed to enter closed areas to retrieve game. Birds are considered to be within the refuge until they cross over the boundary. ● Hunting Blinds: You may only use portable blinds or construct temporary blinds of dead natural vegetation. Blinds will be available for general use on a first-come, first-served basis. You must remove portable blinds at the end of each day’s hunt. We prohibit use of rock piles above the high-water mark for blind construction. Digging pit blinds, and use of live or standing vegetation is prohibited. ● On West Hunting Area (Lake Walcott), we allow hunting on the uplands and over water within 100 yards (90 meters) of the shoreline. We allow use of boats only to set/recover decoys and retrieve downed birds; they are not allowed for hunting from, nor can they be used to access any of the islands within this hunting unit. Hunting from the islands within this unit is prohibited. ● On East Hunting Area (Tule Island), we allow boats during the waterfowl hunting season. Boats are allowed for use to set decoys, retrieve downed birds, access Tule Island, and to hunt from within this unit. ● Off-road travel by vehicles, ATVs/UTVs, and horses is prohibited; ● Boating, in areas closed to boating, is prohibited (see Refuge public use map at http://cmsstage.fws.doi.net/uploadedFiles/Minidoka%20Map.pdf#a
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● The Tule Island Access Road is open to vehicles only during the state elk and waterfowl hunting seasons; foot travel is permitted year-round; ● The Bird Island Road Road closed to vehicles January 15 to September 20; foot travel permitted. ● Camping is prohibited on the Refuge, except in Lake Walcott State Park; ● Open fires and fireworks are not allowed at any time; ● Firearms may only be discharged in accordance with Refuge hunting regulations, i.e., only during the lawful pursuit of game during legal seasons; ● Personal property, including portable blinds and tree stands, must be removed from the Refuge at the end of each day; and ● Cutting of live vegetation for blinds is prohibited. Collecting natural objects such as plants, animals, minerals, antlers, and feathers, and objects of antiquity (including Native American artifacts, such as arrowheads) is prohibited.
V. Public Engagement
A. Outreach for Announcing and Publicizing the Hunting Program
The SE Idaho Refuge Complex maintains a mailing list, for news release purposes, to local newspapers, radio, and websites. Special announcements and articles may be released in conjunction with hunting seasons. In addition, information about the hunt will be available at the SE Idaho NWR Complex office, the Minidoka NWR headquarters, and on the Minidoka NWR website www.fws.gov/refuge/Minidoka/.
B. Anticipated Public Reaction to the Hunting Program
Waterfowl and upland game hunting is already established at Minidoka NWR. Most of the Refuge is surrounded by BLM lands where hunting under state regulations is currently allowed. Unit 12 is bordered by BLM lands on its northwest corner, however, private farms and ranches surround most of the unit. The Refuge’s Unit 12 lies within Idaho’s Game Management Unit (GMU) 68 of the Big Desert Zone. The State’s management direction for the Big Desert Zone is to reduce elk populations to lower levels to reduce private property depredation. However, in units of the Big Desert Zone where agricultural concerns are now at manageable levels - such as in much of Unit 68 - elk numbers will be maintained at levels which limit agricultural damage yet provide a desirable hunting opportunity and experience. Local sentiment is generally in favor of reducing elk numbers in this area. Big game hunting (for deer, elk, and pronghorn) and hunting for other species (e.g. upland birds and small game) occurs on BLM lands adjacent to the Refuge, including Unit 12, and is generally accepted locally and does not typically generate anti- hunting controversy. We also anticipate favorable reaction to the addition of Unit 12 to the Refuge’s hunt program. It would provide more consistency with hunting that is already occurring on adjacent BLM lands. The Shoshone-Bannock Tribes oppose expanding hunting opportunities on the Refuge due to concern over looting and vandalism of cultural resources.
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Nationally, there is a component of the population that is opposed to hunting, and some organizations are opposed to hunting, or at least the expansion of hunting, on national wildlife refuges and other public lands. However, we feel confident that hunting on Unit 12 of Minidoka NWR will be supported by the local community.
C. How Hunters Will Be Informed of Relevant Rules and Regulations
General information regarding hunting, regulations, maps, and other wildlife-dependent public uses can be obtained at the SE Idaho NWR Complex Headquarters at 4425 Burley Drive Suite A, Chubbuck, Idaho 83202 or by calling 208-237-6615 or the Minidoka NWR Headquarters 961 E Minidoka Dam Road, Rupert, Idaho 83350 or by calling (208) 436-3589. Hunting regulations and maps are also available on the Minidoka NWR website: https://www.fws.gov/refuge/minidoka/. Staff fills brochure boxes located on Minidoka NWR.
IDFG hunting information is available at the office located at 324 417 E #1, Jerome, ID 83338 or by calling (208) 324-4359. Hunting resources are also available on their website at: https://idfg.idaho.gov/hunt.
VI. Compatibility Determination
Hunting and all associated program activities proposed in this plan are compatible with the purposes of the Refuge. See attached Draft Compatibility Determinations for Big Game Hunting and for Migratory Bird and Upland Game Hunting, Minidoka NWR.
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Appendix A. Environmental Assessment for the Proposed Hunt on Unit 12 of the Minidoka National Wildlife Refuge
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Minidoka National Wildlife Refuge
Environmental Assessment
for the
Proposed Big Game, Upland Game, and Migratory Bird Hunts on Unit 12
Prepared by: U.S. Fish and Wildlife Service Southeast Idaho National Refuge Complex 4425 Burley Drive, Suite A Chubbuck, Idaho 83202
March 2020
Introduction:
This Environmental Assessment (EA) is being prepared to evaluate the effects associated with the proposed action and complies with the National Environmental Policy Act (NEPA) in accordance with Council on Environmental Quality regulations (40 CFR 1500-1509) and Department of the Interior (43 CFR 46; 516 DM 8) and U.S. Fish and Wildlife Service (550 FW 3) regulations and policies. The National Environmental Policy Act requires federal agencies to assess and examining the environmental effects of their proposed actions on the natural and human environment prior to making decisions. Proposed Action: The U.S. Fish and Wildlife Service (hereafter referred to as Service or USFWS, interchangeable) is proposing to open new hunting opportunities for big game (elk and deer), upland game (including upland game birds, small game, and furbearers) and migratory birds (duck, goose, coot, snipe, and crow) on Unit 12 of the Minidoka National Wildlife Refuge (NWR, Refuge) in Idaho. The purposes of the proposed action are to address Secretarial Orders 3347 and 3356 by opening a new hunting opportunity on the Refuge and more closely align Refuge hunting regulations with Idaho state hunting regulations. Background: National wildlife refuges are guided by the mission and goals of the National Wildlife Refuge System (NWRS), the purposes of an individual refuge, 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. Minidoka Wildlife Refuge was established in 1909 by President Theodore Roosevelt under Executive Order (E.O.) 1032. The Refuge was then modified by four subsequent E.O.s by President William H. Taft (E.O. 1486) on February 21, 1912; by President Herbert Hoover (E.O. 5375) on June 23, 1930; and President Franklin D. Roosevelt (E.O. 7417) on July 17, 1936. Executive Order 7417 supersedes, through revocation, the three previous E.O.s. In 1940, President Franklin D. Roosevelt signed his second E.O. for Minidoka, E.O. 8600, changing the name of the Refuge from “Minidoka Wildlife Refuge” to “Minidoka National Wildlife Refuge” and adding 360 acres (withdrawn for reclamation purposes) to the Refuge boundary. The Refuge boundary has not been expanded since President Franklin D. Roosevelt issued E.O. 8600. Today, the total Refuge boundary acreage is approximately 20,752 acres. The Refuge purpose is derived from Executive Order 7417: “. . .as a refuge and breeding ground for birds and other wildlife” (E.O. 7417 – Franklin D. Roosevelt, July 17, 1936). The mission of the NWRS, as outlined by the National Wildlife Refuge System Administration Act of 1966 (NWRSAA), as amended by the National Wildlife Refuge System Improvement Act of 1997 (16 U.S.C. 668dd et seq.), is to:
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 2 March 2020
“... 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 National Wildlife Refuge 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; • 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, when those opportunities are compatible with the purposes for which the refuge was established and the mission of the NWRS. Minidoka NWR is located on the Snake River Plain in south-central Idaho, 12 miles northeast of Rupert in Minidoka, Blaine, Cassia, and Power Counties. The primary feature of the Refuge is Lake Walcott, the reservoir formed by the construction of the Minidoka Dam in 1906. The Refuge includes 80 miles of shoreline around Lake Walcott, from Minidoka Dam upstream about 25 miles. Most of the Refuge (17,923 acres) represents a secondary withdrawal encompassing Lake Walcott and surrounding lands. The primary withdrawal is controlled by the U.S. Bureau of Reclamation (BOR) and managed primarily for irrigation purposes (Minidoka Project). The Minidoka Dam, power plant, irrigation canals, and Lake Walcott water levels are all managed by BOR. Service management of public use on overlay Refuge lands, where the Service has secondary jurisdiction, is governed by a Cooperative Agreement with BOR (1964, amended 1976). The 362-acre Unit 12 of Minidoka NWR (also known as the Lake Channel unit), the subject of this EA, is a disjunct unit of the Refuge, approximately one mile north of the Snake River, and 1.75 miles northeast of the Refuge’s East Hunt Area. The unit is owned by the Service in fee title. The unit lies within Lake Channel, a steep-walled canyon north of the Snake River, formed by the floodwaters of ancient Lake Bonneville (Jankovsky-Jones 2001). The channel trends southwest and is approximately nine miles long, extending five and a half miles southwestward to the Snake River and three and a half miles westward, parallel to the river. The width of the channel ranges from approximately a third of a mile in the north to three miles in the south where it fronts along the Snake
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 3 March 2020
River. Lake Channel is floored by alluvium; in the southern part of the channel, along the Snake River, an alluvial deposit called the Bonanza Bar has been built up. Minidoka NWR is one of a handful of Refuges with a state park on Refuge-controlled lands: Lake Walcott State Park. The park (originally “Walcott Park”) was managed by BOR for much of its history. In 1996, the Idaho Legislature authorized the Idaho Park Board to enter into an agreement with BOR for the operation of recreational facilities at Lake Walcott, which became known as Lake Walcott State Park. The park provides the public with picnic, camping, and boat launch facilities. The Refuge is a popular area for both boating and fishing, and hosts a regionally significant smallmouth bass fishery. Hunting of migratory birds and upland game is currently allowed on two hunt units of the Refuge. Hunting of elk is also currently allowed on 300 acres of the Refuge’s East Hunt Area south of the Snake River. Purpose and Need for the Proposed Action: The purpose of this proposed action is to provide compatible wildlife-dependent recreational opportunities on Minidoka NWR and to offer additional hunting opportunities and greater alignment with the state as mandated by Secretarial Orders Number 3347 and 3356. The need of the proposed action is to meet the Service’s priorities and mandates as outlined by the NWRSIA to “recognize compatible wildlife-dependent recreational uses as the priority general uses of the NWRS” and “ensure that opportunities are provided within the NWRS for compatible wildlife-dependent recreational uses” 16 U.S.C. 668dd(a)(4)). Alternatives Considered Alternative A – Open Unit 12 to Hunting During State Seasons for Big Game, Migratory Birds, and Upland Game [Proposed Action Alternative]: The Refuge has prepared a draft hunt plan for Unit 12 of Minidoka NWR (USFWS 2019), which is incorporated herein by reference and attached to this document to provide more details regarding the proposed action. Under Alternative A, Unit 12 of Minidoka NWR, also known as the Lake Channel Unit (362 acres), would be opened to hunting of Idaho game species where state hunts are currently occurring on adjacent lands managed by the Bureau of Land Management (BLM), and where huntable populations exist in the Refuge area (Map A). Hunting on Unit 12 would be an extension of the activity already occurring on adjacent public and private lands. No Refuge-specific permits or hunter check-in procedures would be required. The proposed hunts would coincide with all state regulations and season dates as established by the Idaho Department of Fish and Game (IDFG) for the State game management units that Unit 12 overlaps. We propose to open Unit 12 to hunting for the following species:
Big game: Rocky Mountain elk, mule deer Migratory birds: Duck (including merganser), light goose (Ross's goose, lesser snow goose, and greater snow goose), Canada goose, white-fronted goose, American coot, Wilson’s snipe, mourning dove, American crow
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 4 March 2020
Upland game: Includes upland game birds (gray partridge, ring-necked pheasant, chukar, sage- grouse), small game (cottontail rabbit), and furbearer (bobcat).
Unit 12 of the Refuge will be open to hunting from August 16th through March 31st in accordance with IDFG regulations for the species listed above. Unit 12 will be closed to all hunting from April 1st through August 15th to provide habitat for migrating and breeding songbirds, waterfowl, waterbirds and shorebirds, landbirds (including sagebrush-obligate species), and other wildlife. All hunters would be required to carry a valid Idaho hunting license (with archery or muzzleloader permit validation if these weapons are used); tags for big game and other species where tags are required under State regulations; and a Migratory Bird Hunting Stamp for hunting migratory birds. No Refuge permit is required. Unit 12 lies north of, and is disjunct from, the main Refuge. The northwest portion of the unit is adjacent to lands managed by the BLM, and where hunting for these species already occurs. Limited sport hunting of waterfowl, upland game, and elk on other refuge hunt units would remain unchanged. Access to Unit 12 would be via Lake Channel Road, which runs through BLM land, and through BLM lands adjacent to the northwest corner of the unit. Permission is required from private landowners to access Unit 12 via private lands. Hunters may enter Unit 12 no earlier than one and one-half hours before legal hunting time and must leave within one and one-half hours after legal hunting time. In accordance with Idaho regulations, big game may be hunted only from one-half hour before sunrise to one-half hour after sunset. Migratory game bird hunting is permitted from 30 minutes before sunrise until sunset.
Only foot traffic would be allowed; motorized vehicles are prohibited off-road. No overnight camping or campfires would be allowed. No permanent blinds would be allowed. Temporary blinds and tree stands would be required to be removed daily. Cutting live vegetation for blinds and shooting lanes would not be allowed.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 5 March 2020
Alternative B – Maintain Current Hunt Program [No Action Alternative]: Under the no action alternative, the current hunting program at Minidoka NWR would be maintained and Unit 12 would remain closed to hunting. Currently, limited sport hunting is permitted on portions of the Refuge for ducks, geese, coots, snipe, pheasants, partridge, cottontail rabbit, and elk. There are two hunting areas: the West Hunting Area that is accessed from the Bird Island Road and the East Hunting Area accessed from the Tule Island Access Road. The rest of the Refuge is closed to hunting and would remain so under this alternative. Alternative(s) Considered, But Dismissed From Further Consideration No alternatives were considered but dismissed from further consideration. Affected Environment Minidoka NWR totals 20,774 acres, about one-half is the open waters of Lake Walcott. The remaining habitat is primarily sagebrush-steppe and grassland, with a narrow strip of riparian habitat along the Lake Walcott shoreline, and areas of emergent wetlands in embayments on the south shoreline of the lake and along the shore of Tule Island. Unit 12 (362 acres) is north of and disjunct from the main portion of the Refuge, and is separated from the rest of the Refuge by a mix of private and federally owned (BLM) lands. The unit contains a mixture of sagebrush-steppe and juniper, with approximately 94 acres of spring-fed seasonal wetlands (wet meadow). Tables 1–5 provide additional, brief descriptions of each resource affected by the proposed action. Environmental Consequences of the Action This section analyzes the environmental consequences of the action on each affected resource, including direct and indirect effects. This EA includes the written analyses of the environmental consequences on a resource only when the impacts on that resource could be more than negligible and therefore considered an “affected resource” or are otherwise considered important as related to the proposed action. Any resources that will not be more than negligibly impacted by the action and have been identified as not otherwise important as related to the proposed action have been dismissed from further analyses. Tables1–4 provide: • A brief description of the affected resources in the proposed action area; and • Impacts of the proposed action and any alternatives on those resources, including direct and indirect effects. Table 5 provides a brief description of the anticipated cumulative impacts of the proposed action and any alternatives. Impact Types: • Direct effects are those which are caused by the action and occur at the same time and place; • Indirect effects are those which are caused by the action and are later in time or farther removed in distance, but are still reasonably foreseeable; and
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 6 March 2020
• Cumulative impacts result from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or non-federal) or person undertakes such other actions.
Table 1. Affected Natural Resources and Anticipated Impacts of the Proposed Action and No Action Alternatives
Big Game Species: Rocky Mountain Elk, Mule Deer
Elk: The elk subspecies present in the Refuge area is the Rocky Mountain elk (Cervus elaphus canadensis). Their populations fluctuate constantly in response to weather, predation, land management actions, fires, invasive species, private land use, and development. IDFG manages herds within desired ranges by adjusting hunting seasons and hunter numbers to provide high quality hunting opportunities, maintain availability of general season hunts with over-the-counter tag sales, and minimize conflicts with agriculture (IDFG 2014). IDFG estimates the current Idaho population of elk to be approximately 107,000 (https://idfg.idaho.gov/hunt/elk). IDFG manages elk in 28 elk management zones. Unit 12 of Minidoka NWR is located in Game Management Unit 68 of the 3,553 square-mile Big Desert Zone. IDFG’s 10-year management direction for the Big Desert Zone is to decrease the current elk population. As described in the Idaho Elk Management Plan (IDFG 2014), the State’s management direction for the Snake River and Big Desert Zones is to reduce elk populations to lower levels to reduce private property depredation. However, in units of the Big Desert Zone where agricultural concerns are now at manageable levels - such as in much of Unit 68 - elk numbers will be maintained at levels which limit agricultural damage yet provide a desirable hunting opportunity and experience. IDFG’s overall goal is to strike a balance between being responsive to depredation issues while still providing quality hunting opportunity (IDFG 2014). Elk hunter success is high in the Big Desert Zone, estimated to be about 28 percent. Aerial elk population surveys are not conducted in the Big Desert Zone because of the large land area and small dispersed groups of elk. Elk populations in this zone are managed using harvest data analysis and minimization of elk depredations on agricultural lands. Elk hunting in the Big Desert Zone averages about 0.12 hunters per square mile with an elk harvest of 0.03 elk per square mile (IDFG 2014). Elk hunter success is high in the Big Desert Zone, estimated to be about 28 percent. According to IDFG harvest statistics (https://idfg.idaho.gov/ifwis/huntplanner/stats/), 79 hunters participated in the 2017 GMU 68 archery hunt, harvesting 17 elk, which results in a 21.5 percent success rate. In 2016, 90 hunters participated, harvesting 12 elk, for a 13.7 percent success rate. In 2015, 50 hunters harvested 8 elk, for a 20 percent success rate. Success rates for the GMU 52A-1 controlled elk hunt are high. In 2018, 71 hunters participated in this hunt, harvesting 45 antlered elk, which results in a 64 percent success rate. In 2017, 74 hunters participated, harvesting 55 elk, for a 75 percent success rate. In 2016, 66 hunters harvested 33 elk, for a 50 percent success rate.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 7 March 2020
88 hunters participated in the 2018 GMU 68 controlled elk hunt, harvesting 16 elk, which results in a 17.6 percent success rate. In 2017, 82 hunters participated, harvesting 18 elk, for a 22.6 percent success rate. In 2016, 101 hunters harvested 17 elk, for a 17.1 percent success rate. Prior to 2019, the GMU 68 hunt was for any-sex elk, however in 2019 this was changed to antlerless and the number of tags set at 75. Mule deer: Over the last 10 years, the statewide mule deer (Odocoileus hemionus) population estimate has ranged from 250,000 to 325,000 (IDFG 2019). IDFG manages mule deer in 16 data analysis units (DAUs). Unit 12 of Minidoka NWR is located in Game Management Unit 68 of the 6,262 square-mile Snake River DAU. IDFG’s 10-year management direction for the Snake River DAU is to address agricultural depredation, and mule deer hunting opportunities are liberal (IDFG 2019). Mule deer in this DAU are generally year-round residents and population densities are low. Mule deer may utilize the Refuge quite heavily during winter months when they migrate from the surrounding mountains in search of food, shelter and shallower snow depths.
According to IDFG harvest statistics (https://idfg.idaho.gov/ifwis/huntplanner/stats/), 542 hunters participated in the 2018 GMU 68 general any-weapons deer hunt, harvesting 82 deer, which results in a 15 percent success rate. In 2017, 629 hunters participated, harvesting 106 deer, for a 16.9 percent success rate. In 2016, 460 hunters harvested 136 deer, for a 29.7 percent success rate.
52 hunters participated in the 2018 GMU 68 general archery deer hunt, harvesting 6 deer, which results in a 10.9 percent success rate. In 2017, 48 hunters participated, harvesting 12 deer, for a 25 percent success rate. In 2016, 33 hunters harvested 0 deer, for a zero percent success rate.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The objectives of the proposed hunt are to provide an additional wildlife-dependent recreational activity on the Refuge, assist IDFG in meeting its management objectives for deer and elk in the Big Desert Zone, and to better align Refuge hunting regulations with state regulations. The amount of harvest would be set annually by IDFG based on an analysis of previous years’ harvest data and, in the case of elk, reported depredations on agricultural lands. Take levels are not possible to forecast, but based on the acreage of huntable land at the Refuge and hunting statistics from IDFG (0.12 hunters per square mile and 0.03 elk harvested per square mile in the Big Desert Zone; IDFG 2014), the Service expects hunting pressure to be light with few deer or elk harvested on the unit annually. Number of hunters and deer harvested per square mile in the Big Desert Zone are also low (IDFG 2019). This would be a minor effect to the overall populations as the harvest would be detectable but localized, small, and of little consequence to statewide populations. With fewer elk in the Big Desert Zone, elk depredations of private lands may be reduced somewhat, but the amount is not possible to forecast. Alternative B: Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to deer and elk that use Refuge lands.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 8 March 2020
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 9 March 2020
Upland Game Birds (Gray Partridge, Ring-necked Pheasant, Chukar)
Non-native upland game birds that use the Refuge include gray (Hungarian) partridge and ring- necked pheasant. These species use grassland and sagebrush-steppe habitat on the Refuge but are most common adjacent to agricultural areas. Populations of both species tend to be cyclical, but ring-necked pheasant have declined in Idaho because of changes in farming practices and the resultant loss of habitat. The chukar partridge is an introduced species found in the rimrock country of the arid West. They generally prefer steep, rocky habitat; they would not be expected to be common in the more rolling topography of Minidoka NWR. However, the proposed addition of this species may provide hunters with incidental opportunities when hunting more abundant upland game birds such as gray partridge.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The Service proposes to open Unit 12 to hunting of gray partridge, ring-necked pheasant, and chukar. Approximately 4,000 acres of the Refuge is currently open to hunting of gray partridge and ring-necked pheasant; the proposed Unit 12 hunt would represent an additional 362 acres of the Refuge where these species can be hunted. Hunting seasons and bag limits for resident species, including upland game birds, are set by the IDFG with the goal of providing hunting opportunities while managing for sustainable wildlife populations. IDFG personnel perform surveys for pheasant, chukar, and grey partridge. (Refuge staff does not currently perform any inventory or monitoring for any of the upland game bird species.) IDFG’s 2010 Upland Game Progress Report notes that populations of chukar, gray partridge, and ring-necked pheasant are considered stable. The increase in hunt area is less than 10 percent of the area currently open to hunting upland game birds, and the Refuge receives only about 200 upland game hunting visits per year. We would expect about a 10 percent increase in upland game hunting visits, or 20 visits per year. Therefore, even with the proposed addition of upland game bird hunting to include Unit 12, and the addition of chukar to upland game bird species that may be hunted (Unit 12 only), the Refuge would not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide. Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Greater Sage-Grouse
Greater sage-grouse (Centrocercus urophasianus) is considered a sagebrush-obligate species and has been documented on the Refuge. A century ago the species was numerous on the Refuge’s upland habitat but experienced severe declines in the area for a number of reasons, including intentional clearing of sagebrush, livestock grazing, and altered fire regimes. While Minidoka NWR currently has insufficient area of suitable habitat to sustain a population of greater sage- grouse, it can be supportive of sage-grouse when combined with sagebrush-steppe habitat on
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 10 March 2020
surrounding lands. There are populations of grouse and suitable habitat north and south of the Snake River. Minidoka NWR is the only area along the river between these two populations that is largely sagebrush steppe; adjacent areas have been converted to agriculture. Bureau of Land Management (BLM) considers the Refuge as an important corridor between these two populations (J. Augsberger, personal communication 2006 in USFWS, 2008). Minidoka NWR is also utilized as late-season brood rearing habitat for sage-grouse.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Hunting seasons and bag limits for resident species, including sage-grouse, are set by the IDFG with the goal of providing hunting opportunities while managing for sustainable wildlife populations. Sage-grouse seasons are set annually outside of the seasons for other upland game. In 2019, the sage-grouse season for Unit 12 was only two days (Sept 21- 22), with a daily limit of one bird and a total possession limit of two birds. Because of the limited numbers of grouse using the Refuge, we expect that minimal sage-grouse (0-2 birds) would be taken on the Refuge in any given year, representing a negligible percentage of total numbers harvested in Idaho’s Southeast Region, or in the State. Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Mourning Dove and American Crow
Mourning dove and American crow would be expected to use Unit 12 during the hunting season, given the presence of trees (mostly Russian olive) that can serve as cover and roosting areas, and the unit’s proximity to agricultural areas.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The Service proposes to open Unit 12 to hunting of mourning dove and American crow. The hunting of migratory game birds in the United States is based upon a thorough regulatory process that involves numerous sources of population and harvest monitoring data. The Service annually promulgates regulations (50 C.F.R. 20) establishing Migratory Bird Hunting Frameworks that provide season dates, bag limits, and other options for states to select from, which should result in the level of harvest determined to be appropriate based upon Service-prepared annual biological assessments detailing the status of migratory game bird populations. Nationally, approximately 709,000 dove hunters harvested 11,561,100 (± 6%) mourning doves in 2017 and 694,300 hunters harvested 10,374,500 (±8%) in 2018. In Idaho, approximately 6,900 dove hunters harvested 108,500 (± 42%) mourning doves in 2017 and 11,300 hunters harvested 88,800 (±61%) doves in 2018 (Raftovich et al. 2019). Given the small number of hunters expected to hunt dove on Unit 12 (estimated at 20 visits to the unit annually), the total number of doves harvested on Unit 12 on the Refuge annually would represent only a small fraction of doves harvested in the state. Assuming all dove hunters reached their limit (15 birds per day) Refuge
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 11 March 2020
harvest on Unit 12 would be 300 doves. Harvest data for American crow are not collected in Idaho, and there is no limit on crow in Idaho. However, populations of this species are robust and stable both world wide and in the United States (Partners in Flight estimates the global breeding population at 27 million).
Based on the low numbers of upland game hunters that use the Refuge, and the low number of hunters likely to use Unit 12, harvest of mourning dove and American crow on Unit 12 is likely to represent a negligible percentage of total numbers harvested in Idaho’s Southeast Region, or the State. Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Small Game Mammals and Furbearers
Cottontail rabbit are a common species on the Refuge. Bobcat, which prey on rabbit and other small mammals, are also present, though they are secretive and rarely observed. Like pheasant and partridge, populations of cottontail rabbits are cyclical, depending on weather, precipitation and vegetation condition. Populations of predators, especially those that specialize in certain prey species, may follow those of prey species. Bobcat are obligate carnivores, and rabbit and hare are among their preferred prey. However bobcats are generalists in types of prey taken, and can switch to alternative prey if populations of preferred prey are low.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The Service proposes to open Unit 12 to hunting of cottontail rabbit and bobcat. Refuge staff does not currently perform any inventory or monitoring for any of the upland game species, including cottontail rabbit. However, populations of cottontail rabbit are considered stable in Idaho, although they may be cyclical depending mainly upon weather and habitat conditions. Cottontail rabbit can currently be hunted on approximately 4,000 acres of the Refuge. The increase in hunt area is less than 10 percent of the area currently open to hunting cottontail rabbit, and the Refuge receives only about 200 upland game hunting visits per year. We would expect about a 10 percent increase in upland game hunting visits, or 20 visits per year. Therefore, even with the proposed addition of Unit 12 to the Refuge area that may be hunted, and the addition of bobcat to species that may be hunted (Unit 12 only), the Refuge would not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide (less than 100 rabbits and 0-2 bobcat annually).
Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Waterfowl (Duck, Goose, Coot) and Wilson’s Snipe
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 12 March 2020
The small seasonal, spring fed wetland on Unit 12 (94 acres) represents the only true wet meadow habitat on the Refuge. Wildlife use of this wetland is not well documented, but waterfowl and waterbird species that may use this habitat seasonally for foraging or breeding would likely include Canada goose, coots, and Wilson’s snipe. Potentially, puddle ducks such as mallard and cinnamon teal could use the unit’s wet meadows as foraging habitat during spring migration in years when standing water is present.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The Service proposes to open Unit 12 to hunting of waterfowl (duck, light goose, Canada goose, white-fronted goose, American coot) and Wilson’s snipe. The direct effects of hunting on hunted species are mortality, wounding, and disturbance. The hunting of migratory game birds in the United States is based upon a thorough regulatory process that involves numerous sources of population and harvest monitoring data. The Service annually promulgates regulations (50 C.F.R. 20) establishing Migratory Bird Hunting Frameworks that provide season dates, bag limits, and other options for states to select from, which should result in the level of harvest determined to be appropriate based upon Service-prepared annual biological assessments detailing the status of migratory game bird populations. The Federal Harvest Information Program estimates that 16,800 hunters in Idaho spent an average of 102,700 days hunting and harvested 225,100 ducks annually from 2001 through 2010. Over that same time period, the harvest information program estimates Idaho hunters harvested 59,800 Canada geese annually. This is the third highest total in the Pacific Flyway, behind Oregon and Washington, respectively. Waterfowl hunting is popular on the Refuge’s West and East Hunt Areas, with an estimated 3,500 visits in 2019 (USFWS data). The number of waterfowl harvested on Minidoka NWR is unknown; however, if one assumes that each hunt visit results in the harvest of 2 waterfowl, the total number of waterfowl harvested on the Refuge could be 7,000 birds, or 2.5 percent of total numbers of ducks and Canada geese harvested in the state. Waterfowl and waterbird use of Unit 12 would most likely occur in spring and early summer, during the active growing season and when soils may be saturated or standing water is present. The proposed hunt would occur during fall migration for waterfowl and shorebirds, however their use of Unit 12 would be minimal during this time because Unit 12 typically has no standing water in fall, and because Unit 12 is disjunct from the main portion of the Refuge where the majority of fall migration habitat occurs. We expect that most hunters would visit Unit 12 to hunt big game or upland game species, and that waterfowl and snipe would be taken only incidentally. For these reasons, harvest of waterfowl and snipe on Unit 12 is likely to be extremely low. Therefore, the proposed expansion of areas available for waterfowl and snipe hunting to include Unit 12 would result in a negligible increase in Refuge harvest (25 birds per season or less). Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Other Wildlife Species
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 13 March 2020
The Refuge supports a diversity of wildlife species of the Snake River plain including waterfowl, waterbirds, migratory and resident landbirds and raptors, mammals (e.g. coyote, jackrabbits, ground squirrels, and voles), reptiles, amphibians, and invertebrates, which are important contributors to the overall biodiversity on the Refuge. Most of Unit 12 is sagebrush-steppe, with some scattered junipers. 94 acres of the unit is a seasonal wetland. Species that depend upon shrub-steppe habitat and have been documented on the Refuge include Brewer’s sparrow, Columbian sharp-tailed grouse (Tympanuchus phasianellus), grasshopper sparrow (Ammodramus savannarum), and long-billed curlew (Numenius americanus). The pygmy rabbit (Brachylagus idahoensis) may occur. Of these species, only Brewer’s sparrow and grasshopper sparrow would be likely to occur on Unit 12 in significant numbers. The Refuge lands that are outside of Unit 12 currently supports an active lek (dancing grounds where males conduct courtship displays) of Columbian sharp-tailed grouse. The small seasonal, spring fed wetland on Unit 12 (94 acres) represents the only true wet meadow habitat on the Refuge. Wildlife use of this wetland is not well documented, but species (in addition to waterfowl) that may use this habitat seasonally for foraging or breeding include long-billed curlew and other shorebirds, western meadowlark, and raptors (e.g. short-eared owl). Waterfowl and waterbird use of the area would most likely occur in spring and early summer, during the active growing season and when soils may be saturated or standing water is present.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The presence and sighting of hunters traveling to, from, and within hunting areas, and noise associated with hunting (gunshots) can disturb non-target wildlife species that use refuge habitats, such as passerine birds. This disturbance, especially when repeated over a period of time, may result in some wildlife species altering feeding habits or cause them to move to other areas. However, while the presence and activity of hunters may cause temporary disturbance to other wildlife in the area, there are no foreseeable detrimental impacts to these species, due to the limited number of hunters that would be on Unit 12 at any given time, the seasonality of proposed hunts (August 15-March 31), which is outside the breeding season for most species), and the availability of adjacent habitat to escape to. The proposed hunt would occur during fall migration for shorebirds, however their use of Unit 12 would be minimal during this time because Unit 12 typically has no standing water in fall, and because Unit 12 is disjunct from the main portion of the Refuge where the majority of fall migration habitat occurs. Alternative B (No Action): Under Alternative B, the Service would not open Unit 12 to hunting, therefore, there would be no effects to species that use this Refuge unit.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 14 March 2020
Threatened and Endangered Species
Two federally listed species are known to occur on the Refuge: yellow-billed cuckoo (Coccyzus americanus), listed as threatened, and the Snake River physa (Physella natricina), listed as endangered. Both species are Tier 1 species of greatest conservation need (SGCN) in the state of Idaho. Tier 1 species represent the highest priority for the state’s Wildlife Action Plan and the species with the most critical conservation needs (IDFG 2017). The yellow-billed cuckoo was listed as threatened on October 3, 2014 (79 FR 59992). It is a riparian obligate that nests almost exclusively in low to moderate elevation riparian woodlands with native broadleaf trees and shrubs that are 50 acres or more in extent within arid to semiarid landscapes. At the landscape level, the amount of cottonwood–willow-dominated vegetation cover and the width of riparian habitat influence western yellow-billed cuckoo breeding distribution. The presence of point bars and low woody vegetation are important features of nesting habitat, indicating healthy river hydraulics and active habitat succession. Occupancy increases with patch size greater than 100 acres and when surrounded by native habitats. (IDFG 2017). Yellow-billed cuckoo are a neo-tropical, long-range migrant that winters almost entirely in South America east of the Andes. In the western U.S. cuckoos arrive on breeding grounds starting mid- to late-May They depart their breeding grounds beginning in late August with most birds gone by mid-September (Hughes 2015). Yellow-billed cuckoo have been observed outside the proposed hunt area, on the far western area of the Refuge near Walcott Park. They require riparian habitat with a well-developed overstory of large cottonwoods, which does not occur on Unit 12 of the Refuge. The Snake River physa was listed endangered on December 12, 1992 (57 FR 59244). It is an aquatic snail endemic to Idaho. The species occurs on the undersides of gravel-to-boulder size substrate in swift current in the mainstem Snake River USFWS 1995). Current research indicates the range stretches form Minidoka Dam as far downstream as Ontario, Oregon. The population below Minidoka dam is considered to be persistent (IDFG 2017). The long-term population trend is unknown, although the short-term (10-year) trend is considered to be relatively stable (≤10% change) (IDFG 2017). Unit 12 provides no habitat for this aquatic species.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Direct and indirect impacts to yellow-billed cuckoo are expected to be negligible. Their preferred riparian habitat of tall-stature willows and cottonwood does not occur on Unit 12 and the species has not been observed there. Additionally, the hunt dates occur outside their breeding season and newly hatched birds would have fledged prior to the commencement of the hunt. While it is possible that individual cuckoos may make transient use of Russian olive stands on Unit 12 during migration (August through early November), when hunts would occur, the effect would be expected to be negligible due to the low numbers and dispersed nature of the hunt. There would be no direct or indirect effects to the Snake River physa since it is
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an aquatic species that does not occur on Unit 12. Unit 12 is disjunct from the Snake River and provides no habitat for Snake River physa; therefore there would be no effect to this species. Alternative B No Action: Under the no action alternative, the effects to yellow-billed cuckoo of current hunt programs would remain unchanged and negligible. Current hunt areas do not contain suitable nesting habitat for this species, and current hunting programs occur after the migration season. There would be no effect to the Snake River physa as they do not occur in areas open for hunting.
Vegetation
Two vegetation communities are present on Unit 12: shrub-steppe (approximately 270 acres) and seasonal emergent wetland (wet meadow) (94 acres). In general, the Refuge’s sagebrush habitat is degraded due to past livestock grazing and sagebrush eradication programs, introduction of exotic grasses and invasive exotic weeds, and increased fire frequency. (USFWS 2008). Shrub species include Wyoming sagebrush (Artemisia tridentata spp. wyomingensis) and Basin big sagebrush (Artemisia tridentata spp. tridentata), antelope bitterbrush (Purshia tridentata), fourwing saltbush (Atriplex canescens), rubber rabbitbrush (Ericameria nauseosa), green rabbitbrush (Chrysothamnus viscidiflorus), greasewood (Adenostoma fasciculatum), winterfat (Krascheninnikovia lanata), shortspine horsebrush (Tetradymia spinosa), and spiny hopsage (Grayia spinosa). The understory is a mix of native bunchgrasses and forbs, introduced crested wheatgrass (Agropyron cristatum), and introduced cheatgrass (Bromus tectorum). Unit 12 contains approximately 94 acres of unique spring-fed seasonal wetlands (National Wetlands Inventory data), including both seasonal emergent wetland and the only true wet meadow habitat on the Refuge. The wet meadow is mostly forbs and Baltic rush (Juncus balticus). Non-native Russian olive (Elaeagnus angustifolia) is well established on the perimeter of the wetland. The shade from these trees created a popular loafing area for livestock in the past, and the understory has a thick cover of Canada thistle (Cirsium arvense). Thistle is also present in drier wetlands dominated by Baltic rush. Cheatgrass is present on drier wetland margins (Jankovsky- Jones 2001). A small (1.25 acre) forested wetland lies along the north edge of the seasonal wetland. A small (0.5 acre) intermittent pond lies in the northwestern portion of the unit, near several other such ponds just outside the Refuge boundary. Surface water is present for brief periods (from a few days to a few weeks) in Unit 12 wetlands during the growing season, but is absent by the end of the growing season in most years. The water table usually lies well below the ground surface for the most of the season (National Wetlands Inventory data).
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Fires, overnight camping, and use of off-road vehicles by hunters would be prohibited. Foot travel associated with hunting could potentially result in trampling vegetation and soil compaction, especially in repeat use ingress and egress routes. These impacts are expected to be minor and temporary, given the limited number of hunters expected to use Unit 12. Loss of plants from foot traffic would be minor and temporary and would likely occur on existing trails or game trails created by wildlife movement.
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Alternative B: No additional hunting would occur on the Refuge; therefore, impacts to vegetation caused by human activities on Unit 12 would remain the same as at present.
Table 2. Affected Visitor Use and Experience, Affected Paleontological and Cultural Resources, and Anticipated Impacts of the Proposed Action and No Action Alternatives
Visitor Use and Experience
Currently, an estimated 65,000 people visit the Refuge annually. Most of this visitation is associated with Lake Walcott State Park, which lies on the Refuge and has facilities for picnicking and overnight camping. Minidoka Reservoir is a popular local destination for boating and warmwater fishing. Fishing is the most popular activity outside of Lake Walcott State Park, with approximately 12,500 visits annually. The majority of fishing occurs from boats. The Refuge supports a regionally significant smallmouth bass fishery, and trout fishing can be good at certain areas and times. Fishing is the primary reason for boat access, but some recreational boating, water skiing, and jet skiing also occur. Most fishing and boating occurs in the summer. Birdwatching, photography, and select bird hunting are also popular activities. The Refuge is open year round to wildlife observation, photography, fishing, and hiking. The western portion of Lake Walcott is currently open to boating from April 1 through October 31. Boat ramps are located at Lake Walcott State Park, Gifford Springs, and the East Hunt Unit. The East Hunt Unit boat ramp is a primitive launch site used by waterfowl hunters using small boats that can be launched by hand. The eastern portion of Lake Walcott, from just west of Bird Island to the eastern boundary, is closed to boating except for boat fishing lanes used to access fishing locations at Smith Springs and Gifford Springs. The areas of the Refuge that are closed to boating may still be fished year round (conditions permitting) from shore, or through the use of a standard float tube. Environmental education and interpretation are minimal since the Refuge has limited on-site staff. Two areas of the Refuge are open to hunting of waterfowl, pheasant, grouse, gray partridge, and cottontail rabbits, during the state waterfowl season only, in accordance with state regulations. The southern mainland portion of the East Hunt Unit is also to elk hunting under state archery seasons and regulations. Unit 12 is currently closed to hunting, and public use of the unit appears to be minimal.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Conflicts between hunters on Unit 12 and other user groups are expected to be insignificant because (1) Unit 12 receives minimal visitation; (2) hunting would occur from August 15-March 31, when Refuge visitation is otherwise low; and (3) only small numbers of hunters would be present on Unit 12 at any given time. There would be no conflicts between hunters on Unit 12 and waterfowl, upland game, and elk hunters using other Refuge hunt
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units, since Unit 12 is disjunct from the rest of the Refuge and a different access point would be used. Alternative B: No additional hunting would occur on the Refuge. However, the Refuge has only a small on-site staff, and only occasional law enforcement patrols are conducted. Trash dumping, vehicle trespass, vandalism, cutting of fences, and occasional overnight camping would continue to be issues on the Refuge.
Cultural and Paleontological Resources Documented cultural resources on the Refuge include lithic scatters, rock rings, stacked rock features (e.g., cairns), rock shelters, and other manifestations of long-term and short-term pre- Contact and historic-period Shoshone Bannock habitation and utilization of riverine resources; landscape features and historic debris associated with the Oregon Trail and early homesteading, including building remains and a segment of the North Alternate route of the Oregon Trail; landscape features and historic debris associated with the construction of the Minidoka Dam in the early 1900s; landscape features (e.g., fences, rock walls) and historic debris associated with the presence of the Civilian Conservation Corps (CCC) in the mid-1930s to 40s; and remnants of placer mining operations (stacked rock piles, prospects, dugouts) (USFWS 2016). The Refuge lies adjacent to both the American Falls Archaeological District and the Cedar Fields Traditional Cultural Property, and it is likely that additional undocumented sites exist on the Refuge.
The Minidoka Dam and powerhouse is listed in the NRHP (1974). The Refuge contains other structures that are potentially eligible for NRHP listing: the “Trapper Cabin” on the north shore of Lake Walcott, and a CCC-era rock wall. However, they have not been evaluated for eligibility. The Cedar Point archaeological site on the Refuge is eligible for listing in the NRHP. More than 30 other smaller archaeological sites have been identified on the Refuge, but have not been evaluated for eligibility. No cultural resource survey has been conducted for Unit 12. Scattered large trees suggest that there was once a homestead on the unit. Minidoka NWR is located in lands ceded to the U.S. Government in the Fort Bridger Treaty of July 3, 1868 with the Eastern Band Shoshoni and Bannock, 15 Stat., 673. The Shoshone-Bannock Tribes have reserved the “right to hunt on the unoccupied lands of the United States” in that treaty and actively work with the U.S. Government in natural resources planning efforts to protect their off-reservation treaty rights.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Section 106 of the National Historic Preservation Act (NHPA) requires federal agencies to take into account the effects of their undertakings on historic properties. The Minidoka Dam and powerhouse and the Cedar Fields archaeological site lie far from Unit 12, and would not be affected by the proposed hunt. Hunting requires no ground-disturbing activities, or other activities that might disturb undocumented paleontological, archaeological, or historic sites. Adding Unit 12 to the existing hunt program is unlikely to create any additional potential disturbance to cultural resources as it is
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 18 March 2020
expected to only slightly increase hunter use in an area that is already open to foot travel, and is disjunct from the main portion of the refuge, and not adjacent to the Snake River. The Service has determined that opening Unit 12 for hunting is the type of undertaking that does not have the potential to cause effects on historic properties (36CFR800.3.a.1. the implementing regulations of Section 106 of the National Historic Preservation Act - NHPA). No ground disturbing activities are proposed and opening the area would not alter, directly or indirectly, any characteristic of a historic property. The undertaking may proceed without further consideration of NHPA Section 106. Alternative B: Under this alternative, there would be no change to the current hunting program on the Refuge. The current hunt program requires no ground-disturbing activities, or other activities that might disturb undocumented paleontological, archaeological, or historic sites. Maintaining the current hunt program would not alter, directly or indirectly, any characteristic of a historic property.
Table 3. Affected Refuge Management and Operations and Anticipated Impacts of the Proposed Action and No Action Alternatives
Land Use
There are currently seven Refuge entrances. The primary entrance, where the majority of visitors access the Refuge, is one the west side via the paved entrance road to Lake Walcott State Park. The Refuge headquarters is located just east of the park. Secondary entrances include dirt roads to Bird Island, Smith Springs, and Gifford Springs; two entrances to the dirt road on the north side of the Refuge; and the Tule Island Access Road. The Bird Island, south side Smith Springs, and south side Gifford Springs roads can be accessed via Old Highway 30/Baseline Road, which runs south of the Refuge. The Bird Island and Tule Island roads provide access to the west and east hunting areas, respectively. The Bird Island road is closed from January 15 through September 20 to protect nesting sites for colonial nesting birds and minimize road damage. The Tule Island road is closed January 15 through August 1. The north side road moves in and out of adjacent BLM lands and can be very rough. There are three boat ramps on the Refuge; most visitors use the main ramp at Lake Walcott State Park. Primitive ramps are located at the south Gifford Springs access point, and at the end of the Tule Island access road. Ample parking areas are provided at Lake Walcott State Park. The west hunt unit has six parking areas, while the east hunt unit has one parking area. Unit 12 is disjunct from the rest of the refuge and may be accessed via a county road (West Lake Channel Road) that runs through BLM land adjacent to the northwest corner of the unit, and then by foot through BLM lands.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): No additional infrastructure would be built to accommodate the proposed hunts. Access to Unit 12 would be via the West Lake Channel Road. The northwest corner of Unit 12 may be accessed on foot via adjacent BLM lands. Vehicle traffic may increase
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slightly due to the proposed hunts, but hunters would be required to use existing access points, roads, and parking areas. Off-road vehicles would continue to be prohibited. Should conflicts develop in the future, the Service would change the programs to minimize conflicts and ensure public safety. To avoid potential conflicts, the Refuge would implement the following actions: • Maintain boundary and hunting area signs to clearly define the designated hunting areas; • Allow vehicle traffic only on designated roads and parking areas; • Install signs in parking areas to allow only pedestrian hunter access to hunting areas; • Manage the hunts in strict accordance with all applicable federal laws (50 CFR Subchapter C), and consistent with applicable state laws; and • Field checks for compliance with regulations would be conducted by Service and IDFG law enforcement officers during routine patrols Alternative B: No additional hunting would occur on the Refuge; therefore existing land use and infrastructure would remain the same as at present, and impacts to the Refuge’s lands and infrastructure would remain the same as at present.
Refuge Administration
The Refuge is administered by the Southeast Idaho National Wildlife Refuge Complex (Complex), which administers the Deer Flat, Camas, Bear Lake, and Grays Lake National Wildlife Refuges. Only the Refuge Manager and Wildlife Biologist are stationed at Minidoka NWR; they are responsible for day-to-day operations. Law enforcement is currently covered by one Refuge officer who covers the Southeast Idaho National Wildlife Refuges, with assistance from members of the Minidoka, Cassia, and Power County sheriff’s offices, IDFG, and the Idaho State Police. The distance of the Refuge to shared staff can present logistical challenges. However, they can be overcome by incorporating the management of proposed Unit 12 hunts into existing hunt programs currently in place within the Complex.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): The proposed hunts on Unit 12 would fall within the state hunting framework and would be administered and managed largely by IDFG. The proposed hunts would require relatively little oversight from Refuge staff as they would be included in the typical work associated with current hunts. Estimated costs to implement this alternative would be approximately $4,000.00 annually to cover staff time needed to consult and coordinate with the state and to cover costs of additional law enforcement patrols to enforce hunting regulations, and $15,000 in one-time costs to repair and replace fencing, and for new brochures and signs. This would represent a minor negative impact on Refuge staff and budget and would result in the Refuge having to reduce other priority actions. Service and IDFG law enforcement officers will perform field checks.
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Alternative B: No additional hunting would occur on the Refuge; staffing and funding devoted to hunting programs would remain unchanged.
Table 4. Affected Socioeconomics and Anticipated Impacts of the Proposed Action and No Action Alternatives
Local and Regional Economies
The Refuge lies within Minidoka, Cassia, Blaine, and Power Counties, Idaho. Most of the Refuge area lies within Blaine and Cassia counties. These counties are primarily rural, with populations of 21,376 and 22,952, respectively, in 2010. Small portions of the Refuge lie within Minidoka and Power counties (populations 20,069 and 7,817 in 2010). (U.S. Census, American Fact Finder). Nearby towns are Rupert (12 miles from the Refuge), with a population of 5,554 in 2010, and Burley (18 miles from the Refuge), with a population of 10.345 in 2010. Unit 12 lies entirely within Power County. The predominant land uses in the vicinity of the Refuge are irrigated farming and grazing of livestock under permit with the BLM. Much of Unit 12 is surrounded by private lands (irrigated farmland); however the northwest portion of the unit is adjacent to BLM lands that are grazed by permittees. The Refuge estimates an average of 65,000 visitors per year. It appears that most visitors to the Refuge are from the local (Rupert/Burley/American Falls) area; therefore, expenditures from visitors would be expected to be low.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action): Hunters would expected to be primarily local hunters that are already hunting BLM lands adjacent to Unit 12. Thus the hunter expenditures (e.g. for food, gas, and supplies from local businesses) would be small relative to the size of the local economy, and economic effects would be negligible. Alternative B: Under this alternative, additional hunts would not be implemented; therefore current public uses of the Refuge would continue. Economic impacts to the local and regional economy from Refuge visitation would remain at current levels.
Agricultural Practices
Minidoka NWR lies within an area of mostly BLM lands that are used primarily for recreation and livestock grazing; however, private lands that are intensively managed for agriculture surround much of Unit 12. Unit 12 lies within IDFG GMU 68 in the Big Desert Zone, where elk are managed for minimal numbers. However, figures for crop losses due to elk on the farms surrounding Unit 12 are not available at this time. The Refuge, including Unit 12, is closed to livestock grazing.
Anticipated Direct And Indirect Impacts
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Alternative A (Proposed Action): Under Alternative A. the Service would allow elk hunting on Unit 12 under the state seasons for the GMU 68 to provide an additional hunting opportunity and to help IDFG meet its goal of maintain elk numbers at levels which limit agricultural damage yet provide a desirable hunting opportunity and experience. The number of tags used and its impacts to the herd cannot be definitively determined. It is reasonable to expect the hunts would reduce depredation damage to surrounding farmlands, but the effect would likely be minor. Alternative B: Under Alternative B, additional hunts would not be implemented; therefore, current agricultural impacts off the Refuge would continue. Economic impacts to the local and regional economy from elk and other wildlife using the Refuge would remain at current levels.
Environmental Justice
Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, requires all federal agencies to incorporate environmental justice into their missions by identifying and addressing disproportionately high or adverse human health or environmental effects of their programs and policies on minorities and low-income populations and communities.
Anticipated Direct And Indirect Impacts Alternative A (Proposed Action) and Alternative B: The Service has not identified any potential high and adverse environmental or human health impacts from this proposed action. The Service has identified minority or low income communities within the impact area. The communities of Rupert and Burley have higher poverty levels than overall for their counties, the state of Idaho, or the U.S. as a whole. These communities also have large Hispanic or Latino populations (approximately 40 percent of the total) relative to the state or the U.S. as a whole. However, minority or low income communities will not be disproportionately affected by any impacts from the proposed action.
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Cumulative Impact Analysis: Cumulative impacts are defined as “the impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or non-federal) or person undertakes such other actions” (40 CFR 1508.7). Table 5. Anticipated Cumulative Impacts of the Proposed Action and Any Alternatives
Other Past, Present, and Reasonably Foreseeable Activity Impacting Descriptions of Anticipated Cumulative Impacts Affected Environment
Wildlife-dependent recreation The Refuge would consistently coordinate with the state about the hunting program. Under the proposed action Refuges, including Minidoka National alternative, the Refuge would allow the harvest of select Wildlife Refuge, conduct hunting game species that are already hunted on lands surrounding programs within the framework of state the Refuge’s Unit 12. and federal regulations. Population estimates of huntable species are The proposed hunts would have a negligible effect on developed at a regional, state, and regional and statewide wildlife populations. Wildlife continental scale. Hunting frameworks management of populations is important to ensure the and take limits are set based upon these health of the ecosystem, and the Refuge’s hunt program estimates. The proposed Refuge hunting provides minor, additional beneficial impacts to the program rules will conform to hunting cumulative impacts of wildlife management in the state. regulations in the state of Idaho that have As a result, changes or additions to hunting on the Refuge been set for this GMU. By maintaining will have minor effects on wildlife species in Idaho. hunting regulations that are the same as Although the Preferred Alternative would increase hunting or more restrictive than the state, opportunities compared to the No Action Alternative, only individual Refuges ensure that they are limited numbers of hunters would be on the Refuge at any maintaining seasons which are given time. The slight increase in hunter activity will not supportive of management on a more rise to a significant cumulative effect locally, regionally, regional basis. Such an approach also or nationally. provides consistency with large-scale population status and objectives.
Agricultural land uses The current use of the area surrounding the Refuge for livestock grazing and agriculture is expected to continue. The Refuge is mostly surrounded by The proposed hunts are consistent with agricultural land BLM lands which are open to livestock use since they either do not interfere with off-Refuge lands grazing. Private agricultural lands are or are consistent in working toward IDFG’s goal of adjacent to small portions of the Refuge, maintaining elk numbers at levels which limit agricultural including Unit 12. Conversion of these damage in this GMU. areas is not anticipated. Crop depredation
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of fields adjacent to the Refuge have been reported by IDFG.
Climate Change The proposed action is not anticipated to contribute to the impacts of climate change. Climate change is expected to affect a variety of natural processes and associated resources. However, the complexity of ecological systems means that there is a tremendous amount of uncertainty about the impact climate change will actually have. The combination of increased frequency and severity of drought and increased frequency of wildfire in the eastern Snake River Plain could dramatically alter the available wildlife habitat on the Refuge and surrounding areas.
Monitoring Both the Service and IDFG would maintain compliance with hunting regulations by performing field checks during routine patrols. Hunters would report harvest of deer, elk, and bobcat to IDFG. IDFG would continue to monitor deer and elk populations in the Big Desert Zone and Game Management Unit 68, which includes the Refuge, to determine the response of these species to management.
Summary of Analysis: The purpose of this EA is to provide sufficient evidence and analysis for determining whether to prepare an Environmental Impact Statement (EIS) or a Finding of No Significant Impact (FONSI). Alternative A – Proposed Action Alternative As described above, Alternative A would result in minimal, short-term adverse impacts on habitat and wildlife. The Service believes that hunting of select big game, migratory bird, upland game, and furbearer species on Unit 12 of the Minidoka National Wildlife Refuge would not have a significant impact on regional or statewide populations of these species. The percentage likely to be taken on the Refuge, though additive to existing hunting takes, would be a tiny fraction of the estimated statewide populations. Therefore, these hunts would no more than slightly add to the cumulative impacts to these species stemming from hunting at the regional or state levels. In addition, overall populations would continue to be monitored and future harvests will be adjusted as needed under the existing state regulatory processes.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 24 March 2020 While Alternative A would result in minor, short-term increases in wildlife-dependent recreation opportunities on the Refuge, and slightly benefit the local agricultural sector through potentially reduced crop damage, as summarized above, none of the impacts, even when accumulated, would be significant on the human environment. This alternative is the Service’s preferred action because we believe it offers the best opportunity for expanding public hunt opportunities while resulting in minimal impacts on both the physical and biological resources. Opening the Unit 12 of Minidoka NWR to these hunts as proposed under this alternative will help accomplish the requirement of the Refuge under the NWRSAA to provide for compatible, wildlife-dependent recreational opportunities while helping to fulfill Secretarial Orders 3447 and 3356. Conclusion: Based on the above analyses, the Service has determined that the Service’s proposed preferred action alternative would not have a significant impact on the human environment. Alternative B – No Action Alternative As described above, under Alternative B, the Refuge’s current visitor program would remain unchanged. No additional hunt opportunities would be provided and the Refuge would not come closer to aligning Refuge hunt regulations with nearby state regulations. Alternative B would result in negligible impacts to Minidoka NWR’s open water (reservoir), wetland, riparian, and upland habitats. As currently proposed, the Service does not recommend or prefer this alternative because the Refuge would not provide additional hunting opportunities.
List of Sources, Agencies and Persons Consulted: Idaho Department of Fish and Game:
Dan Garren, Regional Supervisor, IDFG, Region 5 Merritt Horseman, Landowner Sportsman Coordinator, IDFG Region 5
U.S. Fish and Wildlife Service, DOI Columbia-Pacific NW Region: Tracy Casselman, Project Leader, Southeast Idaho NWR Complex Jeffrey Krueger, Refuge Manager, Minidoka NWR Laila Lienisch, Regional Chief of Hunting and Fishing Ken Morris, Conservation Planner/ Regional Hunting and Fishing Coordinator Charlie Stenvall, Refuge Supervisor Brett M. Moule, Chief - Visitor Services and Planning
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 25 March 2020 References: Hughes, J. M. 2015. Yellow-billed Cuckoo (Coccyzus americanus), version 2.0. In The Birds of North America (P. G. Rodewald, Editor). Cornell Lab of Ornithology, Ithaca, NY, USA. https://doi.org/10.2173/bna.418 Idaho Department of Fish and Game (IDFG). 2014. Idaho Elk Management Plan 2014-2024. Idaho Department of Fish and Game, Boise, ID. Idaho Department of Fish and Game (IDFG). 2017. Idaho State Wildlife Action Plan, 2015. Boise (ID): Idaho Department of Fish and Game. Idaho Department of Fish and Game (IDFG). 2019. Idaho Mule Deer Management Plan 2020–2025. Idaho Department of Fish and Game, Boise, ID. 112 pp. Available at: https://idfg.idaho.gov/sites/default/files/plan-deer-mule-2020-25.pdf Jankovsky-Jones, M. 2001. Wetland conservation strategy for the upper Snake River, Portneuf drainage, and adjacent valleys. Idaho Department of Fish and Game Natural Resource Policy Bureau, Idaho Conservation Data Center, Boise, ID. 173 pp. U.S. Fish and Wildlife Service (USFWS). 1995. Snake River Aquatic Species Recovery Plan. Snake River Basin Office, Ecological Services, Boise, Idaho. 92 pp. U.S. Fish and Wildlife Service (USFWS). 2008. Draft Habitat Management Plan for Minidoka National Wildlife Refuge. On file at SE Idaho NWRC Headquarters. U.S. Fish and Wildlife Service (USFWS). 2015. Annual Report of Cultural Resources Management in the US Fish and Wildlife Service Fiscal Year 2015. Available at: https://www.fws.gov/historicpreservation/publications/pdfs/FY15_CR_Report.pdf Accessed July 12, 2016 U.S. Fish and Wildlife Service (USFWS). 2016. Section 110 Low Water Survey. On file at SE Idaho NWRC Headquarters.
List of Preparers: Jeffrey Krueger, Refuge Manager, Minidoka NWR Ken Morris, Conservation Planner/ Regional Hunting and Fishing Coordinator, USFWS Pacific Region Kevin O’Hara Conservation Planner, USFWS Pacific Region Brett M. Moule, Chief - Visitor Services and Planning, Pacific Region State Coordination: In 2018, Refuge staff reviewed Idaho state hunting framework and regulations to find consistency where possible. IDFG’s recommendations were used as the foundation for this hunt plan and the proposed alternative in this EA. On July 23, 2019, FWS regional senior staff, including the ARD- Refuge and SE Idaho NWR Complex Project Leader Tracy Casselman, had a hunting and fishing coordination meeting with the IDFG’s leadership team. IDFG leadership present at the coordination
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 26 March 2020 meeting included the Director, Deputy Director, Wildlife Chief, Fisheries Chief, Region Manager, support staff, and an Association of Fish and Wildlife Agencies (AFWA) Governmental Affairs representative. The IDFG leadership team outlined the State’s priorities, and the Service and IDFG came to mutual agreement on phasing of hunting and fishing openings and expansions on Idaho National Wildlife Refuges, including opening Unit 12 of Minidoka NWR to big game, upland game, and migratory bird hunting in 2020. Refuge staff will contact the IDFG Region 5 (Southeast) office letting them know that the Service is proposing to open Unit 12 of the Refuge to hunting. IDFG was given an advance copy of this Draft Hunt Plan and EA and was invited to provide comments, prior to issuance of the Draft Hunt Plan and EA for public comment. Tribal Consultation: Refuge staff meet twice annually with Shoshone-Bannock Tribes (SBT) natural and cultural resource staff. Throughout these meetings the SBT has made is clear that any changes to hunting, fishing or public access at Minidoka are of intense concern, due to the culturally important sites that exist on the Refuge. In 2018, Project Leader Tracy Casselman informed SBT representatives that the Department of Interior set a goal of expanding hunting on national wildlife refuges and that the Regional Director had received a letter from IDFG requesting additional hunting and fishing opportunities at Minidoka NWR. The Tribe responded to this news with a letter to the Regional Director stating their concerns. The SBT will be given an advance copy of the Draft EA and Hunt Plan and invited to provide comments, prior to issuance of the Draft EA for public comment.
Public Outreach: This Draft EA and Hunt Plan will be posted on the Refuge website and public comment will be solicited. Comments or requests for additional information may be submitted through any of the following methods: Email: [email protected] Include “Minidoka Unit 12 Hunt” in the subject line of the message. Fax: Attn: Minidoka Elk Hunt (208) 436-1570. U.S. Mail: U.S. Fish and Wildlife Service, Attn: Ty Matthews, Acting Refuge Manager, Minidoka NWR Headquarters 961 E Minidoka Dam Road, Rupert, ID 83350 All comments received from individuals become part of the official public record. We will handle all requests for such comments in accordance with the Freedom of Information Act and the CEQ’s NEPA regulations in 40 CFR 1506.6(f). The Service’s practice is to make comments, including names and home addresses of respondents, available for public review during regular business hours. Individual respondents may request that we withhold their home address from the record, which we will honor to the extent allowable by law. If you wish us to withhold your name and/or address, you must state this prominently at the beginning of your comments.
Minidoka NWR Draft Environmental Assessment for Unit 12 Hunts 27 March 2020
Determination: This section will be filled out upon completion of any public comment period and at the time of finalization of the Environmental Assessment.
The Service’s action will not result in a significant impact on the quality of the human environment. See the attached “Finding of No Significant Impact”.
The Service’s action may significantly affect the quality of the human environment and the Service will prepare an Environmental Impact Statement.
Preparer Signature: ______Date:______
Name/Title/Organization: ______
______
Reviewer Signature: ______Date:______
Name/Title: ______
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APPENDIX 1 OTHER APPLICABLE STATUES, EXECUTIVE ORDERS & REGULATIONS
STATUTES, EXECUTIVE ORDERS, AND REGULATIONS
Cultural Resources American Indian Religious The proposed action includes no ground-disturbing activities, or Freedom Act, as amended, 42 other activities that might disturb undocumented U.S.C. 1996 – 1996a; 43 CFR paleontological, archaeological, or historic sites. The Service Part 7 has determined that opening Unit 12 for hunting is the type of undertaking that does not have the potential to cause effects on Antiquities Act of 1906, 16 historic properties (36CFR800.3.a.1. the implementing U.S.C. 431-433; 43 CFR Part 3 regulations of Section 106 of the National Historic Preservation Archaeological Resources Act - NHPA). No ground disturbing activities are proposed and Protection Act of 1979, 16 opening the area would not alter, directly or indirectly, any U.S.C. 470aa – 470mm; 18 characteristic of a historic property. CFR Part 1312; 32 CFR Part 229; 36 CFR Part 296; 43 CFR Part 7 National Historic Preservation Act of 1966, as amended, 16 U.S.C. 470-470x-6; 36 CFR Parts 60, 63, 78, 79, 800, 801, and 810 Paleontological Resources Protection Act, 16 U.S.C. 470aaa – 470aaa-11 Native American Graves Protection and Repatriation Act, 25 U.S.C. 3001-3013; 43 CFR Part 10 Executive Order 11593 – Protection and Enhancement of the Cultural Environment, 36 Fed. Reg. 8921 (1971) Executive Order 13007 – Indian Sacred Sites, 61 Fed. Reg. 26771 (1996)
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Fish & Wildlife Bald and Golden Eagle We proposed to change Refuge-specific hunting regulations for Protection Act, as amended, 16 migratory birds and upland game birds, by adding species that U.S.C. 668-668c, 50 CFR 22 may be hunted on designated areas of the Refuge. Endangered Species Act of Two federally threatened or endangered species (Snake River 1973, as amended, 16 U.S.C. physa and yellow-billed cuckoo) occur on the Refuge but have not been documented to occur in, and are not likely to use, 1531-1544; 36 CFR Part 13; 50 habitat in the proposed hunt area. CFR Parts 10, 17, 23, 81, 217, 222, 225, 402, and 450 The Preferred Alternative is consistent with Executive Order 13186 because the Environmental Assessment for the proposed Fish and Wildlife Act of 1956, big game, upland game, and migratory bird hunts on Unit 12 of 16 U.S.C. 742 a-m Minidoka NWR evaluates the effects of agency actions on Lacey Act, as amended, 16 migratory birds. U.S.C. 3371 et seq.; 15 CFR Parts 10, 11, 12, 14, 300, and 904 Migratory Bird Treaty Act, as amended, 16 U.S.C. 703-712; 50 CFR Parts 10, 12, 20, and 21 Executive Order 13186 – Responsibilities of Federal Agencies to Protect Migratory Birds, 66 Fed. Reg. 3853 (2001)
Natural Resources The Service has evaluated the suitability of the Minidoka Refuge for wilderness designation and concluded that the Clean Air Act, as amended, 42 Refuge does not meet the basic criteria for inclusion into the U.S.C. 7401-7671q; 40 CFR National Wilderness Preservation System. Parts 23, 50, 51, 52, 58, 60, 61, 82, and 93; 48 CFR Part 23 The Service has evaluated the eligibility of streams on Minidoka Refuge for wild and scenic river designation and concluded no Wilderness Act, 16 U.S.C. 1131 streams meet the basic criteria for inclusion into the National et seq. Wild and Scenic Rivers System Wild and Scenic Rivers Act, 16 The proposed action would have negligible effects to air quality. U.S.C. 1271 et seq. The Preferred Alternative is consistent with Executive Order Executive Order 13112 – 13112 under the Refuge’s Integrated Pest Management Invasive Species, 64 Fed. Reg. Program, we monitor Refuge lands for introduction of new 6183 (1999) invasive species (Early Detection/Rapid Response).
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Water Resources Coastal Zone Management Act The Refuge does not lie in a coastal zone, and contains no of 1972, 16 U.S.C. harbors. The Snake River runs through the Refuge, however, the proposed action would occur on the land portion of the refuge 1451 et seq.; 15 CFR Parts 923, and would have no effect to the river or navigation thereof. 930, 933 There would be negligible impacts of the proposed action on Federal Water Pollution Control water quality or water resources. Act of 1972 (commonly referred to as Clean Water Act), The Refuge contains no drinking water sources and does not 33 U.S.C. 1251 et seq.; 33 CFR supply drinking water to any community. Parts 320-330; 40 CFR Parts The Preferred Alternative is consistent with Executive Order 110, 112, 116, 117, 230-232, 11990 because implementation of the Hunt Plan would protect 323, and 328 existing wetlands. Rivers and Harbors Act of The Preferred Alternative is consistent with Executive Order 1899, as amended, 33 U.S.C. 11988, because implementation of the Hunt Plan would not 401 et seq.; 33 CFR Parts 114, result in the modification or destruction of floodplains. 115, 116, 321, 322, and 333 Safe Drinking Water Act of 1974, 42 U.S.C. 300f et seq.; 40 CFR Parts 141-148 Executive Order 11988 – Floodplain Management, 42 Fed. Reg. 26951 (1977) Executive Order 11990 – Protection of Wetlands, 42 Fed. Reg. 26961 (1977)
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APPENDIX 2
ENDANGERED SPECIES ACT SECTION 7 CONSULTATION
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Endangered Species Act Section 7 Consultation Form For Unit 12 Hunts at Minidoka National Wildlife Refuge
Refuge Name: Minidoka NWR Address: 961 E. Minidoka Dam Road, Rupert, ID 83350 Phone: 208-436-3589
Refuge Action: Minidoka National Wildlife Refuge (NWR) is proposing to open Unit 12 to migratory bird, upland game, and big game hunting in accordance with existing State, local, and refuge-specific regulations (50 CFR 32).
Part 1
I. Project Overview
1. Project Location
The East Hunt Unit of Minidoka NWR is accessed from the Coldwater parking area via the Tule Island Access Road off Interstate 86, approximately 30 miles east of Rupert, ID (see attached map). Latitude: 42°37'18.52"N, Longitude: 113°08'06.78"W
2. Description of the Proposed Action
The US Fish and Wildlife Service (Service) is proposing to open a new hunting opportunity at the Minidoka National Wildlife Refuge (MNWR, Refuge) in Idaho. We propose to open new hunting opportunities for big game (elk and deer), upland game (including upland game birds, small game, and furbearers) and migratory birds (duck, goose, coot, snipe, and crow) on Unit 12 of the Minidoka National Wildlife Refuge (NWR, Refuge) in Idaho. The purposes of the proposed action are to address Secretarial Orders 3347 and 3356 by opening a new hunting opportunity on the Refuge and more closely align Refuge hunting regulations with Idaho state hunting regulations. Under Alternative A, Unit 12 of Minidoka NWR, also known as the Lake Channel Unit (362 acres) would be opened to hunting of all species where State hunts are currently occurring on adjacent lands managed by the Bureau of Land Management, and where huntable populations exist in the Refuge area (Map A). Hunting on Unit 12 would be an extension of the activity already occurring on adjacent public and private lands. No Refuge-specific permits or hunter check-in procedures would be required. The proposed hunts would coincide with all state regulations and season dates as established by the Idaho Department of Fish and Game (IDFG) for the State game management units that Unit 12 overlaps. We propose to open Unit 12 to hunting for the following species:
Big game: Rocky Mountain elk, mule deer Migratory birds: Duck (including merganser), light goose (Ross's goose, lesser snow goose, and greater snow goose), Canada goose, white-fronted goose, American coot, Wilson’s snipe, mourning dove, American crow Upland game: Includes upland game birds (gray partridge, ring-necked pheasant, chukar, sage- grouse), small game (cottontail rabbit), and furbearer (bobcat).
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Unit 12 would be closed to all hunting in spring and summer (April 1- August 15) to provide habitat for migrating and breeding songbirds, waterfowl and shorebirds, landbirds (including sagebrush- obligate species), and other wildlife.
All hunters would be required to carry a valid Idaho hunting license (with archery or muzzleloader permit validation if these weapons are used); tags for big game and other species where tags are required under State regulations; and a Migratory Bird Hunting Stamp for hunting migratory birds. No Refuge permit is required. Unit 12 lies north of, and is disjunct from, the main Refuge. The northwest portion of the unit is adjacent to lands managed by the Bureau of Land Management (BLM), and where hunting for these species already occurs. Limited sport hunting of waterfowl, upland game, and elk on other refuge hunt units would remain unchanged. Access to Unit 12 would be via Lake Channel Road. Permission is required from private landowners to access Unit 12 via private lands. Hunters may enter Unit 12 no earlier than one and one-half hours before legal hunting time and must leave within one and one-half hours after legal hunting time. In accordance with Idaho regulations, big game may be hunted only from one-half hour before sunrise to one-half hour after sunset. Migratory game bird hunting is permitted from 30 minutes before sunrise until sunset.
Only foot traffic would be allowed; motorized vehicles are prohibited off-road. No overnight camping or campfires would be allowed. No permanent blinds would be allowed. Temporary blinds and tree stands would be required to be removed daily. Cutting live vegetation for blinds and shooting lanes would not be allowed.
An Environmental Assessment, Compatibility Determination, and Hunt Plan evaluate the proposed hunt. Detailed descriptions of the program and the environmental effects associated with providing this opportunity are described in those documents.
3. Project Timeline
Unit 12 will be opened to hunting on Minidoka NWR in the fall of 2020 and remain open until closed.
4. Federally Listed Species and Critical Habitat
A. Listed species and/or their critical habitat: Yellow-billed cuckoo (Coccyzus americanus), listed as threatened, and the Snake River physa (Physella natricina), listed as endangered.
B. Proposed species and/or proposed critical habitat: N/A
C. Candidate species1: N/A
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1 Include state-listed species here if they are to be evaluated through the Section 7 consultation.
II. Effects Determination and Response Requested:
Determination A. No effect/no adverse modification Snake River physa (Physella natricina): The Snake River physa was listed endangered on December 12, 1992 (57 FR 59244). It is an aquatic snail endemic to Idaho. The proposed hunting area provides no habitat for this aquatic species, which occurs on the undersides of gravel-to-boulder size substrate in swift current in the mainstem Snake River (USFWS 1995). There is no proposed or designated critical habitat for the Snake River physa. Current research indicates the range stretches from Minidoka Dam as far downstream as Ontario, Oregon. The population below Minidoka dam is considered to be persistent (IDFG 2017). The long-term population trend is unknown, although the short-term (10-year) trend is considered to be relatively stable (≤10% change) (IDFG 2017.). Unit 12 is disjunct from the Snake River and contains no Snake River physa habitat. critical habitat: No critical habitat present.
B. May affect, but is not likely to adversely affect species/adversely modify critical habitat Yellow-billed cuckoo (Coccyzus americanus): The yellow-billed cuckoo was listed as threatened on October 3, 2014 (79 FR 59992). It is a riparian obligate that nests almost exclusively in low to moderate elevation riparian woodlands with native broadleaf trees and shrubs that are 50 acres or more in extent within arid to semiarid landscapes. At the landscape level, the amount of cottonwood– willow-dominated vegetation cover and the width of riparian habitat influence western yellow-billed cuckoo breeding distribution. The presence of point bars and low woody vegetation are important features of nesting habitat, indicating healthy river hydraulics and active habitat succession. Occupancy increases with patch size greater than 100 acres and when surrounded by native habitats. (IDFG 2017).
Yellow-billed cuckoo are a neo-tropical long-range migrant that winters almost entirely in South America east of the Andes. In the western U.S. cuckoos arrive on their breeding grounds starting mid- to late-May They depart their breeding grounds beginning in late August with most birds gone by mid-September (Hughes 2015).
Yellow-billed cuckoo have been observed outside the proposed hunt area, near Walcott Park. They require riparian habitat with a well-developed overstory of large cottonwoods, which does not occur on Unit 12 of the Refuge.
Impacts to yellow-billed cuckoo related to the proposed hunts on Unit 12 are expected to be negligible. The Refuge is not designated or proposed critical habitat. Their preferred riparian habitat of tall-stature willows and cottonwood does not occur on Unit 12 and the species has not been observed there. Additionally, the hunt dates occur outside their breeding season and newly hatched birds would have fledged prior to the commencement of the hunts. Hunters would only very rarely encounter a yellow-billed cuckoo which may temporarily disturb individual birds but would not result in lethal take.
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______Signature of Preparer Date
Evaluation by Project Leader:
1. For A & B above: Concurrence ______Non-concurrence ______2. For C above: Formal consultation required ______3. For D above: Conference required ______
______Signature of Project Leader Date
References Hughes, J. M. 2015. Yellow-billed Cuckoo (Coccyzus americanus), version 2.0. In The Birds of North America (P. G. Rodewald, Editor). Cornell Lab of Ornithology, Ithaca, NY, USA. https://doi.org/10.2173/bna.418
Idaho Department of Fish and Game (IDFG). 2017. Idaho State Wildlife Action Plan, 2015. Boise (ID): Idaho Department of Fish and Game. U.S. Fish and Wildlife Service (USFWS). 1995. Snake River Aquatic Species Recovery Plan. Snake River Basin Office, Ecological Services, Boise, Idaho. 92 pp.
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Appendix B. Draft Compatibility Determinations for Migratory Bird Hunting and Upland Game Hunting, and Big Game Hunting on Minidoka National Wildlife Refuge
Minidoka NWR Draft Unit 12 Hunting Plan Page 18
Draft Compatibility Determination for Migratory Bird and Upland Game Hunting on Minidoka National Wildlife Refuge
Use: Hunting (waterfowl), Hunting (upland bird), Hunting (other migratory birds), Hunting (upland game)
Refuge Name: Minidoka National Wildlife Refuge (NWR, Refuge)
Location: Minidoka, Blaine, Cassia, and Power Counties, Idaho
Date Established: 1909
Establishing and Acquisition Authorities:
• Exective Order (E.O.) 1032, February 25, 1909, established several reservoir sites, including the Minidoka NWR as “preserves and breeding grounds for native birds”; • E.O. 1486, February 21, 1912, enlarged the Refuge to include all of Lake Walcott; • E.O. 5375, June 23, 1930, enlarged the Minidoka Bird Reservation; • E.O. 7417, July 17, 1936, superseded, through revocation, E.O.s 1032, 1486, 5375; withdrew lands “as a refuge and breeding ground for birds and other wildlife…The greater part of the land herein reserved has been withdrawn for reclamation purposes in connection with the Minidoka Irrigation Project…The reservation of such land as a wildlife refuge is subject to the use therof by said Department for irrigation and incidental purposes.”;and • E.O. 8600, November 26, 1940, changed the name of the Refuge from “Minidoka Wildlife Refuge” to “Minidoka National Wildlife Refuge” and added 360 acres (withdrawn for reclamation purposes) to the Refuge boundary.
Refuge Purpose:
• “. . .as a refuge and breeding ground for birds and other wildlife” (Executive Order 7417, July 17, 1936).
National Wildlife Refuge System Mission:
“… 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” (National Wildlife Refuge System Administration Act of 1966, as amended [16 U.S.C. 668dd-668ee]).
Description of Use:
Current Use:
Hunting of ducks, geese, coots, snipe, ring-necked pheasants, gray partridge, and cottontail rabbit hunting is open on the Refuge’s West Hunt Area (3,161 acres), East Hunt Area (580 acres), and the East Hunt Area-South (East Hunt Unit-S; 300 acres) during the general waterfowl seasons designated by the Idaho Department of Fish and Game (IDFG). Waterfowl seasons are consistent with State seasons and typically start in mid-October and run through late January. Upland game (pheasant,
Minidoka NWR Draft Compatibility Determination 1
partridge, and rabbits) may be taken only during the state waterfowl season. The West and East Hunt areas are closed to hunting when the Idaho waterfowl season is closed, except for elk hunting in the East Hunt Unit-S.
The West Hunt Area lies south of Lake Walcott on the Refuge’s west side. The East Hunt Area lies at the far eastern boundary of the Refuge, and includes Tule Island on the Snake River. The East Hunt Area-S lies south of the Snake River. Access to the West Hunt Area is provided via the Bird Island Road (Parking Areas A-F). Access to the East Hunt Area and East Hunt Area-S is provided at the Coldwater parking area (Parking Area G), at the end of the Tule Island Access Road, which can be accessed from Barkdull Road (Exit 21 off Interstate 86). All other areas require access through private land (landowner permission) before reaching the Refuge. See Attachment A, Public Use Map.
Vehicles are restricted to existing roads. Off-road travel by vehicles, ATVs/UTVs, and horses is prohibited. Hunters must park in designated locations and self-navigate to hunt locations on foot. On West Hunting Area (Lake Walcott), we allow hunting on the uplands and over water within 100 yards (90 meters) of the shoreline. Use of boats is allowed only to set/recover decoys and retrieve downed birds; they are not allowed for hunting from, nor can they be used to access any of the islands within this hunting unit. Hunting from the islands within this unit is prohibited.
On the East Hunting Area (Tule Island), we allow boats during the waterfowl hunting season only. Use of boats is allowed only to set decoys, retrieve downed birds, access Tule Island, and to hunt from within this unit.
Hunters or their dogs may retrieve downed game only within designated hunting areas. Hunters are not allowed to enter closed areas to retrieve game. Birds are considered to be within the refuge until they cross over the boundary.
Nontoxic shot is required for hunting all species on the Refuge, and hunters may not possess lead shot in the field. Hunters may only use portable blinds or construct temporary blinds of dead natural vegetation. Blinds are available for general use on a first-come, first-served basis. Hunters must remove portable blinds at the end of each day’s hunt. The use of rock piles above the high-water mark for blind construction is prohibited. Digging pit blinds and use of live or standing vegetation is prohibited.
While hunter use of these areas has not been closely monitored, the 2006 National Survey of Fishing, Hunting and Wildlife-associated Recreation showed that between 1996 and 2006, the number of state-resident hunters decreased by 33 percent (USFWS and U.S. Census Bureau 2007). Given this trend, it is unlikely that hunting will increase substantially in the near future. However, the number of hunters and their impacts will be monitored, and if necessary, additional measures will be developed in coordination with IDFG to protect Refuge resources.
There were approximately 3,500 waterfowl hunting visits to the Refuge in the 2019 hunting season. There were approximately 200 upland game hunting visits to the Refuge in the 2019 hunting season (USFWS data). Why this use is being proposed: The purpose of this proposed action is to provide compatible wildlife-dependent recreational opportunities on Minidoka NWR and to offer additional hunting opportunities and greater alignment with the state as mandated by Secretarial Orders numbers 3347 and 3356. The need of the proposed action is to meet the Service’s priorities and mandates as
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outlined by the National Wildlife Refuge System Improvement Act (NWRSIA) of 1997 (Public Law 105-57). The NWRSIA “recognize(s) compatible wildlife-dependent recreational uses as the priority general uses of the NWRS” and “ensure that opportunities are provided within the NWRS for compatible wildlife-dependent recreational uses” 16 U.S.C. 668dd(a)(4)). Hunting is considered a wildlife-dependent public use of the Refuge, as defined by statute (16 U.S.C. 668dd et seq.) and must be given priority over nonwildlife-dependent uses. Hunting of waterfowl, other migratory birds, and upland game are defined as priority public uses under the NWRSIA. Despite the direct and indirect impacts associated with sport-hunting, flyway populations of waterfowl and other migratory birds, and regional populations of upland game species, are not likely to be affected significantly by the hunting program on the Refuge. Habitat conditions and changes in regional land uses and habitat conditions are more likely to influence population trends than localized hunting programs.
Proposed Changes to the Use:
We propose to open the Refuge’s Unit 12 (362 acres; north of the Snake River and disjunct from the rest of the Refuge) to hunting of all Idaho game species and where huntable populations occur in the Refuge area: Migratory birds (duck, coot, light geese, dark geese, snipe, dove, and crow), upland game birds (chukar, gray partridge, sage-grouse, and ring-necked pheasant), cottontail rabbit, and bobcat. Unit 12 would be closed to all hunting from April 1st through August 15th to provide habitat for migrating and breeding songbirds, waterfowl, waterbirds and shorebirds, landbirds (including sagebrush-obligate species), and other wildlife. The unit would be open to hunting from August 16th through March 31st in accordance with IDFG regulations for the species listed above.Proposed changes to the Refuge’s migratory bird and upland game hunting program as a result of opening this unit to hunting are described in the Draft Hunting Plan for Unit 12 of the Minidoka National Wildlife Refuge (USFWS 2020a) and are summarized here. Deer and elk hunting on Unit 12 are described in the Draft Revised Compatibility Determination for Big Game Hunting (USFWS 2020b). See Attachment B, Unit 12 Map.
We also propose to expand the East Hunt Unit-S westward to the Cassia County line, an addition of 121 acres (421 acres total) to manage elk hunting as described in the revised big game hunting plan and Compatibility Determination and clarify Refuge regulations. Therefore, the total hunt area where migratory birds and upland game can be hunted on the Refuge would increase from 4,041 acres (the West and East Hunting areas) to 4,524 acres.
Currently, the East Hunt Area-S is open to limited sport hunting for ducks, geese, coots, snipe, pheasants, partridge, cottontail rabbits, and elk. This would remain unchanged.
Need and Availability of Resources: The Refuge is administered by the Southeast Idaho National Wildlife Refuge Complex (Complex), which also administers the Deer Flat, Camas, Bear Lake, and Grays Lake National Wildlife Refuges. Only the Refuge Manager and Wildlife Biologist are stationed at Minidoka NWR; they are responsible for day-to-day operations. Personnel stationed at Complex headquarters, located in Chubbuck ID provide support to Minidoka NWR and other refuges in the Complex. The distance of the Refuge to shared staff can present logistical challenges. However, they can be overcome by incorporating the management of migratory and upland game hunting into existing hunt programs currently in place within the Complex. Cost to administer existing waterfowl and upland game hunting and fishing programs (e.g., maintenance of roads and parking areas) is approximately $5,000 annually. Estimated costs to
Minidoka NWR Draft Compatibility Determination 3
implement the expansion of migratory bird and upland game hunting to Unit 12 would be approximately $4,000.00 annually to cover staff time needed to consult and coordinate with the state and to cover costs of additional law enforcement patrols to enforce hunting regulations, and $15,000 in one-time costs for fence repairs, installation of a new gate, new brochures and signs in Unit 12. There are currently enough funds in Refuge operations to implement this program. Anticipated Impacts of Described Use: The discussion below analyzes impacts of the use. The following section describes the impact of the use as currently conducted. The next section describes anticipated impacts as a result of the proposed change to the use: opening Unit 12 (362 acres) to migratory bird and upland game hunting, and expanding the East Hunt Area-South by 121 acres.
General Impacts to Habitat
The primary impact hunters have on habitat is the trampling of vegetation and creation of social trails. Trail widening and creation of social trails increases the area of disturbed land (Adkison and Jackson 1996; Dale and Weaver 1974; Liddle 1975). Pedestrians can cause structural damage to plants and increase soil compaction and erosion (DeLuca et al. 1998; Whittaker 1978). Because hunting requires off-trail use in the pursuit and/or recovery of game, plants may be trampled and biotic soil crusts may be disturbed.
Roads and trails often function as conduits for movement of nonnative, invasive plant species (Benninger-Truax et al. 1992; Hansen and Clevenger 2005). Propagules of nonnative plants can be transported into new areas on hunters’ boots, clothing, dogs, and equipment. Once established, invasive plants can out-compete native plants, which alters habitats and indirectly impacts wildlife. Invasive plants would continue to be controlled and monitored as part of the Refuge’s Integrated Pest Management (IPM) program.
Local Impacts to Waterfowl Habitat
The impact of waterfowl hunters on habitat for waterfowl, waterbirds, and colonial-nesting birds, including Western and Clark’s grebes, is expected to be minor. The hunting season starts and ends outside of the growing season of most plants, so trampling and the spread of invasive plants are not major issues. There is a possibility of boats used for waterfowl hunting aiding in the spread of aquatic invasive species into the waters of the Refuge. Informational media in hunting brochures, placards at Refuge launch areas, periodic inspections, and early detection monitoring help reduce the likelihood of infestation. The creation of social trails is expected to be minor because most hunters spread out in available habitat as a way to reduce overcrowding. Impacts to the water in waterfowl hunting come mostly from the deposition of trash (including shell casings) by hunters; this problem will be mitigated through law enforcement.
Local Impacts to Upland Habitat
At current use levels, impacts to upland habitat are expected to be minor. Campfires, overnight camping, and use of off-road vehicles by hunters are prohibited; therefore impacts to habitat caused by hunting would be minor. Minidoka NWR is not a destination hunt area for upland game, and local use appears to be relatively low compared to the surrounding area. The hunting season starts and ends outside of the growing season of most plants, so trampling and the spread of invasive plants are not expected to be major issues. The creation of social trails may be more of an
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issue but is still expected to be minor because most hunters follow the irregular patterns of their quarry.
Impacts to Wildlife: Listed Species
Two species are protected under the Endangered Species Act of 1973 that occur within the boundaries of the Refuge: the yellow-billed cuckoo (threatened) and the Snake River physa (endangered). Yellow-billed cuckoo has been documented on the Refuge but is currently considered a vagrant because sightings are highly unusual. Direct and indirect impacts to yellow- billed cuckoo are expected to be negligible. Their preferred riparian habitat of tall-stature willows and cottonwood is limited on the Refuge, and does not occur on the East Hunt Unit and Unit 12 and the species has not been observed there. Additionally, the hunt dates occur outside their breeding season and newly hatched birds would have fledged prior to the commencement of the hunt (Hughes 2015). There would be no direct or indirect effects to the Snake River physa as it is an aquatic species that does not occur on the area we propose to open to elk hunting (USFWS 1995).
Impacts to Wildlife: General
Hunting, by its nature, results in the intentional take of individual animals, as well as wounding and disturbance (DeLong 2002). It can also alter behavior (e.g., foraging time), population structure, and distribution patterns of wildlife (Bartelt 1987; Madsen 1995; Owens 1977; Raveling 1979; White- Robinson 1982). In addition to loss of individual target species, hunting also causes disturbance to nontarget species because of noise (most notably the report of a firearm), human presence, and general disturbance associated with the activity. Hunting results in the increase of nontarget species being injured or killed (accidentally or intentionally) in addition to target species being crippled or killed and not retrieved. Disturbances to waterfowl caused by human activity (including hunting) are manifested by alertness, fright (obvious or unapparent), flight, swimming, disablement, or death in nontarget species (Korschgen and Dahlgren 1992).
Immediate responses by wildlife to recreational activity can range from behavioral changes including nest abandonment, altered nest placement, and change in food habits to physiological changes such as elevated heart rates, increased energetic costs due to flight or flushing, or even death (Belanger and Bedard 1990; Kight and Swaddle 2007; Knight and Cole 1995; Miller and Hobbs 2000; Miller et al. 1998; Morton et al. 1989). The long-term effects are more difficult to assess but may include altered behavior, vigor, productivity or death of individuals; altered population abundance, distribution, or demographics; and altered community species composition and interactions.
According to Knight and Cole (1991), there are three wildlife responses to human disturbance: avoidance, habituation, and attraction. The magnitude of the avoidance response may depend on a number of factors including the type, distance, movement pattern, speed, and duration of the disturbance; the time of day, time of year, weather; and the animal’s access to food and cover, energy demands, and reproductive status (Fernández-Juricic et al. 2007; Gabrielsen and Smith 1995; Knight and Cole 1991).
Habituation is defined as a form of learning in which individuals stop responding to stimuli that carry no reinforcing consequences for the individuals that are exposed to them (Alcock 1993). A key factor for predicting how wildlife will respond to disturbance is predictability. Often, when a
Minidoka NWR Draft Compatibility Determination 5
use is predictable—following a trail or boardwalk or at a viewing deck—wildlife will habituate to and accept human presence (Oberbillig 2000). Gabrielsen and Smith (1995) suggest that most animals seem to have a greater defense response to humans moving unpredictably in the terrain (as hunters do) than to humans following a distinct (and repeated) path.
Hunting can contribute indirectly to the well-being of wildlife by providing financial, educational, and sociological benefits to hunters. Hunting has given many people a deeper appreciation of wildlife and a better understanding of the importance of wildlife and habitat conservation, which ultimately contributes to the NWRS mission. The hunting community remains the largest support base for funding wildlife management programs, and refuges provide an opportunity for a high- quality waterfowl hunting experience to all citizens regardless of economic standing. Many individual refuges have developed extensive public information and education programs bringing hunters into contact with refuge activities and facilitating awareness of wildlife issues beyond hunting. Hunting is one of the six priority public uses of the NWRS.
Impacts to Wildlife: Hunting Impacts on Waterfowl
Waterfowl are wary, seeking refuge from all forms of disturbance but particularly those associated with loud noise and rapid movement (Korschgen and Dolgren 1992). Numerous studies show human activities associated with hunting (boating, vehicle disturbance, human presence) cause increased flight time in waterfowl species, which requires a considerable amount of energy (Havera et al. 1992; Kahl 1991; Kenow et al. 2003; Knapton et al. 2000). Human disturbance compels waterfowl to change feeding habits, so that they may feed only at night or may desert feeding areas entirely, resulting in weight loss (Korschgen and Dahlgren 1992).
The hunting of waterfowl in the United States is based upon a thorough regulatory setting process that involves numerous sources of waterfowl population and harvest monitoring data. Waterfowl populations throughout the United States are managed through an administrative process known as flyways, of which there are four (Pacific, Central, Mississippi, and Atlantic). Idaho is included in the Pacific Flyway. A review of the policies, processes, and procedures for waterfowl hunting is covered in a number of documents.
Because the Migratory Bird Treaty Act stipulates that all hunting seasons for migratory game birds be closed unless specifically opened by the Secretary of the Interior, the Service annually promulgates regulations (50 C.F.R. 20) establishing the Migratory Bird Hunting Frameworks. The frameworks are essentially permissive, in that hunting of migratory birds will not be permitted without them. Thus, in effect, annual Federal regulations both allow and limit the hunting of migratory birds. The Migratory Bird Hunting Frameworks provide season dates, bag limits, and other options for states to select from, which should result in the level of harvest determined to be appropriate based upon Service-prepared annual biological assessments detailing the status of migratory game bird populations.
In North America, the process for establishing waterfowl hunting regulations is conducted annually. In the United States, the process involves a number of scheduled meetings (e.g., Flyway Study Committees, Flyway Councils, Service Regulations Committee) in which information regarding the status of waterfowl populations and their habitats is presented to individuals within the agencies responsible for setting hunting regulations. In addition, public hearings are held and the proposed regulations are published in the Federal Register to allow public comment.
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For waterfowl, annual assessments used in establishing the Frameworks include the Breeding Population and Habitat Survey, which is conducted throughout portions of the United States and Canada. This survey is used to establish an annual Waterfowl Population Status Report. In addition, the number of waterfowl hunters and resulting harvest are closely monitored through both the Harvest Information Program and the Parts Survey (in which biologists gather at “wing bees” to identify duck wings and goose tails submitted by hunters). Since 1995, such information has been used to support the adaptive harvest management (AHM) process for setting duck- hunting regulations. Under AHM, a number of decision-making protocols determine the choice (package) of predetermined regulations (appropriate levels of harvest) that make up the framework offered to states that year. Each state’s wildlife commission then selects season dates, bag limits, shooting hours, and other options from their respective Flyway package. Their selections can be more restrictive but cannot be more liberal than AHM allows. Thus, the level of hunting opportunity afforded each state increases or decreases each year in accordance with the annual status of waterfowl populations.
Season dates and bag limits for national wildlife refuges open to hunting are never longer or larger than the state regulations. In fact, based upon the findings of an environmental assessment developed when a refuge opens a new hunting activity, season dates and bag limits may be more restrictive than the state allows. Each national wildlife refuge considers the cumulative impacts to hunted migratory species through the Migratory Bird Frameworks published annually in the Service’s regulations on migratory bird hunting.
Impacts to Wildlife: Local Impacts to Waterfowl and other Migratory Birds
Hunting on refuges as a whole or on Minidoka National Wildlife Refuge specifically is not likely to have an adverse effect on the status of any recognized waterfowl or other migratory bird population in North America. Several points support this contention: (1) the proportion of national harvest that occurs on national wildlife refuges is small; (2) there are no populations of these species that occur wholly or exclusively on national wildlife refuges; (3) annual hunting regulations within the United States are established to levels consistent with the current population status; (4) refuges cannot permit more liberal seasons than provided for in Federal frameworks; and (5) there are sufficient sanctuaries that exist on the Refuge to allow for undisturbed feeding and resting.
Waterfowl hunting occurs on the south shore of Lake Walcott in the West Hunting Area; the East Hunting Areas (which includes Tule Island) and surrounding waters); and from the shoreline of the East Hunt Area-S. Boating on Lake Walcott is permitted April 1-October 31 within the area designated by buoys (approximately 4,000 acres) and year-round within the Smith Springs and Gifford Springs boating lanes (80 and 200 acres, respectively). The boating period overlaps the state waterfowl season, which typically opens in mid October, by approximately two weeks. However during most of the State waterfowl season, all Refuge waters are closed to boating. 7,000 acres of Lake Walcott are closed to boating year-round (with the exception of the Smith Springs and Gifford Springs boating lanes). These established sanctuaries ensure that wintering and migrating waterfowl, upland game birds, and other migratory birds, as well as nontarget species, can find food and rest areas on the Refuge even during the hunting season. Under the stipulations outlined above, this activity does not materially detract from meeting Refuge purposes or the Refuge System mission. Refuge-
Minidoka NWR Draft Compatibility Determination 7
specific regulations are designed to minimize impacts and will be evaluated periodically for their effectiveness.
Population and Harvest Data: The Federal Harvest Information Program estimates that 16,800 hunters in Idaho spent an average of 102,700 days hunting and harvested 225,100 ducks annually from 2001 through 2010. Over that same time period, the harvest information program estimates Idaho hunters harvested 59,800 Canada geese annually. This is the third highest total in the Pacific Flyway, behind Oregon and Washington, respectively. The number of waterfowl harvested on Minidoka NWR is unknown; however, if one assumes that each hunt visit results in the harvest of 2 waterfowl, the total number of waterfowl harvested on the Refuge annually represents only 2.5 percent of total numbers of ducks and Canada geese harvested in the state and only a small percentage of total harvest in the Flyway. The proposed expansion of areas available for waterfowl hunting would result in a detectable, but small increase in Refuge harvest.
Nationally, approximately 709,000 dove hunters harvested 11,561,100 (± 6%) mourning doves in 2017 and 694,300 hunters harvested 10,374,500 (±8%) in 2018. In Idaho, approximately 6,900 dove hunters harvested 108,500 (± 42%) mourning doves in 2017 and 11,300 hunters harvested 88,800 (±61%) doves in 2018 (Raftovich et al. 2019). Given the small number of hunters expected to hunt dove on Unit 12, the total number of doves harvested on Unit 12 on the Refuge annually would represent only a small fraction of doves harvested in the state.
Impacts to Wildlife: Local Impact to Upland Birds
Population and Harvest Data: IDFG personnel perform surveys for pheasant, chukar, and grey partridge. IDFG’s 2010 Upland Game Progress Report notes that populations of the species of upland game birds that are legal to hunt on Minidoka NWR are considered stable. The Refuge does not contribute any significant harvest numbers to the total estimated for the southwest region of the state and even less statewide. Refuge staff does not currently perform any inventory or monitoring for any of the upland game bird species.
Impacts to Wildlife: Local Impact to Upland Game
Population and Harvest Data: Populations of cottontail rabbit are considered stable, although they may be cyclical depending mainly upon weather and habitat conditions. The Refuge does not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide. Refuge staff does not currently perform any inventory or monitoring for any of the upland game species.
Impacts to Wildlife: Nontarget Species
Many of the wildlife species that frequent Minidoka NWR rely on aquatic vegetation. Minidoka NWR is an important nesting and brood-rearing site for western and Clark’s grebes (Aechmophorus occidentalis, A. clarkii), both Tier 2 Species of Greatest Conservation Need in Idaho. There have been steep declines in breeding colonies of these species at all sites in Idaho that are monitored (IDFG 2017). However, it is expected that impacts to nontarget species will be minimal because hunting seasons do not coincide with nesting seasons, so reproduction will not be reduced by hunting. Disturbance to the daily activities, such as feeding and resting, of wintering nonhunted birds and resident wildlife might occur. However, while the presence and activity of hunters may cause temporary disturbance to nontarget wildlife species, negative effects are likely
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to be minor due to the limited number of hunters that would be on the Refuge at any given time, the seasonality of the hunts, and the availability of sanctuary areas where no hunting is permitted. Refuge regulations further mitigate possible disturbance by hunters to nonhunted wildlife. Vehicles are restricted to roads and the harassment or taking of any nontarget wildlife is not permitted. Although ingestion of lead shot by nonhunted wildlife could be a cumulative impact, it is not relevant at the Refuge because nontoxic shot will be required.
Potential Impacts to Priority Public Uses
There is the potential for conflict between nonhunters, waterfowl hunters, and upland game hunters using the same off-trail areas. There is also potential for conflicts between boaters and anglers fishing from boats, and waterfowl hunters using the West Hunt Area during the first two weeks of the waterfowl season (mid –October through October 31) because the waters adjacent to the West Hunt Area are open to boating during that time. However, it is believed that safety conflicts between hunters and other Refuge users (e.g. anglers, wildlife observers and photographers) is not a major concern because Refuge visitation is low during the waterfowl hunt season. Additionally, on the West Hunt Unit, hunting over water is allowed only within 100 yards (90 meters) of the shoreline. Measures to reduce conflicts between hunters and other user groups will include providing information on signs and kiosks, and the Refuge’s brochure that clearly indicates permitted uses and rules of conduct.
Impacts associated with the proposed changes to the use:
Local Impacts to Habitat
Impacts to upland habitat resulting from opening 362 acres of the Refuge (Unit 12) to hunting would be the same as described above, but would be expected to be minor because of the low numbers of hunters likely to use Unit 12, and the fact that the hunting seasons lie outside the active growing period for most vegetation. There would be negligible impacts to habitat for waterfowl and waterbirds since Unit 12 wetlands are seasonal and would be dry during the hunt seasons.
Foot travel associated with additional hunting could potentially result in trampling vegetation and soil disturbance, especially in ingress and egress routes (Cole 2004). These impacts are expected to be minor and temporary, given the limited number of hunters expected to use Unit 12. Loss of plants from foot traffic would be minor and temporary and would likely occur on existing trails or game trails created by wildlife movement.
Impacts to Wildlife: Local Impacts to Waterfowl
Even with the proposed addition of waterfowl hunting and the opening of dove and crow hunting on 362 acres of the Refuge, and the 121-acre expansion of the East Hunt Area-S, the Refuge would not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide.
Impacts to Wildlife: Local Impact to Upland Birds
Population and Harvest Data: As noted above, populations of the species of upland game birds that are legal to hunt on Minidoka NWR are considered stable. Even with the proposed addition of upland game bird hunting on 483 acres of the Refuge (Unit 12 and the 121-acre expansion of
Minidoka NWR Draft Compatibility Determination 9
the East Hunt Area-S), and the addition of chukar and sage-grouse to species that may be hunted (Unit 12 only), the Refuge would not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide. Refuge staff does not currently perform any inventory or monitoring for any of the upland game bird species.
Impacts to Wildlife: Local Impact to Upland Game
Population and Harvest Data: Populations of cottontail rabbit are considered stable, although they may be cyclical depending mainly upon weather and habitat conditions. The proposed 483-acre expansion of the area where cottontail rabbit may be hunted (Unit 12 and the 121-acre expansion of the East Hunt Area-S), and the addition of bobcat to species that may be hunted on the Refuge (Unit 12 only) would not contribute any significant harvest numbers to the total estimated for the southeast region of the state and even less statewide. Refuge staff does not currently perform any inventory or monitoring for any of these upland game species.
Impacts to wildlife: nontarget species:
While the presence and activity of hunters may cause temporary disturbance to nontarget wildlife species, there are no foreseeable detrimental impacts to these species, due to the limited number of hunters that would be on the Refuge at any given time, the seasonality of the hunts, and the availability of adjacent habitat to escape to. Opening Unit 12 to hunting and expanding the East Hunt Unit-South represent only a slight increase from current levels of hunting disturbance waterfowl hunters using the East Hunt Unit, or by hunters on public lands adjacent to Unit 12. Unit 12 does not contain the open water and emergent beds required by grebes, so there would be no impacts to these species.
Potential Impacts to Priority Public Uses:
Conflicts between hunters and other user groups could arise, however, this is not expected to be a significant issue because other public uses of Unit 12 are thought to be low, and because only small numbers of hunters would be present on the unit at any given time. Additionally, Unit 12 is disjunct from the Refuge and separated from Lake Walcott and the other hunt areas, where most Refuge use occurs.
No significant effects to roads, trails, or other infrastructure from the hunting program are foreseen. Normal road, trail, and facility upkeep and maintenance will continue to be necessary. Additional facility construction or upgrade, if needed, is addressed in the Availability of Resources section.
Summary and Application to Minidoka NWR: The impact of the Refuge waterfowl and upland game hunting program on regional or statewide populations of target species is likely to be inconsequential. While hunting has no positive effects on wildlife as the activity is occurring, it is well recognized that this activity has given many people a deeper appreciation of wildlife and a better understanding of the importance of conserving their habitat, which has ultimately contributed to the NWRS’s mission.
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Public Review and Comment:
Public review and comments for this Draft Revised Compatibility Determination will be solicited in conjunction with release of the Draft Hunting Plan and Environmental Assessment for Unit 12 of the Minidoka National Wildlife Refuge (USFWS 2020) in order to comply with the National Environmental Policy Act and with Service policy. Public review of the Draft Hunt Plan will be conducted concurrently with public review of the Environmental Assessment, before implementing changes to the Refuge’s migratory and upland game hunting program.
Determination:
Use is Not Compatible
Use is Compatible with Following Stipulations
Stipulations Necessary to Ensure Compatibility:
• Hunting is allowed in designated hunting areas only; see Refuge public use map for locations and boundaries of designated areas. • Hunting of ducks, geese, coot, snipe, pheasant, partridge, and cottontail rabbit is permitted on the Refuge’s West Hunt Area, East Hunt Area, and East Hunt Area-South in accordance with Idaho and Federal hunting regulations. Seasons correspond to Idaho fish and Game season dates. These areas are closed to all hunting when the Idaho waterfowl season is closed, except for elk hunting in the East Hunt Unit-South. • Hunting of migratory birds (duck, coot, light geese, dark geese, dove, snipe, and crow), upland game birds (chukar, gray partridge, sage-grouse, and ring-necked pheasant), cottontail rabbit, and bobcat would be allowed on Unit 12 in accordance with Idaho and Federal hunting regulations. Seasons would correspond to Idaho fish and Game season dates. • Ammunition: Approved nontoxic shot is required for hunting all species. • Retrieving: Hunters or their dogs may retrieve downed game only within designated hunting areas. Hunters are not allowed to enter closed areas to retrieve game. Birds are considered to be within the refuge until they cross over the boundary. • Hunting Blinds: You may only use portable blinds or construct temporary blinds of dead natural vegetation. Blinds will be available for general use on a first-come, first-served basis. You must remove portable blinds at the end of each day’s hunt. We prohibit use of rock piles above the high-water mark for blind construction. Digging pit blinds, and use of live or standing vegetation is prohibited. • On West Hunting Area (Lake Walcott), we allow hunting on the uplands and over water within 100 yards (90 meters) of the shoreline. We allow use of boats only to set/recover decoys and retrieve downed birds; they are not allowed for hunting from, nor can they be used to access any of the islands within this hunting unit. Hunting from the islands within this unit is prohibited. • On East Hunting Area (Tule Island), we allow boats during the waterfowl hunting season. Boats are allowed for use to set decoys, retrieve downed birds, access Tule Island, and to hunt from within this unit. • Off-road travel by vehicles, ATVs/UTVs, and horses is prohibited; • Boating, in areas closed to boating, is prohibited (see Refuge public use map at http://cmsstage.fws.doi.net/uploadedFiles/Minidoka%20Map.pdf#a
Minidoka NWR Draft Compatibility Determination 11
• The Tule Island Access Road is open to vehicles only during the state elk and waterfowl hunting seasons; foot travel is permitted year-round; • The Bird Island Road Road is closed to vehicles January 15 to September 20; foot travel permited. • Camping is prohibited on the Refuge, except in Lake Walcott State Park; • Open fires and fireworks are not allowed at any time; • Firearms may only be discharged in accordance with Refuge hunting regulations, i.e., only during the lawful pursuit of game during legal seasons; • Personal property, including portable blinds and tree stands, must be removed from the Refuge at the end of each day; and • Cutting of live vegetation for blinds is prohibited. Collecting natural objects such as plants, animals, minerals, antlers, and feathers, and objects of antiquity (including Native American artifacts, such as arrowheads) is prohibited.
Justification:
This use would be compatible provided the above stipulations are implemented. The hunting of waterfowl and other migratory birds, and upland game on the Minidoka NWR would contribute to the mission of the NWRS by providing a wildlife-oriented recreational benefit to Americans. Hunting is also one of the six wildlife-dependent recreational uses of the NWRS as stated in the National Wildlife Refuge System Improvement Act of 1997.
By following established State guidelines, implementing stipulations, and maintaining closed areas, this waterfowl and upland game hunting program will not interfere with the Refuge achieving its purpose of “a refuge and breeding ground for migratory birds and other wildlife.” It is anticipated that wildlife populations will find sufficient food resources and resting places such that their abundance and use of the Refuge will not be measurably lessened from allowing hunting to occur on the Refuge. The relatively limited number of individuals expected to be adversely affected due to hunting will not cause wildlife populations to materially decline, the physiological condition and production of wildlife species will not be impaired, their behavior and normal activity patterns will not be altered dramatically, and their overall welfare will not be negatively impacted. Thus, allowing hunting to occur with stipulations will not materially detract or interfere with the purposes for which the Refuge was established or the Refuge System mission.
Hunting of waterfowl and upland game on Minidoka National Wildlife Refuge has been determined to be compatible with stipulations.
Signature: Refuge Manager:______Date:______
Concurrence: Regional Chief:______Date:______
Mandatory Re-Evaluation Date (provide month and year for “allowed” uses only):
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2035 Mandatory 15-year Re-evaluation date (for priority public uses)
Mandatory 10-year Re-evaluation date (for all uses other than priority public uses)
NEPA Compliance for Refuge Use Decision:
Categorical Exclusion without Environmental Action Statement
Categorical Exclusion and Environmental Action Statement
X Environmental Assessment and Finding of No Significant Impact
Environmental Impact Statement and Record of Decision
References:
Adkison, G.P. and M.T. Jackson. 1996. Changes in ground-layer vegetation near trails in Midwestern U.S. forests. Natural Areas Journal 16:14-23. Alcock, J. 1993. Animal behavior: an evolutionary approach. 5th ed. Sunderland, MA: Sinauer Associates. Bartelt, G.A. 1987. Effects of disturbance and hunting on the behavior of Canada goose family groups in east central Wisconsin. Journal of Wildlife Management 51:517-522. Belanger, L. and J. Bedard. 1990. Energetic cost of man-induced disturbance to staging snow geese. Journal of Wildlife Management 54:36-41. Benninger-Truax, M., J.L. Vankat, and R.L. Schaefer. 1992. Trail corridors as habitat and conduits for movement of plant species in Rocky Mountain National Park, CO. Landscape Ecology 6(4):269-278. Berg, G., L. Wilkinson, H. Wollis, and D. Prescott. 2004. Western (Aechmophorous occidentalis) and eared (Podiceps nigricollis) grebes of Central Alberta: 2004 field summary. Alberta Sustainable Resource Development, Fish and Wildlife Division, Alberta Species at Risk Report No. 94. Edmonton, Alberta. Cole, D.N. 2004. Environmental impacts of outdoor recreation in wildlands. Pages 107–116 in: M.J. Manfredo, J.J. Vaske, B.L. Bruyerre, D.R. Field, and P.J. Brown, eds. Society and natural resources: a summary of knowledge. Jefferson, MO: Modern Litho. Dale, D. and T. Weaver. 1974. Trampling effects on vegetation of the trail corridors of north Rocky Mountain forests. Journal of Applied Ecology 11:767-772. DeLong, A.K. 2002. Managing visitor use and disturbance of waterbirds—a literature review of impacts and mitigation measures. Prepared for Stillwater National Wildlife Refuge. Appendix L in: Stillwater National Wildlife Refuge Complex Final Environmental Impact Statement for the Comprehensive Conservation Plan and Boundary Revision (Volume II). Department of the Interior, Fish and Wildlife Service, Region 1, Portland, Oregon. 114 pp. Available at: www.fws.gov/stillwater/litreview. DeLuca, T.H., W.A. Patterson, W.A. Freimund, and D.N. Cole. 1998. Influence of llamas, horses, and hikers on soil erosion from established recreation trails in western Montana. USA Environmental Management 22(2):255-262.
Minidoka NWR Draft Compatibility Determination 13
Fernández-Juricic, E., P.A. Zollner, C. LeBlanc, and L.M. Westphal. 2007. Responses of nestling black-crowned night herons (Nycticorax nycticorax) to aquatic and terrestrial recreational activities: a manipulative study. Waterbirds 30(4):554-565. Gabrielsen, G.W. and E.N. Smith. 1995. Physiological responses of wildlife to disturbance. Pages 95-107 in: R.L. Knight and K.J. Gutzwiller, eds. Wildlife and recreationists: coexistence through management and research. Washington, D.C.: Island Press. Hansen, M.J. and A.P. Clevenger. 2005. The influence of disturbance and habitat on the presence of nonnative plant species along transport corridors. Biological Conservation 125(2005):249- 259. Havera, S.P., L.R. Boens, M.M. Georgi, and R.T. Shealy. 1992. Human disturbance of waterfowl on Keokuk Pool, Mississippi River. Wildlife Society Bulletin 20(3):290-298. Hughes, J. M. 2015. Yellow-billed Cuckoo (Coccyzus americanus), version 2.0. In The Birds of North America (P. G. Rodewald, Editor). Cornell Lab of Ornithology, Ithaca, NY, USA. https://doi.org/10.2173/bna.418 IDFG (Idaho Department of Fish and Game). 2017. Idaho State Wildlife Action Plan, 2015. Boise (ID): Idaho Department of Fish and Game. Grant No.: F14AF01068 Amendment #1. Available from: http://fishandgame.idaho.gov/. Sponsored by the US Fish and Wildlife Service, Wildlife and Sport Fish Restoration Program. Kahl, R. 1991. Boating disturbance of canvasbacks during migration at Lake Poygan, Wisconsin. Wildlife Society Bulletin 19(3):242-248. Kenow, K.P., C.E. Korschgen, J.M. Nissen, A. Elfessi, and R. Steinbach. 2003. A voluntary program to curtail boat disturbance to waterfowl during migration. Waterbirds 26(1):77-87. Kight, C.R. and J.P. Swaddle. 2007. Associations of anthropogenic activity and disturbance with fitness metrics of eastern bluebirds (Sialia sialis). Biological Conservation 138(1-2):189-197. Knapton, R.W., S.A. Petrie, and G. Herring. 2000. Human disturbance of diving ducks on Long Point Bay, Lake Erie. Wildlife Society Bulletin 28(4):923-930. Knight, R.L. and D.N. Cole. 1991. Effects of recreational activity on wildlife in wildlands. Transactions of the North American Wildlife and Natural Resources Conference 56:238-247. Knight, R.L. and D.N. Cole. 1995. Factors that influence wildlife responses to recreationists. Pages 71-79 in: R.L. Knight and K.J. Gutzwiller, eds. Wildlife and recreationists: coexistence through management and research. Washington, D.C.: Island Press. Knight, R.L., and Temple, S.A. 1995. Origin of wildlife responses to recreationists. In: Wildlife and recreationists–Coexistence through management and research. Washington, D.C., Island Press, p. 81–91. Korschgen, C.E. and R.B. Dahlgren. 1992. Human disturbances of waterfowl: causes, effects, and management. Waterfowl Management Handbook. Fish and Wildlife Leaflet 13.2.15. U.S. Fish and Wildlife Service. 8 pp. Liddle, M.J. 1975. A selective review of the ecological effects of human trampling on natural ecosystems. Biological Conservation 7:17-36. Madsen, J. 1995. Impacts of disturbance on migratory waterfowl. Ibis 137:S67-S74. Miller, J.R. and N.T. Hobbs. 2000. Recreational trails, human activity, and nest predation in lowland riparian areas. Landscape and Urban Planning 50(4):227-236. Miller, S.G., R.L. Knight, and C.K. Miller. 1998. Influence of recreational trails on breeding bird communities. Ecological Applications 8(1):162-169. Morton, J.M., A.C. Fowler, and R.L. Kirkpatrick. 1989. Time and energy budgets of American black ducks in winter. Journal of Wildlife Management 53:401-410. Oberbillig, D.R. 2000. Providing positive wildlife viewing experiences. Deborah Richie Communications. Missoula, MT. Owens, N.W. 1977. Responses of wintering brant geese to human disturbance. Wildfowl 28:5- 14.Raftovich, R.V., K.K. Fleming, S. C. Chandler, and C.M. Cain, 2019. Migratory bird hunting
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activity and harvest during the 2017-18 and 2018-19 hunting seasons. U.S. Fish and Wildlife Service, Laurel, Maryland, USA. Raveling, D.G. 1979. The annual cycle of body composition of Canada geese with special reference to control of reproduction. Auk 96:234-252. USFWS (U.S. Fish and Wildlife Service). 1995. Snake River Aquatic Species Recovery Plan. Snake River Basin Office, Ecological Services, Boise, ID. 92 pp. USFWS (U.S. Fish and Wildlife Service). 2020. Environmental assessment for the draft Unit 12 hunt plan, Minidoka National Wildlife Refuge. On file at Minidoka Refuge. Hamer, ID. USFWS and U.S. Census Bureau. 2007. 2006 national survey of fishing, hunting and wildlife- associated recreation. Available at: http://www.census.gov/prod/2008pubs/fhw06-nat.pdf. Accessed May 18, 2012. White-Robinson, R. 1982. Inland and salt marsh feeding of wintering brent geese in Essex. Wildfowl 33:113-118. Whittaker, P.L. 1978. Comparison of surface impact by hiking and horseback riding in the Great Smoky Mountain National Park. Management Report 24. U.S. Department of the Interior, National Park Service. 80 pp.
Minidoka NWR Draft Compatibility Determination 15
Attachment A. Minidoka NWR Current Public Use Access
16
Refuge Boundary Boat Ramp Public Hunting Improved Roads Land Area N Unimproved Road Public Hunting 0 Miles 2 (not recommended Water Area 0 Kilometers 2 for sedans) Buoy Line Boat Fishing Area A Hunter Parking Area Lake Walcott State Park
Closed to Boats
To Minidoka To Wapi Blaine County Minidoka County No Wake Zone C To ana Rupert l Lake Blaine County Bird Walcott Island Cassia County B A S l na To na F D ke a Wapi Road closed to vehicles C Minidoka E C January 15 to September 20, R Power County Dam i Blaine County foot travel permited. ve Boat Fishing Boat Fishing Gifford r Lane Springs To American Refuge Access to West Lane Falls
d
Headquarters Hunting Area a o is located within Lake (Road closed to R Smith d
Walcott State Park. vehicles January 15 n Springs a l to September 20, s I d S foot travel permited.) r nake Tule Island R i iver To Rupert (Baseline Road) B G To Coldwater American Microwave Old Highway 30N Interchange Falls Tower Exit 21
To Burley Exit 15 Power County Raft Cassia County River
Attachment B. Unit 12 Map
Minidoka NWR Draft Compatibility Determination 17 U.S. Fish & Wildlife Service Minidoka National Wildlife Refuge - Unit 12
Minidoka NWR East Approved Refuge Boundary Hunting Lake Walcott Area Unit 12 Open to mule deer, elk, upland game bird, and small game hunting under State seasons and Washington West Hunting Area regulations* Montana
Bureau of Land Management Oregon Idaho Area of East Hunting Wyoming 86 Interest ¨¦§ Area - South *Subject to additional restrictions under Refuge specific regulations. Raft River Hunters must obtain permission to cross private lands to Hunting Area access Refuge hunt areas. Nevada
d R el nn ha C UNIT 12 e ak t L es W
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Produced by NWRS Geospatial Services Portland, Oregon 0 0.5 1 Map Date: 1/23/2020 Miles Basemap: ESRI Image Service Image Date: 9/17/2018 Kilometers E File: R1_NWRS_FY20_263_MND_hunting_unit12.mxd 0 0.5 1 UTM12 NAD 83
Draft Revised Compatibility Determination for Big Game Hunting on Minidoka National Wildlife Refuge
Use: Big Game Hunting (Elk, Deer)
Refuge Name: Minidoka National Wildlife Refuge (NWR, Refuge)
Location: Minidoka, Blaine, Cassia, and Power Counties, Idaho
Date Established: 1909
Establishing and Acquisition Authorities:
• Exective Order (E.O.) 1032, February 25, 1909, established several reservoir sites, including the Minidoka NWR as “preserves and breeding grounds for native birds”; • E.O. 1486, February 21, 1912, enlarged the Refuge to include all of Lake Walcott; • E.O. 5375, June 23, 1930, enlarged the Minidoka Bird Reservation; • E.O. 7417, July 17, 1936, superseded, through revocation, E.O.s 1032, 1486, 5375; withdrew lands “as a refuge and breeding ground for birds and other wildlife…The greater part of the land herein reserved has been withdrawn for reclamation purposes in connection with the Minidoka Irrigation Project…The reservation of such land as a wildlife refuge is subject to the use therof by said Department for irrigation and incidental purposes.”;and • E.O. 8600, November 26, 1940, changed the name of the Refuge from “Minidoka Wildlife Refuge” to “Minidoka National Wildlife Refuge” and added 360 acres (withdrawn for reclamation purposes) to the Refuge boundary.
Refuge Purpose:
• “. . .as a refuge and breeding ground for birds and other wildlife” (Executive Order 7417, July 17, 1936).
National Wildlife Refuge System Mission:
“… 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” (National Wildlife Refuge System Administration Act of 1966, as amended [16 U.S.C. 668dd-668ee]).
Description of Use:
Current Use:
The East Hunt Unit-South (East Hunt Unit-S), which lies south of the Snake River (300 acres) is open to big game (elk) hunting as prescribed by Idaho Fish and Game (IDFG) during the general A tag (archery) season for Unit 68 in the Big Desert Zone. The East Hunt Unit (580 acres) is open to migratory bird and upland game hunting, but closed to elk hunting.
Minidoka NWR Draft Compatibility Determination 1
Currently, the archery hunt for either sex is from August 1 through September 30, although IDFG may change those dates in the future.
Since all of the East Hunt Unit-S lies within one mile of cultivated fields on private lands, the entire elk hunting area is open to hunting from August 1 to September 30. The East Hunt Unit-S lies within an area of the Refuge that is closed to boating during the elk hunts; therefore, elk hunters are not allowed to use boats to access Tule Island or either shore of the river. Tule Island is closed to elk hunting.
Access to the elk hunt area is provided at the Coldwater parking area (Parking Area G), at the end of the Tule Island Access Road, which can be accessed from Barkdull Road (Exit 21 off Interstate 86). All other areas require access through private land (landowner permission) before reaching the Refuge. Hunters self-navigate to their location on foot; vehicles are prohibited.
Elk hunters must comply with all applicable IDFG regulations. Under current regulations, elk hunters must carry a valid Idaho hunting license with archery permit validation. Elk hunters are required to have an “A” tag for elk for the Big Desert Zone issued by IDFG. No Refuge permit is required. Only longbows, compound bows, or recurve bows may be used, in compliance with general archery equipment requirements, except that hunters possessing a disabled archery permit may use a device that holds a bow at partial or full draw, and may use a crossbow. Specific Refuge regulations are described in the Stipulations Necessary to Ensure Compatibility section below.
Hunters must make every effort to retrieve wounded game. Successful hunters (or designated assistants of mobility-impaired hunters) are allowed to move a harvested elk to the nearest established, designated Refuge road by foot. Vehicles can then be used to remove the elk from the Refuge. If a mobility impaired hunter does not have an assistant, Refuge personnel or a trained volunteer will aid in the removal of elk and will determine the best route for removal of game. If a wounded animal leaves the area open to elk hunting on the Refuge and enters an area that is closed to hunting, the hunter or assistant will be escorted by Refuge staff or trained volunteer to retrieve the game. If a wounded animal leaves the Refuge and enters private land, permission must by granted by private landowners to attempt retrieval, in accordance with Idaho laws. Why this use is being proposed: The purpose of this proposed action is to provide compatible wildlife-dependent recreational opportunities on Minidoka NWR and to offer additional hunting opportunities and greater alignment with the state as mandated by Secretarial Orders numbers 3347 and 3356. The need of the proposed action is to meet the Service’s priorities and mandates as outlined by the National Wildlife Refuge System Improvement Act (NWRSIA) of 1997. The NWRSIA “recognize(s) compatible wildlife-dependent recreational uses as the priority general uses of the NWRS” and “ensure that opportunities are provided within the NWRS for compatible wildlife- dependent recreational uses” 16 U.S.C. 668dd(a)(4)). An additional purpose of the Refuge elk hunt is to provide the state with a strategy to maintain elk numbers at levels which limit agricultural damage, yet provide a desirable hunting opportunity and experience.
The objectives of the proposed elk hunt on Minidoka NWR are: 1) To provide compatible wildlife- dependent recreational opportunities as mandated by and according to Service law and policy; (2) To provide additional hunting opportunities and greater alignment with the state as mandated by Secretarial Orders Number 3347 and 3356; and (3) To provide the state with a strategy to maintain
elk numbers at levels which limit agricultural damage yet provide a desirable hunting opportunity and experience. The hunt would offer a reasonable opportunity to harvest elk. The elk hunt would help alleviate localized depredation issues on nearby agricultural lands by reducing the elk population, and/or dispersing elk onto adjacent private or public (BLM) lands where they may be hunted.
Proposed Changes to the Use:
Proposed changes to the Refuge’s big game hunting program are described in the Draft Revised Plan for the South Side Elk Hunt (USFWS 2020) and the Draft Hunting Plan for Unit 12 of the Minidoka National Wildlife Refuge (USFWS 2020) as follows:
Expand area of the Refuge open to elk hunting, add mule deer to species that may be hunted (Unit 12 only): We would expand the East Hunt Unit-S westward to the Raft River Bay and Raft River, an addition of 121 acres (421 acres total). We propose to create a new hunt unit, the Raft River Hunt Area (687 acres) and open this unit to elk hunting. This new hunt area lies in Cassia County, east of Raft River Bay and the Raft River and south of Lake Walcott/Snake River, eastward to the Power County line. Therefore, the total area of the Refuge south of the Snake River that would be open to elk hunting would be 1,109 acres, an increase of 809 acres.
We also propose to open the Refuge’s Unit 12 (362 acres; north of the Snake River and disjunct from the rest of the Refuge) to hunting of all game species under IDFG regulations, including both elk and mule deer. Thus, elk hunting would be allowed during State seasons on 1,470 acres of the Refuge and mule deer hunting would be allowed on 362 acres.
The East Hunt Area-South lies in Power County within the State GMU 68 in the Big Desert Zone. The East Hunt Unit-S is also currently open to limited sport hunting for ducks, geese, coots, snipe, pheasants, partridge, and cottontail rabbits; this would remain unchanged. The Raft River Hunt Area (687 acres) lies in Cassia County within the State GMU 53 in the Snake River Zone, and would be designated as the Raft River Hunt Area (687 acres).
Expand method of take for elk to align with State regulations. We propose to expand elk hunting on the Refuge from the current archery-only hunt, to include all State hunts in the applicable game management units. Thus the Refuge would be open to three IDFG controlled elk hunts in the portion of the Refuge hunt area within GMU 68 in Idaho’s Big Desert Zone: an archery hunt, an any- weapons antlered hunt, and an any-weapons antlerless hunt. This would extend the elk hunt on the Refuge’s East Hunt Unit-South from current two months, to four months. Unit 12 would be open to all State hunts for mule deer and elk in GMU 68. The Refuge would also be open to a short range weapons hunt (any elk) in the portion of the Refuge hunt area within GMU 53 in Idaho’s Snake River Zone. This hunt has a five month season. The proposed hunts would coincide with all state regulations and season dates as established by IDFG. All big game hunters would be required to carry a valid Idaho hunting license with appropriate validations for archery or muzzleloader if these weapons are used, and tags issued by IDFG. Participants in controlled hunts must have a valid controlled hunt tag in their possession. No Refuge permit would be required.
Access to the East Hunt Area-South will be provided at the Coldwater parking area (Parking Area G), at the end of the Tule Island Access Road, which can be accessed from Barkdull Road (Exit 21 off Interstate 86). The Raft River Hunt Area can be accessed via Exit 15/Raft River on Interstate 86, to County Road N 2950 E, which leads to the Gifford Springs boat ramp. All other areas require access through private land (landowner permission) before reaching the Refuge. Hunters will self-
Minidoka NWR Draft Compatibility Determination 3
navigate to their location on foot; vehicles are prohibited off-road. Elk hunters will not be allowed to use boats to access the hunt areas.
Big game hunters may enter hunt areas no earlier than one and one-half hours before legal hunting time and must leave within one and one-half hours after legal hunting time. In accordance with Idaho regulations, big game may be hunted only from one-half hour before sunrise to one-half hour after sunset. Only foot traffic would be allowed; motorized vehicles are prohibited off-road. No overnight camping or campfires would be allowed. No permanent blinds would be allowed. Temporary blinds and tree stands would be required to be removed daily. Cutting live vegetation for blinds and shooting lanes would not be allowed.
Need and Availability of Resources: The Refuge is administered by the Southeast Idaho National Wildlife Refuge Complex (Complex), which also administers the Deer Flat, Camas, Bear Lake, and Grays Lake National Wildlife Refuges. Only the Refuge Manager and Wildlife Biologist are stationed at Minidoka NWR; they are responsible for day-to-day operations. Personnel stationed at Complex headquarters, located in Chubbuck ID provide support to Minidoka NWR and other refuges in the Complex. The distance of the Refuge to shared staff can present logistical challenges. However, they can be overcome by incorporating the management of big game hunting into existing hunt programs currently in place within the Complex Given that the proposed deer and elk hunts fall within the state hunting framework which is managed by IDFG, the proposed hunts would require relatively little oversight from Refuge staff. Some costs associated with the hunts would be shared with the existing hunting and fishing programs (e.g., maintenance of roads and parking areas). Estimated costs to implement the hunt would be approximately $4,000.00 annually to cover staff time needed to consult and coordinate with the state and to cover costs of additional law enforcement patrols to enforce hunting regulations, and $10,000 in one-time costs to for new brochures and signs. There are currently enough funds in Refuge operations to implement this program. Anticipated Impacts of Described Use:
Impacts of Current Use Evaluated in 2019 Compatibility Determination: Impacts to Habitats: Fires, overnight camping, and use of off-road vehicles by hunters would be prohibited. Foot travel associated with additional hunting could potentially result in trampling vegetation and soil disturbance, especially in ingress and egress routes (Cole 2004). But these impacts are expected to be minor and temporary, given the limited number of archery elk hunters expected on the Refuge. Loss of plants from foot traffic would be minor and temporary and would likely occur on existing trails or game trails created by wildlife movement.Impacts to Elk: Hunting can result in the direct and indirect impacts to wildlife. Direct impacts include the take or wounding of an individual animal. Indirect impacts can include the aleration of habitat and disturbance to animals caused by hunting (DeLong 2002). Hunting pressure can alter behavior (e.g., foraging time), population structure, and distribution patterns of wildlife (Knight and Cole 1991. Knight and Cole 1995, Knight and Temple 1995). The Refuge staff has coordinated closely with IDFG in developing an elk hunt that falls within frameworks for the general elk hunt within Game Management Unit (GMU) 68. The proposed elk hunt would provide a quality hunting experience while supporting IDFG’s objectives for the Big Desert Management Zone (which includes GMUs 52A and 68). IDFG’s proposed 10-year management direction for the Big Desert Zone is as follows: “Reduce elk populations to lower levels. Hunts have been designed to help address elk damage to agricultural crops in the times and places where it occurs…Where agricultural concerns are now at manageable levels - such as in much of Unit 68 - elk numbers will be maintained at levels which limit agricultural damage yet provide a desirable hunting opportunity and experience. As with other zones limited by agricultural impacts, the overall goal is to strike a balance between being responsive to depredation issues while still providing quality hunting opportunity” (IDFG 2014). Aerial elk population surveys are not conducted in the Big Desert Zone because of the large land area and small dispersed groups of elk. Elk populations in this zone are managed using harvest data analysis and minimization of elk depredations on agricultural lands. Elk are local residents of the desert habitat and travel openly on and off the Refuge throughout the year, most notably on the eastern end of the Refuge near neighboring agricultural fields. The current herd in the Coldwater area, which includes the eastern portion of the Refuge and adjacent private lands, is estimated to number around 50-60 animals. They appear to winter south of Interstate 86 and utilize the Refuge as a migration corridor between agricultural fields and bedding areas (Krueger 2018, pers. comm.). In recent years, elk numbers have increased in the Coldwater area, causing damage to crops on private lands surrounding the Refuge. The amount of harvest would be set annually by IDFG based on an analysis of previous years’ harvest data and reported elk depredations on agricultural lands. Take levels are not possible to forecast, but based on the acreage of huntable land at the Refuge and hunting statistics from IDFG (0.12 hunters per square mile and 0.03 elk harvested per square mile) (IDFG 2014), the Service expects hunting pressure to be light with few elk harvested on the unit annually. This would be a minor effect to the overall elk population as the harvest would be detectable but localized, small, and of little consequence to the statewide population of elk. With fewer elk in the Big Desert Zone, elk depredations of private lands may be reduced somewhat, but the amount is not possible to forecast.
Hunting is the traditional means used by IDFG to manage elk populations. The influence of hunting on population dynamics of Idaho elk populations is understood and well documented (Hayes et al. 2002; Hughbanks 1993; Unsworth et al. 1993). The proposed elk hunt may mimic the ecological role that large predators once served, in both removing a segment of the population and also causing disturbance and animal movement. In the absence of many large predators, elk hunting on Minidoka NWR may provide some population level regulation for IDFG, as well as a source of disturbance that modifies animal use patterns. Providing some hunting pressure on the Refuge may disperse elk off the Refuge onto other public or private lands that surround the Refuge where hunting may occur.
As well as causing direct mortality, hunting may be an indirect cause of mortality or reduced herd productivity. Wildlife physiological responses can include the “fight or flight” response, with elevated heart and respiratory rates, or the “freeze” response, with inhibition of activity and reduced heart and respiratory rates (Millspaugh 1999). Most big game ungulates either run (flight) or hide (freeze) in response to hunting pressure. Generally, elk respond to disturbance by fleeing; whereas, deer elude hunters by hiding (Johnson et al. 2005). If animals successfully elude hunters by running, the energetic cost may deplete fat reserves needed for survival during winter in temperate regions.
Elk within GMU 68 could potentially incur higher energy costs due to hunter disturbance from the proposed elk hunt on Minidoka NWR. This could indirectly lead to reduced body condition and reproductive fitness as elk may have to deplete stored fat reserves to avoid hunters and forage on more remote and less secure BLM rangelands.
In summary, the Refuge hunt would result in a minor increase in direct mortality of the elk herd in GMU 68, and could cause a slight decrease in reproductive fitness of individual animals. Therefore the hunting program could contribute to a decline in long-term herd productivity in GMU 68.
Minidoka NWR Draft Compatibility Determination 5
However this would be in line with the IDFG’s elk management objective for the Big Desert Zone, including GMU 68, which is to reduce the current population.
Impacts to Other Wildlife Species: The presence and sighting of hunters traveling to, from, and within hunting areas can disturb non-target wildlife species, such as passerine birds, waterfowl, and other waterbirds using Refuge habitats. This disturbance, when repeated over a period of time, may result in some wildlife species altering food habits or moving to other areas. The proposed archery elk hunts would be allowed on a portion of the East Hunt Unit (approximately 1,094 acres) that is currently open to other hunting opportunities. Only the mainland portion of the East Hunt Unit south of the Snake River (300 acres) would be open to elk hunting. However, while the presence and activity of additional hunters may cause temporary disturbance to other wildlife in the area, there are no foreseeable detrimental impacts to these species, due to the limited number of hunters that would be on the Refuge at any given time, the seasonality of proposed hunts, the availability of adjacent habitat to escape to, and the nature of the hunt (an archery hunt would cause minimal noise disturbance). While the proposed elk hunts fall within the breeding period for western and Clark’s grebes and the molting period for waterfowl, since Tule Island would be closed to the proposed elk hunts and the eastern portion of the Refuge is closed to boating (except for waterfowl hunters within the East Hunt Unit during the waterfowl hunting season), impacts to molting waterfowl and breeding grebes caused by elk hunting would be minimal. The impacts to other species caused by the proposed elk hunts would be minimal, since the hunts would occur from August 1 through September 30, which is a relatively low wildlife use period by most species, other than shorebirds that are beginning to migrate. However, shorebirds would primarily be using the shoreline areas of the reservoir, which are extensive and allow ample area for escape from disturbance. Two species are protected under the Endangered Species Act of 1973 that occur within the boundaries of the Refuge: the yellow-billed cuckoo (threatened) and the Snake River physa (endangered). Direct and indirect impacts to yellow-billed cuckoo are expected to be negligible. Their preferred riparian habitat of tall-stature willows and cottonwood does not occur on the East Hunt Unit and the species has not been observed there. Additionally, the hunt dates occur outside their breeding season and newly hatched birds would have fledged prior to the commencement of the hunt (Hughes 2015). There would be no direct or indirect effects to the Snake River physa as it is an aquatic species that does not occur on the area we propose to open to elk hunting (USFWS 1995). Impacts to Other Wildlife-dependent Recreational Uses: Conflicts between elk hunters and other user groups could arise, however, this is not expected to be a significant issue because (1) elk hunting would be restricted to the mainland portion of the East Hunt Unit, which receives minimal visitation; (2) because the elk season is relatively short (2 months, August 1 to September 30); and (3) because only small numbers of elk hunters would be present on the Refuge at any given time. There would be no conflicts between elk hunters and waterfowl hunters, since the state waterfowl season starts after the close of the archery elk season.
Impacts to Adjacent Lands: By offering elk hunting on Minidoka NWR and aligning it with IDFG goals and objectives, it is reasonable that with the harvest of animals and the increased hunt pressure, damage to adjacent farmlands would be slightly reduced.
Summary and Application to Minidoka NWR: The proposed elk hunt on Minidoka NWR may cause declines in the local elk population (GMU 68). However this is consistent with IDFG management of the GMU 68 elk herds. The impact of the Refuge hunting program on regional or statewide elk populations is likely to be inconsequential. While hunting has no positive effects on elk as the activity is occurring, it is well recognized that this activity has given many people a deeper appreciation of wildlife and a better understanding of the importance of conserving their habitat, which has ultimately contributed to the NWRS’s mission.
Impacts associated with the proposed changes to the use:
The types of impacts to big game species, other wildlife, Refuge habitats, and the public resulting from expanding the area where big game can be hunted on the Refuge are largely the same as those listed above. Impacts to threatened and endangered species (yellow-billed cuckoo and Snake River physa) would be negligible. Additional impacts that result from the area expansion, the allowance of all legal methods of take (including firearms) for big game hunting, and allowing hunting of mule deer on Unit 12 of the Refuge, are described here.
Impacts to Habitat: Impacts would be the same as under the current use, but would be distributed over a larger area (big game hunting would be allowed on 1,471 acres of the Refuge, an increase of 1,171 acres over the current acreage). Impacts to Deer and Elk: Impacts include direct mortality caused by hunting, and disturbance. The amount of elk harvest would be set annually by IDFG based on an analysis of previous years’ harvest data and, in the case of elk, reported depredations on agricultural lands. Take levels are not possible to forecast, but based on the acreage of huntable land at the Refuge and hunting statistics from IDFG (0.12 hunters per square mile and 0.03 elk harvested per square mile in the Big Desert Zone and 0.05 hunters per square mile with an elk harvest of 0.01 elk per square mile in the Snake River Zone; IDFG 2014). Number of mule deer hunters and deer harvested per square mile in the Big Desert Zone is also low (IDFG 2019). Therefore, the Service expects hunting pressure to be light with few deer or elk harvested on the unit annually. This would be a minor effect to the overall populations as the harvest would be detectable but localized, small, and of little consequence to statewide populations. With fewer elk in the Big Desert Zone, elk depredations of private lands may be reduced somewhat, but the amount is not possible to forecast. Impacts to Other Wildlife: The presence and sighting of hunters traveling to, from, and within hunting areas can disturb non-target wildlife species, such as passerine birds, waterfowl, and other waterbirds using Refuge habitats. This disturbance, especially when repeated over a period of time, may result in some wildlife species altering feeding habits or cause them to move to other areas. The proposed elk hunts would be allowed on 421 acres (East Hunt Unit-South) that is currently open to other hunting opportunities. The Raft River Hunt Unit (687 acres) and Unit 12 of the Refuge (362 acres) would be opened to hunting for the first time. However, while the presence and activity of additional hunters may cause temporary disturbance to other wildlife in the area, there are no foreseeable detrimental impacts to these species, due to the limited number of big game hunters that would be on the Refuge at any given time, the seasonality of proposed big game hunts (August 1- December 31 for elk hunts in the Raft River Hunt Unit, August 1-November 30 for elk hunts in the
Minidoka NWR Draft Compatibility Determination 7
East Hunt Unit-South, and August 30-November 30 for the Unit 12 mule deer and elk hunts), and the availability of adjacent habitat to escape to. Although the proposed deer and elk hunts fall within the breeding period for western and Clark’s grebes and the molting and migration period for waterfowl, impacts to molting and migrating waterfowl and breeding grebes caused by big game hunting would be minimal because Tule Island would be closed to the big game hunting and because the eastern portion of the Refuge, with the exception of the Gifford Springs boat lane, is closed to boating. Unit 12 does not contain the open water and emergent beds required by grebes or molting waterfowl. Noise disturbance would be caused by big game hunters using firearms, including at times when molting or migrating waterfowl are present. This would however, represent only a minor increase from current levels of disturbance caused by waterfowl hunters using the East Hunt Unit and the East Hunt Unit-South, or by hunters on public lands adjacent to Unit 12. The impacts to other species caused by the proposed elk hunts would be minimal, since the hunts would occur during a relatively low wildlife use period by most species, other than shorebirds that are beginning to migrate. However, shorebirds would primarily be using the shoreline areas of the reservoir, which are extensive and allow ample area for escape from disturbance. Impacts to Other Wildlife-dependent Recreational Uses: Conflicts between big game hunters and waterfowl and upland game hunters using the Refuge’s East Hunt Unit could arise, since the elk hunts overlap with the state waterfowl season (October 13-Jan 25 in 2019). However, this is not expected to be a significant issue because (1) elk hunting would be restricted to the mainland portion of the refuge south of the Snake River and east of Raft River and Raft River Bay, which receives minimal visitation, (2) most waterfowl hunting activity occurs in the West Hunt Unit, which is closed to elk hunting, and (3) because only small numbers of big game hunters would be present on the Refuge at any given time. There would be no conflicts between deer and elk hunters on Unit 12 and waterfowl, upland game, and elk hunters using other Refuge hunt units, since Unit 12 is disjunct from the rest of the Refuge and a different access point would be used.
Summary and Application to Minidoka NWR: The proposed expansion to big game hunting on Minidoka NWR may cause declines in the local mule deer (GMU 68) elk population (GMUs 53 and 68). However this is consistent with IDFG management mule deer in GMU 68 and elk in GMUs 53 and 68. The impact of the Refuge hunting program on regional or statewide mule deer and elk populations is likely to be inconsequential. While hunting has no positive effects on deer and elk as the activity is occurring, it is well recognized that this activity has given many people a deeper appreciation of wildlife and a better understanding of the importance of conserving their habitat, which has ultimately contributed to the NWRS’s mission.
Public Review and Comment:
Public review and comments for this Draft Revised Compatibility Determination will be solicited in conjunction with release of the Draft Revised Plan and Supplemental Environmental Assessment for the South Side Elk Hunt (USFWS 2020), and the Draft Hunting Plan and Environmental Assessment for Unit 12 of the Minidoka National Wildlife Refuge (USFWS 2020) in order to comply with the National Environmental Policy Act and with Service policy. Public review of the Draft Hunt Plans will be conducted concurrently with public review of the Environmental Assessments, before implementing changes to the Refuge’s big game hunting program.
Determination:
Use is Not Compatible
Use is Compatible with Following Stipulations
Stipulations Necessary to Ensure Compatibility:
• All big game hunters must carry a valid Idaho hunting license with archery or muzzleloader permit validation if these weapons are used. Big game hunters will be required to have an “A” tag for elk for the Big Desert Zone or Snake River Zone, or controlled hunt tag for deer or elk issued by IDFG; • Big game hunting would be permitted only Unit 12 and the Refuge areas east of Raft River Bay and south of the Snake River (the Raft River Hunt Unit and the East Hunt Unit-South); • The Tule Island Access Road is open to vehicles only during the state GMU 53 and 68 elk archery season and waterfowl hunting seasons; foot travel is permitted year-round; • Elk hunters may enter the Refuge one and a half hours before shooting time begins and must leave within one and a half hours after shooting time ceases, unless retrieving deer or elk;. • Refugehunting hours for deer and elk will coincide with the IDFG hunting defined state hours for big game, currently one-half hour before sunrise to one-half hour after sunset; • Off-road travel by vehicles, ATVs/UTVs, and horses is prohibited; • Boating, in areas closed to boating, is prohibited (see Refuge public use map at http://cmsstage.fws.doi.net/uploadedFiles/Minidoka%20Map.pdf#a • Hunters (or designated assistants of mobility impaired hunters) must be accompanied by Refuge staff or trained volunteer when entering areas of the Refuge that are closed to hunting in order to retrieve deer or elk; • Archery hunters may only use a longbow, compound bow, or recurve bow, in compliance with general archery equipment requirements, except hunters possessing a disabled archery permit may use a device that holds a bow at partial or full draw, and disabled hunters possessing a permit may use a crossbow; • No dogs are allowed for big game hunting activities; • Camping is prohibited on the Refuge, except in Lake Walcott State Park; • Open fires and fireworks are not allowed at any time; • Firearms may only be discharged in accordance with Refuge hunting regulations, i.e., only during the lawful pursuit of game during legal seasons; • Approved nontoxic shot is required for hunting all species. • Personal property, including portable blinds and tree stands, must be removed from the Refuge at the end of each day; and • Cutting of live vegetation for blinds is prohibited. Collecting natural objects such as plants, animals, minerals, antlers, and feathers, and objects of antiquity (including Native American artifacts, such as arrowheads) is prohibited.
Justification:
This use has been determined compatible provided the above stipulations are implemented. This use is being permitted as it is a priority public use and would not interfere with the Refuge achieving its purposes of providing “a refuge and breeding ground for migratory birds and other wildlife.” The hunting of deer and elk on the Minidoka NWR would contribute to the mission of the NWRS by
Minidoka NWR Draft Compatibility Determination 9
providing a wildlife-oriented recreational benefit to Americans. Hunting is also one of the six wildlife-dependent recreational uses of the NWRS as stated in the National Wildlife Refuge System Improvement Act of 1997.
Hunting does result in the taking of individuals within the overall population; however, resident game hunting seasons and bag limits are established by the state of Idaho, ensuring the continued well-being of overall populations within the state. We may conduct hunting programs for resident wildlife species in accordance with state objectives (which in this case includes reducing depredation complaints) if this does not materially detract from or interfere with the purposes for which the Refuge was established.
It is anticipated that wildlife populations would find sufficient food resources and resting places such that their abundance and use of the Refuge would not be measurably lessened from allowing deer and elk hunting to occur on the Refuge. The relatively limited number of individuals expected to be adversely affected by elk hunting on Minidoka NWR would not cause wildlife populations to materially decline, the physiological condition and production of wildlife species would not be impaired, their behavior and normal activity patterns would not be altered dramatically, and their overall welfare would not be negatively impacted. Thus, allowing deer and elk hunting to occur with stipulations would not materially detract or interfere with the Refuge’s purposes or the Refuge System mission.
Big game (elk and deer) hunting on Minidoka National Wildlife Refuge has been determined to be compatible with stipulations.
Signature: Refuge Manager:______Date:______
Concurrence: Regional Chief:______Date:______
Mandatory Re-Evaluation Date (provide month and year for “allowed” uses only):
_2035_ Mandatory 15-year Re-evaluation date (for priority public uses)
Mandatory 10-year Re-evaluation date (for all uses other than priority public uses)
NEPA Compliance for Refuge Use Decision:
Categorical Exclusion without Environmental Action Statement
Categorical Exclusion and Environmental Action Statement
X Environmental Assessment and Finding of No Significant Impact
Environmental Impact Statement and Record of Decision
References:
Cole, D.N. 2004. Environmental impacts of outdoor recreation in wildlands. Pages 107–116 in: M.J. Manfredo, J.J. Vaske, B.L. Bruyerre, D.R. Field, and P.J. Brown, eds. Society and natural resources: a summary of knowledge. Jefferson, MO: Modern Litho. DeLong, A.K. 2002. Managing visitor use and disturbance of waterbirds—a literature review of impacts and mitigation measures. Prepared for Stillwater National Wildlife Refuge. Appendix L in: Stillwater National Wildlife Refuge Complex final environmental impact statement for the comprehensive conservation plan and boundary revision, Vol. II. U.S. Department of the Interior, U.S. Fish and Wildlife Service, Region 1. Portland, OR. 114 pp. Hayes, S.G., D.J. Leptich, and P. Zager. 2002. Proximate factors affecting male elk hunting mortality in northern Idaho. Journal of Wildlife Management 66:491–499. Hughbanks, D.L. 1993. Evaluation of a spike only regulation in southeastern Idaho. M.S. thesis. Montana State University, Bozeman, MT. Hughes, J. M. 2015. Yellow-billed Cuckoo (Coccyzus americanus), version 2.0. In The Birds of North America (P. G. Rodewald, Editor). Cornell Lab of Ornithology, Ithaca, NY, USA. https://doi.org/10.2173/bna.418 Idaho Department of Fish and Game (IDFG). 2014. Idaho Elk Management Plan 2014-2024. Idaho Department of Fish and Game, Boise, ID. Idaho Department of Fish and Game (IDFG). 2017. Idaho State Wildlife Action Plan, 2015. Boise (ID): Idaho Department of Fish and Game. Idaho Department of Fish and Game (IDFG). 2019. Idaho Mule Deer Management Plan 2020–2025. Idaho Department of Fish and Game, Boise, ID. 112 pp. Available at: https://idfg.idaho.gov/sites/default/files/plan-deer-mule-2020-25.pdf Johnson, B.K., A.A. Ager, J.H. Noyes, and N. Cimon. 2005. Elk and mule deer responses to variation in hunting pressure. Pages 127-138 in: M.J. Wisdom, tech ed. The Starkey Project: a synthesis of long-term studies of elk and mule deer. Reprinted from the 2004 Transactions of the North American Wildlife and Natural Resources Conference, Alliance Communications Group. Lawrence, Kansas. Knight, R.L. and D.N. Cole. 1991. Effects of recreational activity on wildlife in wildlands. Transactions of the 56th North American Wildlife and Natural Resources Conference 56:238. Knight, R.L. and D.N. Cole. 1995. Factors that influence wildlife responses to recreationists. Pages 71–79 in: R.L. Knight and K.J. Gutzwiller, eds. Wildlife and recreationists: coexistence through management and research. Washington, D.C.: Island Press. Knight, R.L., and Temple, S.A. 1995. Origin of wildlife responses to recreationists. In: Wildlife and recreationists–Coexistence through management and research. Washington, D.C., Island Press, p. 81–91. Krueger, Refuge Manager pers. comm with Meyer, IDFG Conservation Officer, 12/13/2018. Millspaugh, J.J. 1999. Behavorial and physiological responses of elk to human disturbances in the southern Black Hills, South Dakota. Ph.D. dissertation. University of Washington. 274 pp. Millspaugh, J.J., G.C. Brundige, R.A. Gitzen, and K.J. Raedeke. 2000. Elk and hunter space-use sharing in South Dakota. Journal of Wildlife Management 64:994–1003.
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Unsworth, J.W., L. Kuck, E.O. Garton, B.R. Butterfield. 1998. Elk habitat selection on the Clearwater National Forest, Idaho. Journal of Wildlife Management 62 (4) (Oct):1255–1263. Unsworth, J.W., L. Kuck, M.D. Scott, and E.O. Garton. 1993. Elk mortality in the Clearwater drainage of northcentral Idaho. Journal of Wildlife Management 57:495–502. U.S. Fish and Wildlife Service (USFWS). 1995. Snake River Aquatic Species Recovery Plan. Snake River Basin Office, Ecological Services, Boise, ID. 92 pp. USFWS (U.S. Fish and Wildlife Service). 2019. Environmental assessment for the draft elk hunt plan, Minidoka National Wildlife Refuge. On file at Minidoka Refuge. Hamer, ID.