APPENDIX B GREEN BAY NATIONAL WILDLIFE REFUGE DRAFT HUNT PLAN
Draft Green Bay National Wildlife Refuge White-tailed Deer Hunt Plan
January 2019
U.S. Fish and Wildlife Service
Green Bay National Wildlife Refuge W4279 Headquarters Road Mayville, WI 53050
Submitted By: Project Leader
______Signature Date
Concurrence:
Refuge Supervisor
______Signature Date
Approved:
Regional Chief, National Wildlife Refuge System ______Signature Date
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Table of Contents I. Introduction 3 II. Statement of Objectives 5 III. Description of Hunting Program 7
A. Areas to be Opened to Hunting 7 B. Species to be Taken, Hunting Periods, Hunting Access 7 C. Hunter Permit Requirements (if applicable) 8 D. Consultation and Coordination with the State 8 E. Law Enforcement 8 F. Funding and Staffing Requirements 9
IV. Conduct of the Hunt Program 9
A. Hunter Permit Application, Selection, and/or Registration Procedures 9 B. Refuge-Specific Regulations 9 C. Relevant State Regulations 10 D. Other Rules and Regulations for Hunters 10
V. Public Engagement 10
A. Outreach Plan for Announcing and Publicizing the Hunt 10 B. Anticipated Public Reaction to the Hunting Program 10 C. How the Public Will be Informed of Relevant Rules and Regulations 11
VI. Compatibility Determination 11
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DRAFT GREEN BAY NATIONAL WILDLIFE REFUGE WHITE-TAILED DEER HUNTING PLAN
I. Introduction
National wildlife refuges are guided by the mission and goals of the National Wildlife Refuge System (NWRS), the purposes of an individual refuge, Service policy, and laws and international treaties. Relevant guidance includes the National Wildlife Refuge System Administration Act of 1966, as amended by the National Wildlife Refuge System Improvement Act of 1997, Refuge Recreation Act of 1962, and selected portions of the Code of Federal Regulations and Fish and Wildlife Service Manual.
Green Bay NWR was established by Executive Order 1487, February 21, 1912…
“…as a preserve and breeding ground for native birds.”
Public Law 91-504, October 23, 1970 designated the Green Bay NWR as a Wilderness Area.
Green Bay Refuge, Plum and Pilot Islands Additions were established by Public Land Order 7681, dated October 17, 2007…
“…to protect native and migratory bird habitat and endangered species habitat within the Great Lakes Basin ecosystem.”
Green Bay Refuge, St. Martin Island, was acquired September 21, 2015 for administration by the Secretary of the Interior through the United States Fish and Wildlife Service under authority of the NWRS Administration Act of 1966.
“…to protect native and migratory bird habitat and endangered species habitat within the Great Lakes Basin ecosystem.”
Green Bay Refuge, Rocky Island, was acquired August 14, 2014 pursuant of the Fish and Wildlife Act of 1956.
“…to protect native and migratory bird habitat and endangered species habitat within the Great Lakes Basin ecosystem.”
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Green Bay National Wildlife Refuge (Refuge) currently consists of six islands that stretch from the Door Peninsula to the Garden Peninsula in Lake Michigan totaling 1732 acres. The refuge is administratively managed by staff based at Horicon Refuge in Mayville, Wisconsin.
The chain of islands protect rare habitats including coastal fens and alvars as well as nesting colonies of migratory birds. These islands are an important part of the Great Lakes ecosystem and are important stopover areas for migrating birds crossing the Great Lakes. Island habitats include forest, wetlands, sedge meadows, and rocky barrens. Bird and plant diversity is high. Some of the islands contain white-tailed deer and other introduced species.
The refuge currently includes two islands conducive to public hunting. The other islands are either difficult to access, have significant bird nesting colonies, or do not contain sufficient populations of game species. Plum Island and Detroit Island would be opened to white-tailed deer hunting.
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; ● 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.
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Therefore, it is a priority of the Service to provide for wildlife-dependent recreation opportunities, including hunting and fishing, when those opportunities are compatible with the purposes for which the refuge was established and the mission of the National Wildlife Refuge System.
Public hunting on the refuge has not previously occurred. There have been two nuisance deer hunts on Plum Island under a Wisconsin DNR program to begin control of the deer population on this 325 acre island. Hunting by permit or by landowners before refuge acquisition occurred for many years. This plan will open deer hunting on the 325 acre Plum Island and the 148 acre refuge portion of Detroit Island.
II. Statement of Objectives
The objectives of a white-tailed deer hunting program on Green Bay Refuge are to provide:
● The public with a recreational experience to experience wildlife on more refuge lands and increase opportunities for hunters. ● Reduce or remove deer from islands where they are causing damage to island habitats. ● Biological diversity by preserving the natural diversity and variety of biotic communities occurring on refuge lands and aid in reducing white-tailed deer populations. ● Wildlife-dependent public recreation as mandated by and according to Service law and policy. ● Educate the public and neighboring landowners about effects of overpopulated deer on islands.
The Green Bay Refuge Comprehensive Conservation Plan (CCP) and associated Environmental Assessment (EA) determined that hunting would be allowed on the refuge. It also provides guidance for the implementation of hunting at the refuge. The CCP and current Service policy (605 FW 2) also include hunting as an important wildlife management tool that the Service recognizes as a healthy, traditional outdoor pastime deeply rooted in the American heritage. Hunting can instill a unique understanding and appreciation of wildlife, their behavior and their habitat needs.
The overall wildlife and habitat goals from the CCP are to protect, restore and maintain a natural diversity of fish and wildlife native to the Great Lakes and perpetuate the biological diversity of native plant communities. CCP objectives are aimed at monitoring select priority species to ensure vulnerable habitats and species are not impacted. There is a specific objective in the CCP for deer management to annually maintain the Plum Island deer population consistent with the state deer management unit at a density of 10-19 deer per square mile. The current Wisconsin DNR goal is 15 deer/square mile for that unit. A more liberal bag limit may be necessary to achieve wildlife goals and enhance the restoration and protection of native vegetation. The Green Bay National Wildlife Refuge Habitat Management Plan (HMP) has an objective to continue 5 working with Wisconsin DNR and Michigan DNR to liberalize hunting to eliminate and/or significantly reduce deer populations on the refuge. Detroit Island has since been added to the refuge through acquisition and a similar objective applies. Acquisition of islands may continue in the future and similar deer management objectives would apply where deer are present and there is adequate public access. The CCP identified annual hunts as a potential strategy to prevent overabundance of deer. The objective on some more remote islands may be eradicating deer rather than maintaining a population. Islands closer to the mainland will likely continue to have deer migrate to them over time.
Hunting will assist refuge staff in managing wildlife populations at acceptable levels, maintaining diversity, promoting biological integrity and diversity, providing wildlife-dependent recreational opportunities for the public and promoting a better understanding and appreciation of this unique island ecosystem and associated wildlife resources.
A refuge Habitat Management Plan has also been completed that further identifies the need for deer population control to protect Resources of Concern (U.S. Fish and Wildlife Service 2017). Deer were introduced on some islands in the last few decades, and species such as Canada yew (T. canadensis) have been decimated as a result. Besides the Canada yew, plants sensitive to deer herbivory include northern white-cedar (T. occidentalis) and eastern hemlock (Tsuga canadensis), two common tree species on the islands, as well as spring ephemerals and orchids on the forest floor. Wisconsin DNR deer management guidelines concur that deer populations can negatively affect forest regeneration, especially impacting preferred species such as eastern hemlock, northern white cedar, and Canada yew (WDNR 1998). Effects can be seen in the absence of saplings in an area even though adults of the species are present, or in browse-lines, where trees and shrubs are browsed at heights easily reached by deer. With no resident predators, deer that reside on the island reproduce quickly and have had measurable impact on forest vegetation (WDNR 2015).
Following decades of milder winters on average in the 1990s and 2000s, the deer population has reached a historically high level (WDNR 2014). White-tailed deer densities may be as high as 2-4 times greater than pre-European settlement, and Canada yew populations do not seem to persist in areas with this population level. According to information from the Wisconsin DNR, overwintering deer densities in Door County may be over 10 deer per square kilometer (DNR 2015). Though hunting may not be able to dramatically affect deer densities on the mainland, removing deer from these sensitive island refuges is possible and likely to have an impact. Removing female deer can greatly reduce deer densities which requires successful hunter participation
Deer are often considered a keystone herbivore; affecting community structure and modifying the distribution patterns and abundance of many other species. Too many deer endanger the flora and fauna of the forest including valuable forest understory and healthy forest regeneration to the detriment of migratory breeding and migratory birds using these islands. In order to allow for the northern mesic forest community to maintain its biological integrity, especially regarding 6 regeneration of natural and formerly dominant species, a reduction or elimination of the deer population from the forested islands is considered necessary (USFWS 2017). The vegetation on these islands is exceptionally sensitive to deer browse and even low numbers of deer could cause long-term impacts to species composition and forest regeneration.
The goal for Plum Island is to eliminate and/or keep deer numbers as low as possible, with the expectation that deer will eventually colonize the island on their own due to the proximity of the island to the mainland. Limited deer hunting has been allowed on Plum Island since 1982 and by permit only since acquisition by the USFWS. The WDNR has been working with Detroit Island landowners under the state’s deer management assistance program. Landowners have a desire to reduce the deer herd due to vegetation damage and the prevalence of Lyme disease on Detroit Island.
III. Description of Hunting Program
A. Areas to be Opened to Hunting
White-tailed deer hunting will occur on all of Plum Island and the 148 acres of refuge ownership on Detroit Island. See attached map.
Plum Island: hunting will be by refuge special use permit under the Wisconsin DNR nuisance animal control program on the entire 325 acre island. If there is a significant reduction in the deer population with this program, then the hunt may be changed to a hunt according to regular state seasons, or may be halted.
Detroit Island: Open to deer hunting during state seasons according to state regulations.
B. Species to be Taken, Hunting periods, Hunting Access
White-tailed deer hunting:
Plum Island: ● Hunters will be selected by a drawing and issued a refuge special use permit for a limited number of tags. The season will begin after Labor Day and go through December. Access is by boat to the designated boat dock. Allowable methods are rifle, shotgun, and muzzleloader in accordance with state firearm restrictions as published in Wisconsin Deer Hunting Regulations. Either sex deer may be harvested. ● Each party will be given a 6 day hunting period. ● Two to eight persons per party. ● Hunters will be selected by lottery administered by refuge staff. Take limit will be up to the number of state issued tags available for that season. The state issued 20 harvest tags 7
in 2016 and 30 tags in 2017 ● All other state hunting regulations would be in effect. ● Access is by boat only with landing at the designated dock.
Detroit Island: ● Deer hunting according to state regulations and state seasons. No special refuge permits required. ● Access is by boat only at designated access points.
C. Hunter Permit Requirements (if applicable)
For Plum Island, hunters will be required to have a valid refuge special use permit, and possess a State nuisance deer tag provided by the refuge.
D. Consultation and Coordination with the State
The refuge reviewed the operations and regulations for neighboring state wildlife management areas and refuges to find consistency where possible. The refuge has been working with Wisconsin DNR on the Plum Island nuisance animal hunt for the last two years. The refuge has also discussed hunting on Detroit Island with the Wisconsin DNR since they had already been working with the landowners on the island regarding deer management. The refuge has worked with Michigan DNR to harvest nuisance deer on St. Martin island but this was not a public hunt.
Letters have been sent to both Wisconsin and Michigan DNR biologists outlining proposed hunting on the refuge. We have continued to consult and coordinate on specific aspects of the Hunt Plan. The states are in agreement with the refuge’s Hunt Plan, as it will help meet state objectives.
Green Bay Refuge, Wisconsin DNR and Michigan DNR will continue to work together to ensure safe and enjoyable recreational hunting opportunities. Hunter participation and harvest data are collected by the state. Law enforcement officers from both the refuge and Wisconsin DNR 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. Other officers, special agents, state game wardens, and the local Sheriff’s Department often assist the Green Bay Refuge Federal wildlife officer that works out of Horicon Refuge.
The following methods are used to control and enforce hunting regulations: 8
• Refuge and hunt area boundaries will be clearly posted; • The refuge will provide a brochure that shows hunt areas; • Refuge law enforcement staff will randomly check hunters for compliance with Federal and state laws.
F. Funding and Staffing Requirements
Annual hunt administration costs, for Green Bay Refuge, including salary, equipment, law enforcement, brochures, collection of hunt data and analysis of biological information, etc. totals approximately $5000. Funding specifically for hunts has not been allocated. It is anticipated that funding would continue to be sufficient for the hunting program at Green Bay Refuge in the future.
IV. Conduct of the Hunting Program
A. Hunter Permit Application, Selection, and/or Registration Procedures (if applicable)
Plum Island: The number of deer that will be allowed to be harvested to meet the objectives of the nuisance deer program will be determined in consultation with Wisconsin DNR each year. In 2016 there were 20 tags and in 2017 there were 30 tags. Numbers likely would not be substantially higher but could increase depending on hunter success and other factors. There is not a limit on the number of tags per party, but the hunt ends for all permit holders after all allotted tags have been filled. Applications for the nuisance deer hunt are due to the refuge on a specified and publicized date, usually in early September. A random drawing will be held to determine which period applicants will be able to hunt. Applicants will be allowed to take up to seven people with them to hunt on Plum Island. There is no fee and applicants need not be present for the drawing. Application forms will be available on the refuge website at www.fws.gov/refuge/green_bay.
Detroit Island: Deer hunting will be according to state seasons and regulations. No special refuge permits are needed. Hunters only need the state hunting licenses. Hunting information can be found on the Green Bay Refuge website: www.fws.gov/refuge/green_bay
B. Refuge-Specific Hunting Regulations
Listed below are refuge-specific regulations that pertain to hunting on Green Bay Refuge as of the date of this plan. These regulations may be modified as conditions change or if refuge expansion continues/occurs.
(b) Green Bay National Wildlife Refuge 9
(1) Migratory Game Bird Hunting. [Reserved]
(2) Upland Game Hunting. [Reserved]
(3) Big Game Hunting. We allow hunting of white-tailed deer on designated areas of the refuge and subject to the following conditions: (i) Hunters may enter the refuge no earlier than 1 hour before legal shooting hours and must exit the refuge no later than 1 hour after legal shooting hours end. (ii) Any ground blind used during any gun deer season must display at least 144 square inches (929 square centimeters) of solid, blaze-orange material visible from all directions. (iii) We require hunters to possess a permit (FWS Form 3-1383-G) for deer hunting on Plum Island.
C. Relevant State Regulations
● Reporting Harvest, Plum Island only: Hunters will be required to report deer harvest to both the DNR and the refuge according to instructions.
D. Other Refuge Rules and Regulations for Hunting
● Fires on the refuge – open fires are not permitted on the refuge. ● Boats must use designated landing area at the boathouse dock and boat access on south side of island. ● No motorized vehicles or bikes. ● Artifact hunting is not allowed. ● No camping.
V. Public Engagement
A. Outreach for Announcing and Publicizing the Hunting Program
The refuge maintains a mailing list for news release purposes, to local newspapers, radio, and websites. Special announcements and articles may be released in conjunction with hunting seasons. In addition, information about the hunt will be available at Horicon Refuge headquarters or on the Green Bay Refuge website.
B. Anticipated Public Reaction to the Hunting Program
Deer hunting was a strategy given in the CCP and based on the comments received during the CCP (2012) little negative public reaction is expected. Hunting is an important economic and
10 recreational use of state natural resources. Deer hunting has previously occurred on these islands.
C. How Hunters Will Be Informed of Relevant Rules and Regulations
General information regarding hunting and other wildlife-dependent public uses can be obtained at Horicon Refuge headquarters at W4279 Headquarters Road, Mayville, Wisconsin 53050 or by calling (920) 387-2658. Dates, forms, hunting unit directions, maps, applications, and permit requirements about the hunt will be available on the station website at: www.fws.gov/refuge/green_bay.
VI. Compatibility Determination
Hunting and all associated program activities proposed in this plan are compatible with the purposes of the refuge. See Environmental Assessment Appendix E for the Green Bay Refuge Hunting Compatibility Determination.
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