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iii

Chapter 1

Shawangunk Grasslands National Wildlife Refuge USFWS photo Purpose and Need for Action

■ Introduction and Background ■ The Service, its Policies and Legal Mandates ■ Conservation Plans and Initiatives Guiding the Project ■ Refuge Establishment/History and Purpose ■ Existing Refuge Operational Plans ■ The Comprehensive Conservation Planning Process ■ Issues, Concerns, and Opportunities ■ Key Issues ■ Issues Outside the Scope of this Environmental Assessment Chapter 1

Introduction and This Draft Comprehensive Conservation Plan (CCP) and Environmental Background Assessment (EA) for the Shawangunk Grasslands National Wildlife Refuge (refuge) combines two documents, each required by federal law: a CCP, required by the National Wildlife Refuge System Administration Act of 1966, as amended by the National Wildlife Refuge System Improvement Act of 1997 (16 U.S.C. 6688dd, et seq.; Refuge Improvement Act), and an EA, required by the National Environmental Policy Act of 1969 (NEPA).1

This chapter explains the purpose of and need for preparing a CCP/EA for the refuge. It documents the purposes for which the refuge was established and its land acquisition history, clarifies its vision and goals, describes our planning process and its compliance with NEPA regulations, lists some conservation mandates and plans that guided its development, and defines the key issues, public concerns, and opportunities it addresses. Chapter 2, “Description of the Affected Environment,” describes the physical, biological and human environment of the refuge. Chapter 3, “Alternatives, Including the Service-preferred Alternative,” proposes varying management strategies to meet refuge goals, achieve their objectives, and respond to key issues. Chapter 4, “Environmental Consequences,” evaluates the foreseeable effects of implementing each of the proposed management alternatives on the environ- ment. Chapter 5, “Consultation and Coordination with Others,” describes in detail how we involved others in the planning process. Chapter 6, “List of Preparers,” identifies who was involved in preparing this document. We have also included a glossary of terms, a bibliography, and six appendixes of information that support this plan. Our proposed action is to develop a CCP for the refuge that best achieves its purposes, vision, and goals; contributes to the National Wildlife Refuge System (Refuge System) mission; adheres to U.S. Fish and Wildlife Service (Service, we, our) policies and mandates; addresses key issues; and incorporates sound principles of fish and wildlife management. NEPA regulations require an evaluation of a reasonable range of alternatives, including the proposed action and no action. This draft CCP/EA evaluates three alternatives representing different ways to achieve all or most of the criteria noted above. We wrote each alternative assuming its potential to be fully developed into a final CCP. Our analysis includes the predicted socioeconomic, physical, cultural, and biological consequences of implementing each alternative. For the remainder of this report, our Service-preferred alternative, described in detail as alternative B in chapter 3, defines the proposed action.

1 P.L. 91–190; 42 U.S.C. 4321–4347, January 1, 1970; 83 Stat. 852, as amended

1-2 Shawangunk Grasslands National Wildlife Refuge Introduction and Background

The Purpose of and Developing a CCP with partner and public involvement is vital for successfully Need for Action managing every national wildlife refuge. The purpose of a CCP is to provide strategic management direction for the next 15 years, by: ■ stating clearly the desired future conditions of refuge habitat, wildlife, visitor services, staffing, and facilities; ■ providing a clear understanding of the reasons for refuge management actions to state agencies, refuge neighbors, visitors, and partners; ■ conforming refuge management to the policies and goals of the Refuge System and its legal mandates; ■ providing long-term continuity in refuge management; ■ ensuring the compatibility of current and future public use; and, ■ justifying our staffing, operating and maintenance, and annual budget requests. The need to develop this CCP arose from the lack of a master plan to formally establish refuge manage- ment priorities, guide management actions, and measure their success. The refuge is relatively new and has begun establishing relationships with neigh- boring communities and their elected officials. We have opened the refuge to a few uses, but we wanted a public process to identify other potential compatible uses to evaluate. Having public support for our management actions ultimately will benefit the natural resources of the refuge, the State, and the local community. The CCP will be reviewed and updated at least every 15 years in accordance with the Refuge Savannah sparrow nest with young Improvement Act and Service planning policy (602 Photo courtesy of Scott A. Vincent© FWS 1, 3 and 4).

Project Area The 566-acre refuge lies in the Hudson River/New York Bight watershed, in the Town of Shawangunk, Ulster County, New York (map 1–1). The Shawangunk Grasslands Focus Area (focus area) defines our project area, and includes the refuge and contiguous lands with important wildlife habitats that also influence the quality of the refuge’s natural resources (map 1–2).

Draft CCP - November 2005 1-3 Chapter 1

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IET222ƒh—w—ngunk2qr—ssl—nds2x—tion—l2‡ildlife2‚efuge Introduction and Background

The Refuge System manual provides a central reference for current policy governing the operation and management of the Refuge System not covered by the Service manual, including technical information on implementing refuge polices and guidelines. That manual can be reviewed at Wallkill River Refuge Head- quarters. A few noteworthy policies instrumental in developing this CCP follow.

Refuge System This policy establishes requirements and guidance for Refuge System planning, Planning Policy including CCPs and step-down management plans. It states that we will manage all refuges in accordance with an approved CCP which, when implemented, will achieve refuge purposes; help fulfill the Refuge System mission; maintain and, where appropriate, restore the ecological integrity of each refuge and the Refuge System; help achieve the goals of the National Wilderness Preservation System; and meet other mandates [Fish and Wildlife Service Manual (602 FW 1,2,3)].

Pond at Shawangunk Grasslands National Wildlife Refuge USFWS photo

Draft CCP - November 2005 1-7 Chapter 1

Maintaining Biological This policy provides guidance on maintaining or restoring the biological integrity, Integrity, Diversity, and diversity, and environmental health of the Refuge System including the protection Environmental Health of a broad spectrum of fish, wildlife, and habitat resources found in refuge Policy ecosystems. It provides refuge managers with a process for evaluating the best management direction to prevent the additional degradation of environmental conditions and restore lost or severely degraded environmental components. It also provides guidelines for dealing with external threats to the biological integrity, diversity, and environmental health of a refuge and its ecosystem (601 FW 3).

Compatibility Policy Federal law and Service policy provide the direction and planning framework to protect the Refuge System from incompatible or harmful human activities and ensure that Americans can enjoy Refuge System lands and waters. The Refuge Improvement Act is the key legislation regarding management of public uses and compatibility. The compatibility requirements of the Refuge Improvement Act were adopted in the USFWS Final Compatibility Regulations and Final Com- patibility Policy, published October 18, 2000 (Federal Register, Vol. 65, No. 202, pp. 62458–62496). This Compatibility Rule changed or modified Service regulations contained in chapter 50, parts 25, 26, and 29 of the Code of Federal Regulations (USFWS 2000c). To view the policy and regulations online, visit http://policy.fws.gov/library/00fr62483.pdf. Our summary follows. The Refuge Improvement Act and its regulations require an affirmative finding by the refuge manager of the compatibility of an activity before it is allowed on a national wildlife refuge. This finding is documented in a report called a “compat- ibility determination.” A compatible use is one “…that will not materially inter- fere with or detract from the fulfillment of the mission of the Refuge System or the purposes of the refuge” (Refuge Improvement Act). The Act defines six priority, wildlife-dependent uses that are to be given enhanced consideration on refuges: hunting, fishing, wildlife observation and photography, and environmen- tal education and interpretation. These priority uses may be authorized on a refuge when they are compatible and not inconsistent with public safety. At the time the compatibility determination is made, the refuge manager will insert the required maximum 10-year re-evaluation date for uses other than wildlife- dependent recreational uses, or a 15-year maximum re-evaluation date for wildlife-dependent recreational uses. However, the refuge manager may re- evaluate the compatibility of a use at any time (602 FWS 2, Parts 2.11 and 2.12). For example, a decision may be revisited sooner than the mandatory date, or even before the CCP process is completed, if new information reveals unacceptable impacts or incompatibility with Refuge purposes. Moreover, not all uses that are determined compatible may be allowed. The refuge manager has the discretion to allow or deny any use based on other considerations such as public safety, policy, or available funding. Nevertheless, all uses that are allowed must be determined compatible. Except for consider- ation of consistency with State laws and regulations as provided for in subsec-

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tion (m) of the Act, no other determinations or findings are required to be made by the refuge official under this Act or the Refuge Recreation Act for wildlife- dependent recreation to occur.

Other Mandates Although Service and Refuge System policy and each refuge’s purpose provide the foundation for its management, other federal laws, executive orders, treaties, interstate compacts, and regulations on the conservation and protection of natural and cultural resources also affect how national wildlife refuges are managed. The Digest of Federal Resource Laws of Interest to the USFWS lists many of them, and can be accessed at http://laws.fws.gov/lawsdigest/ indx.html. Chapter 4, “Environmental Consequences,” evaluates this plan’s compliance with the Clean Water Act, Clean Air Act, the National Historic Preservation Act, the Archeological Resources Protection Act, and the Endangered Species Act. We have written this draft CCP/EA to fulfill NEPA compliance.

Conservation Plans The resource plans and conservation initiatives below influenced the develop- and Initiatives Guiding ment of this draft CCP/EA. They are presented hierarchically, from the regional the Project to local level.

Birds of Conservation The Service developed this report in consultation with the leaders of bird Concern (2002) conservation initiatives and partnerships such as Partners In Flight, the North American Waterbird Conservation Plan, and the U.S. Shorebird Conservation Plan. It fulfills the mandate of the 1988 amendment to the Fish and Wildlife Conservation Act of 1980 (P.L. 100–653, Title VIII), which requires the Secretary of the Interior, through the Service, to “identify species, subspecies, and populations of all migratory nongame birds that, without additional conser- vation actions, are likely to become candidates for listing under the Endangered Species Act of 1973.” The report is actually a series of 45 lists of bird species of conservation concern deemed the highest priority for national, regional, and landscape conservation. It includes a principal national list, seven regional lists corresponding to our seven regional administrative units, and species lists for each of the 37 Bird Conserva- tion Regions in the United States designated and endorsed by the North Ameri- can Bird Conservation Initiative (NABCI). Those bird conservation regions are ecologically based units, as defined by NABCI for planning, implementing, and evaluating bird conservation. These regional and national reports will stimulate coordinated efforts by Fed- eral, state, and private agencies to develop and implement integrated ap- proaches for the conservation and management of these birds deemed to be in the most need of conservation action. We considered each of those species to help us focus our habitat objectives, actions and strategies develop our Species of Management Concern List (appendix A).

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Partners In Flight In 1990, Partners in Flight (PIF) was conceived as a voluntary, international Landbird Conservation coalition of government agencies, conservation organizations, academic institu- Plans tions, private industry, and other citizens dedicated to reversing the population declines of bird species and “keeping common birds common.” The foundation of its long-term strategy for conserving birds is a series of scientifically based bird conservation plans, using physiographic provinces as the planning units. The plans for each physiographic area rank bird species according to their conservation priority, describe desired habitat conditions, develop biological objectives, and recommend conservation actions. The priority rankings factor in habitat loss, population trends, and the vulnerability of a species and its habitats to regional and local threats. The physiographic plan that covers our project area is described in more detail below.

Physiographic Area 17—Northern Ridge and Valley (Draft 2003) The Northern Ridge and Valley extends from southeastern Pennsylvania, through northwestern New Jersey and southeastern New York nearly to the base of the Adirondack Mts. It includes portions of several major river valleys, including the Hudson, Delaware, and Susquehanna Rivers. Ecologically, this is a transitional area, with forested ridges grading from primarily oak-hickory forests in the south to northern hardwood forests further north. Pine-oak woodlands and barrens and hemlock ravine forests are also important along ridges, whereas bottomland and riparian forests are important in the valleys which are now largely cleared for agricultural and urban development. Roughly 50 percent of the physiographic area is forested today, the vast majority occurring at higher elevations. About 40 percent of the area is in agricultural production, primarily a mixture of dairy pastureland and corn. Over 49,420 acres is state forest land in PA and NJ. Other important public lands include High Point State Park (NJ), the Wallkill River Refuge, and this refuge. The top 17 priority species identified in the Area 17 PIF plan breed on the refuge. Our objectives for grasslands habitat emphasize Henslow’s sparrow, upland sandpipers and bobolink, which are all priority species identified in the PIF plan. The final Area 17 PIF plan is not yet available; however, we refer- enced the draft plan as we considered management opportunities on the refuge. Draft and final PIF plans can be accessed at http://www.partnersinflight.org.

Significant Habitats and Completed in 1997, the 1,025-page Significant Habitats and Habitat Com- Habitat Complexes of plexes of the New York Bight Watershed focuses on the regional geographic the New York Bight distribution and population status of more than 1,000 key marine, coastal, and Watershed (USFWS terrestrial species inhabiting this watershed. The geographic scope of the study 1997) covers the marine waters of the New York Bight (the Atlantic coastlines of Long Island and New Jersey out to the continental shelf), the New York — New Jersey Harbor Estuary and the entire watershed of the Bight and Harbor, including the Hudson River up to the Troy Dam.

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The study assessed the status of habitats, threats to their integrity, and threats to the species dependent upon them. It also determined those habitats and fish, wildlife, and plant populations requiring immediate and long-term protection, conservation, enhancement, or restoration. This habitat assessment is being used to emphasize these regionally important sites to Federal, state, regional, and local planners, resource managers, conservation commissions, regulatory authorities, and the many private conservation organizations throughout the region. We used that study to identify resources of concern and develop man- agement goals and objectives.

The Hudson River In 1996, Governor Pataki released the first Hudson River Estuary Action Plan Estuary Action Plan and (http://www.dec.state.ny.us). Revised every 2 years, it provides the framework the Hudson River for all New York State Department of Environmental Conservation (NYSDEC) Biodiversity Project agencies and those of other government agencies, academic institutions, and (2001) concerned citizens to join resources in protecting the entire Hudson River Estuary ecosystem. That ecosystem includes not only the Hudson River and its shoreline, but also considers the uplands in counties bordering the river. The action plan’s overarching goal is to “protect and conserve, restore and enhance the productivity and diversity of natural resources of the Hudson River estuary to sustain a wide array of present and future human benefits.” The New York State legislature has appropriated funding through the Environmental Protection Fund and other sources, such as the Clean Water/Clean Air Bond Act. An oversight committee is responsible for identifying and implementing projects that maintain terrestrial biodiversity in the ecosystem. Particularly important to the refuge are the plan’s tasks associated with terrestrial biodiversity. Action plan 2001 commitments include inventorying and assessing areas thought to have great significance for regional biodiversity and promoting their conservation through voluntary measures; providing training on biodiversity conservation; studying the relationship of breeding bird diversity to habitat patterns and trends in the Hudson Valley; and, continuing the use of biological controls to reduce purple loosestrife. The plan’s goals and action items helped our planning team establish management goals and objectives on the refuge.

New York Open Space The New York Open Space Conservation Plan is revised every 3 years by the Conservation Plan Offices of Parks, Recreation, and Historic Preservation. Every region in the (September 2002) state has formed an advisory committee that includes representatives from state agencies, land trusts, county officials, and citizens groups. The committees identify priority areas for inclusion in the plan. It is not a regulatory document, but it conveys to municipalities the recommendations of the State of New York for maintaining open space. The September 2002 plan includes areas of regionally significant biodiversity adjacent to the refuge: the Shawangunk Kill Corridor (Ulster and Orange Coun- ties); the Wallkill River Corridor (Ulster and Orange Counties), and the Galeville Grasslands, which includes the refuge. The descriptions of the significant resources in this plan helped our team establish management priorities and objectives.

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Refuge In 1994, the United States Military Academy at West Point declared excess to Establishment/ its mission the 621 acres of land containing the former Galeville Military Airstrip History and in the Town of Shawangunk, Ulster County, New York. We expressed our interest in that land. On July 27, 1999, the General Services Administration Purpose transferred at no cost to the Service 566 acres to create a new national wildlife refuge, and subsequently transferred the balance of 55 acres to the Town of Refuge Establishment Shawangunk to create a community park, under the Federal Lands to Parks History Program administered by the National Park Service. We have posted refuge boundary signs to identify the 566-acre refuge; no other lands have been added since it was established. Officially, the transfer of land that established the refuge occurred under the following authorities: the Federal Property and Administra- tive Services Act of 1949,2 which allows for property transfers from one Federal agency to another; and the Transfer of Certain Real Property for Wildlife Conservation Purposes Act of 1948.3

Refuge Purpose The official purpose listed in the Refuge System database is to provide its “…particular value in carrying out the national migratory bird management program” (16 U.S.C. 667b, An Act Authorizing the Transfer of Certain Real Property for Wildlife). However, this purpose was further refined in a memo- randum dated October 17, 1997, to the General Services Administration from our Regional Director, emphasizing the importance of the site to wintering raptors and breeding and migrating grassland birds. The memorandum formally requested the transfer of land and defined the primary reason for establishing the refuge as: “[the site] provides critical habitat for migratory birds and raptors. More than 120 species of birds have been identified at the Site. It supports approximately 20 species of Federal or State ‘management or special concern.’”

Refuge Administration This refuge is un-staffed. It is administered by staff from the Wallkill River Refuge Headquarters in Sussex, New Jersey.

2 40 U.S.C. 471et seq., repealed by Public Law 107-217, August 21, 2002 3 16 U.S.C. 667b; P. L. 80–537, as amended

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Existing Refuge The Service Manual (602 FW 4, “Refuge Planning Policy”) lists more than Operational Plans 25 step-down management plans that may be appropriate for a refuge to ensure safe, effective and efficient operations. However, not all of these plans are Step-Down Plans necessary on every refuge. The plans translate general goals and objectives into specific strategies and action schedules. Some require annual revision; others are revised on 5- or 10-year schedules. Some require additional NEPA analy- sis, public involvement, and compatibility determinations before we can imple- ment them. These step-down management plans, already underway, are sched- uled for completion as follows: ■ Habitat Management Plan (HMP, our highest priority; within 1 year of CCP approval) ■ Habitat and Species Monitoring and Inventory Plan (HSMIP; within 2 years of CCP approval) ■ Fire Management Plan (included in this draft CCP; appendix F)

Compatibility Appendix B includes draft compatibility determinations for priority public uses Determinations and several other refuge uses we propose for the refuge. In addition, we have included the final compatibility determination for model airplane flying and model airplane competitive events, approved and dated February 20, 2002, which determined these activities were not compatible with the refuge purposes or the mission of the Refuge System. This use is described in more detail in chapter 2, Affected Environment. We are incorporating this existing decision on model airplane flying and model airplane competitive events into the CCP (appendix B).

Refuge Vision Early in the planning process, our team developed this vision statement for the Statement refuge to provide a guiding philosophy and sense of purpose for its plan. The Shawangunk Grasslands National Wildlife Refuge, located in Ulster County, New York, provides exceptional grassland habitat within the Wallkill River watershed, a major tributary to the Hudson River. We will enhance and sustain this high quality habitat for the full complement of grassland-dependent birds that breed, winter and migrate through, the watershed. Other native grassland-dependent animals and regionally rare plants benefit from our management as well. With easy public access to the refuge’s managed grasslands, and because of the open vistas the grasslands afford, it is an ideal setting for wildlife observation, nature photography, and environmental interpretation. All visitors will feel welcomed and encouraged to enjoy and appreciate the contribution of this refuge to the National Wildlife Refuge System.

Refuge Goals Our planning team developed these goals after reviewing the Refuge System mission, the purpose of the refuge, our vision statement, public and partner comments, policy guidelines, and natural and regional conservation initiatives.

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Goal 1. Protect and enhance habitats for Federal trust species and other species of special management concern, with particular emphasis on grassland-depen- dent migratory birds and wintering raptors. Goal 2. Manage to enhance regionally significant ecological communities, including large grassland complexes. Goal 3. Promote actions which contribute towards a healthier Wallkill River. Goal 4. Provide high quality opportunities for wildlife observation and photogra- phy, and other priority, wildlife-dependent uses. Goal 5. Cultivate a public informed and educated about conservation who work to support the goals of the refuge and the mission of the National Wildlife Refuge System

The Comprehensive Service policy establishes an eight-step planning process that also facilitates Conservation compliance with NEPA (see figure 1.1, below).4 Each of its individual steps is Planning Process described in detail in the planning policy and CCP training materials. While the figure suggests these steps are discreet, there can be 2-3 steps happening concurrently.

Planning Process We started this planning process in 1998 as a combined CCP for both the Wallkill River and Shawangunk Grasslands refuges. The core team was com- posed of a Regional planner, Regional Resource Specialist, refuge staff, and representatives from NJ DEP and NYSDEC. The core team first convened in February 1999. Our early meetings consisted of detailing the steps in the planning process for this project and collecting information on natural resources and public uses that pertained to each refuge. As part of “Step A: Preplanning,” we also developed a preliminary refuge vision statement, management goals, and identified issues and management concerns. During that step, we also began a wilderness review of existing refuge lands. Our wilderness review evaluates the suitability of refuge lands for inclusion into the National Wilderness Preservation System (NWPS). The review consists of three phases: (1) inventory, (2) study, (3) recommendation. We inventoried all 566 acres of refuge lands in fee title ownership and found no areas that meet the eligibility criteria for a wilderness study area as defined by the Wilderness Act. Therefore, suitability of refuge lands for wilderness designation is not analyzed further in the CCP. The results of the wilderness inventory are included in appendix C.

4 602 FW 3, “The Comprehensive Conservation Planning Process” (http://policy.fws.gov/ 602fw3.html)

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Also in early 1999, we compiled a mailing list of approximately 3,000 names, including organizations, elected officials, state agencies, individuals, and adjacent landowners, to ensure that we would be contacting a diverse sample of inter- ested groups as we progressed through the process. Next, we began step B, “Initiate Public Involvement and Scoping,” which provided an opportunity for the public to critique or add to the vision, goals, and issues we drafted. In May 1999, we developed issues workbooks to solicit written comments on topics related to the management of the refuge. We realized not everyone could attend planned Open House meetings scheduled for later in May and in June, so the issues workbooks provided an opportunity to reach a larger audience. Workbooks were sent to everyone on our mailing list; were available at the Refuge Headquarters; and were offered to people every time our refuge staff participated in a public function. We received 337 workbooks completed with responses. Those responses strongly influenced our formulating issues and developing alternatives on resource protection and public use.

Figure 1.1 The Comprehensive Conservation Planning Process and its relationship to the National Environmental Policy Act of 1969.

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In May and June 1999 we held seven Open Houses: two in Sparta, NJ; two in Vernon, NJ; two in Wallkill, NY; and, one in Warwick, NY. We advertised those open houses locally in news releases, radio broadcasts, and notices to our mailing list. More than 50 people attended those meetings. We also organized several separate meetings with conservation partners and state agencies to discuss shared issues. In October 1999, we released our “Fall 1999 Planning Update” to everyone on our mailing list. That update summarized the public comments we had received from meetings and issues work- books, identified the key issues we would be dealing with in the CCPs, and shared revised vision statements and goals. Once we had firmed up the key issues in October, we began step D, “Develop and Analyze Alterna- tives.” The purpose of this step is to develop alternative strategies for addressing and resolving each issue on both refuges. We derived the management alternatives described in chapter 3 from those strategies, public comments, our goals and refuge purposes. At this stage, we identified and mapped ecologi- cally important lands in the vicinity of the refuge or Eastern Bluebird connected to the Wallkill River valley. Using the © Photo courtesy of Scott A. Vincent expertise of our Connecticut River/Southern New England/New York Bight Coastal Ecosystems Program office and wildlife biologists with NYSDEC, we determined areas of high biodiversity important to our Federal trust resources, including areas with rare or declining wildlife species or plant communities, wetlands, and contiguous grasslands larger than 150 acres. Those areas of high biodiversity were mapped as focus areas. We identified a Shawangunk Grasslands Focus Area, 5,950 acres in size, surrounding the refuge (map 1–2). In our opinion, land uses in this focus area could have a direct effect on our ability to fully meet our refuge goals and objectives. Unfortunately, some of that area now has been developed and has lost its significance to wildlife. Despite our interest in seeing these lands protected, none of the alternatives propose Service acquisition of additional lands at this time. We do not feel there is enough local community support for a refuge expansion, and from our Re- gional perspective, with all our other land protection priorities, it is doubtful we would be able to secure funding to buy additional lands here or hire staff to

1-16 Shawangunk Grasslands National Wildlife Refuge Key Issues

manage those lands. Instead, we plan to work with adjacent landowners and other partners to facilitate land conservation within the focus area. However, if favorable conditions arise in the future to make Service land acquisition in this area possible, we may pursue it under a separate environmental assessment and public review. At follow-up meetings in 2000, we shared our proposed alternatives with conservation partners, state agencies, and the public. We distributed another newsletter in January 2002 that outlined four management alternatives. Through further analysis, we reduced those alternatives to three. In chapter 5, “Consulta- tion and Coordination with Others,” you will find a detailed summary of each public involvement activity. In November 2002, we determined it would be more efficient to separate our planning efforts for Wallkill River and Shawangunk Grasslands refuges, with priority given to completing a CCP for this refuge. This document is the result of that effort and completes Step E: “Prepare Draft Plan and NEPA Document.” After a 45-day public review of this draft CCP/EA, we will review and analyze all written and oral comments on the draft document. A summary of all substan- tive comments and our disposition of the comments will be documented in an appendix to the Final CCP. The Final CCP will also identify the Service- preferred alternative. A Finding of No Significant Impact (FONSI) will be written to certify that the Final CCP has met agency compliance requirements and will achieve refuge purposes and help fulfill the Refuge System mission. We will then submit the Final CCP and FONSI to the Regional Director for review and approval. Once approved, these documents will be made available to all interested parties. As soon as the Regional Director has approved the final CCP, we can start implementing it.

Issues, Concerns, From planning team discussions, public and focus group meetings, and public and Opportunities responses to our issues workbooks, we compiled the issues and concerns that we heard and categorized them as follows. Key issues.—These are unresolved public, partner, or Service concerns without obvious solutions supported by all. Along with goals, key issues form the basis for developing and comparing the different management alternatives. The wide range of opinions on how to address key issues in a way consistent with refuge goals and objectives generated the varying alternatives we analyze in chapter 3, “Alternatives.” The key issues listed below also share this character- istic: the Service has the jurisdiction and the authority to address them. Issues and concerns outside the scope of this analysis.—These issues fall outside the scope of this document, or outside the jurisdiction or authority of the Service. Although we discuss them briefly below, we do not address them further in this document.

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Key Issues 1. Which species should be a focus for management, and how will the refuge promote and enhance their habitats? Congress entrusts the Service with protecting Federal-listed endangered or threatened plant and animal species, anadromous and inter-jurisdictional fish species, migratory birds, and certain marine mammals, and mandates their treatment as management priorities when they occur on a refuge. Appendix A identifies Federal trust resources on the refuge, as well as other species and habitats of special management concern. Although we know of no Federal-listed species on the refuge, it does provide significant habitat for certain migratory birds. The challenge we face with migratory bird management is determining how a refuge can significantly con- tribute to the conservation of migratory bird species of concern. An important question we must answer is “Which migratory bird species and habitat types should be management priorities on the refuge?” Placing management emphasis on certain species or species groups may preclude emphasis on other migratory bird species of concern. For example, our emphasis on managing habitat for grassland-dependent birds would reduce the potential for shrub-dependent or forest-dependent birds also in decline throughout PIF Area 17. Each of the alternatives associates manage- ment with certain migratory bird species, and discusses the foreseeable impacts on other species of concern. Addressing this issue will help support refuge goals 1, 2, and 3.

2. How will the refuge manage for regionally significant ecological communities, including the Wallkill River and its associated wetlands? Several habitat types present on the refuge have been identified as ecologically significant because of their biological diversity, their relative scarcity throughout the Hudson River ecosystem, or their ability to support a complex of species that are regionally declining. Besides the Wallkill River and its tributaries, large grassland complexes (>150 acres) are recognized as regionally important for their biological diversity. Service policy (601 FW 3) requires us to maintain existing levels of biological integrity, diversity, and environmental health on refuge lands. If necessary, we are to restore lost or degraded habitats, using historical conditions as a frame of reference to identify composition, structure, and functional processes that naturally shaped ecosystems and habitat types. Which habitat types we empha- size in management varies among the alternatives, influencing the timing and the extent of our fulfilling those policy requirements. Addressing this issue will help support refuge goals 1, 2, 3 and 4.

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3. How will the refuge manage invasive, exotic, or overabundant species? Invasive plants out-compete native species by dominating light, water, and nutrient resources. Species such as purple loosestrife (Lythrum salicaria), Phragmites (Phragmites australis), garlic mustard (Alliaria petiolata), Canada thistle (Cirsium arvense), multiflora rose (Rosa multiflora), and reed canary grass (Phalaris arundinacea) threaten refuge habitats by displacing native plant and animal species, degrading wetlands and other natural communi- ties, and reducing natural diversity and wildlife habitat values. Those plants are particularly a menace when they impact the viability of native species of con- cern, such as some of the rare plant species on the refuge. Once they have become established, getting rid of invasive plants is expensive and labor intensive. Their characteristic ability to easily establish, prolifically reproduce, and readily disperse makes eradicating them difficult. Many of them cause measurable economic impacts, especially in agricultural fields. Preventing new invasions is extremely important for maintaining biological diversity and native plant populations. Controlling them in existing, affected areas will require extensive partnerships with adjacent landowners, state, and local governments. Each of the alternatives will present actions and commit varying levels of re- sources to controlling invasive plants. Several wildlife species on the refuge may be adversely affecting natural biologi- cal diversity and we need to monitor any impacts. Native species such as deer, resident Canada geese, and small furbearing mammals such as foxes, raccoons, and woodchucks can be a problem when their populations exceed the range of natural fluctuation and the ability of the habitat to support them. Management issues arise when they adversely affect Federal trust species or degrade natural communities. In particular, small mammalian predators destroy migratory bird nests. While some level of predation in a natural system is expected, concerns arise when that predation prevents our meeting conservation objectives. Adverse economic impacts can arise when deer or Canada geese forage on landscaping or agricultural fields. Excessively high populations of deer, fox or raccoon also can compromise human health and safety. Greater numbers of vehicle-deer collisions or cases of Lyme disease and rabies all raise community concerns. Not all of those situations exist now on the refuge, but they may surface soon, as surrounding lands become developed and animals are forced to concentrate on or near the refuge. The alternatives compare different man- agement strategies for those target species. Some of the control measures for each species are controversial; they may include visual or audio deterrence, the destruction of nests or dens, or lethal means. Addressing this issue will help support refuge goals 1 and 2.

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4. What opportunities for hunting will the refuge provide? During public scoping we learned that opinions on hunting ran the full spectrum, from those totally opposed, to those advocating opening the refuge to all State hunting seasons. The Refuge Improvement Act of 1997 stipulates hunting on refuges as one of the six priority public uses to receive our enhanced consider- ation. The Service also views hunting as an effective management tool in con- trolling overabundant or invasive wildlife species. However, a segment of the local community continues to oppose hunting, based on concerns about safety, disturbances, harm to non-target wildlife, and the impact on visitors engaging in other priority public uses. Others opposed to hunting feel that the refuge should function as a complete sanctuary for all native species, and that hunting is incongruous with managing a refuge. Some support hunting only when it is needed for population control, and not as a recreational activity. Still others fully support it, including the NYSDEC, who would like to see more hunting on the refuge in conformance with State hunting seasons. The refuge is not currently open to hunting, but local residents indicate that deer and small game hunting occurred under previous ownerships. Some adjacent landowners were opposed to hunting, expressing a concern about their own safety, especially if a rifle season were allowed. Other individuals indicated a concern about the safety of hunters, since buried drainage structures on the refuge could be hazards. As we considered whether or not to provide a hunting program in each alterna- tive, our foremost consideration was for public safety. Given these safety concerns, and other resource concerns, the alternatives in chapter 3 propose either the current hunting prohibition, or an archery deer hunt. Other hunting seasons were considered but eliminated as described in chapter 3. Addressing hunting opportunities will help support refuge goal 4.

5. How will the refuge provide opportunities for other compatible, wildlife dependent uses and accommodate their occasional conflicts? The 1997 Refuge Improvement Act requires our enhanced consideration of opportunities for six priority wildlife-dependent recreational uses—hunting, fishing, wildlife observation and photography, and environmental education and interpretation—when they do not conflict with the mission of the Refuge System or the purposes for which the refuge was established. However, the Act estab- lishes no hierarchy among the six priority uses and, unfortunately, they some- times conflict. Some people expressed concerns that refuge resources may be disproportion- ately allocated toward one use to the detriment of others. An additional chal- lenge for the refuge manager is determining the capacity of the refuge to support those uses and still provide a quality experience for visitors. For example, some people would prefer that the runways be maintained for walking while others

1-20 Shawangunk Grasslands National Wildlife Refuge Key Issues prefer that most of them be removed and restored to grasslands. The alterna- tives evaluate different combinations and levels of priority public use, and the resources to support them. Addressing this issue will help support refuge goals 4 and 5. A few public uses that historically occurred on the refuge are not priorities, nor wildlife-dependent, and we have determined they are not compatible with the refuge purposes and management priorities. One activity in particular, model airplane flying, received a lot of attention when the refuge was established. Chapter 2 describes the history of that issue in greater detail. Also in Chapter 2, we describe our concerns with non wildlife-dependent activities drifting onto the refuge with the Town of Shawangunk’s proposed 55-acre park and athletic fields on the refuge’s north boundary.

6. Should we consider a refuge expansion to protect additional habitat areas? Northern New Jersey and south-central New York have become commuter communities for cities to the south. Two-hour commutes are now common- place. According to a June 19, 2005 editorial in the Poughkeepsie Journal, there is concern about the loss of open space and farmland in Ulster County due to demographic changes. The town of Gardiner, for example, experienced a population growth of more than 20% in the last 10 years. That growth, which places extreme pressure on natural resources, is now threatening the county’s natural areas; many are becoming isolated islands of habitat, so fragmented that they can no longer support their full diversity of native wildlife and plant species. Species that require large, contiguous areas of natural habitat are the first to suffer. The Town of Shawangunk is developing a comprehensive plan that will include an analysis of current and future needs for open space. Public meetings indicate broad public support for the concept, but no consensus on how much open space is enough. It is also important to recognize the “open space lands” does not necessary equate with lands of greatest wildlife values. During our scoping process, we heard from many individuals encouraging the Service to expand the refuge within the focus area for a variety of reasons, including their concern about the rapid rate of development, the increased burden on their communities’ services brought on by that development, and their communities’ loss of rural character. Some acknowledged the necessity and the direct benefits of maintaining land in its natural state afforded by refuges. They recognized that wetlands are essential habitat for wildlife, lessen the damage from flooding, and naturally break down contaminants in the environment. They also recognized that forests and grasslands protect the quality of our drinking water, help purify the air we breathe, and provide important areas for outdoor recreation.

5 16 U.S.C. 715s, June 15, 1935, as amended

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On the other hand, the fact that 29% of Ulster County is now held in non-taxed ownership, including the refuge, state prisons, religious communities, and non- profit organizations, is a concern to many people. Some elected officials hold mixed opinions about this tax burden on their communities. They feel that increased Federal ownership will adversely affect property tax revenues. Federal lands are not taxed. However, the Refuge Revenue Sharing Act5 helps offset the loss of tax revenue through refuge revenue sharing payments to towns, at a maximum rate of three-quarters of 1 percent of the appraised value of refuge land. As we described under “Planning Process”, none of the alternatives propose an expansion of the current approved boundary. However, they do compare various levels of Service involvement in identifying important habitats that need protection or cooperative management on private lands in the area. In addition, nothing in the alternatives precludes our pursuing land acquisition in the future, after additional NEPA analysis and public involvement. For example, the 55 acres deeded to the Town of Shawangunk for use as a town park, immediately adjacent to the refuge’s northern boundary, may become a priority for Service acquisition should the town ever determine it excess to their needs. While none of the alternatives proposes acquisition of this tract, should the opportunity arise, we would seek its acquisition. Addressing this issue will help support refuge goals 1, 2, and 3.

7. How will the refuge cultivate an informed and educated public to support the mission of the Service and the purposes for which the refuge was established? Community involvement in supporting the Refuge System is very important and very rewarding. It helps people understand what we are doing, why we are doing it, and how we can work together to improve our communities. Refuge outreach ties us to local communities and promotes an interest in conserving natural resources. The challenge lies in determining how best to reach out to raise refuge visibility and cultivate relationships in local communities. Some people advocate opening more refuge programs to the public; others desire a “Friends of the Refuge” Group; still others promote refuge staff involvement in established community events, government committees, and conservation organizations. The alternatives explore those options and evaluate the resources necessary to implement them. Addressing this issue will help support refuge goals 3 and 5.

1-22 Shawangunk Grasslands National Wildlife Refuge Issues Outside the Scope of this Environmental Assessment

8. How will we reduce the potential hazards from the underground drainage system? On the refuge there is an extensive system of cement culverts that was installed to drain water from the air field which are collapsing, and in some cases are open and exposed. This may represent a safety hazard especially for our staff doing habitat management work or for visitors authorized to walk off the designated trail. All the alternatives consider various ways to address this issue and other potential safety hazards left from former uses of the area. Addressing this issue will help support goal 4.

9. How will the refuge obtain the necessary staffing and funding to maintain infrastructure and complete priority projects? For the foreseeable future, this refuge will continue to be maintained as an un- staffed satellite refuge under the administration of the Wallkill River refuge. Some people expressed concerns about the ability of Wallkill River refuge staff to maintain infrastructure and implement programs and projects on this refuge given the current level of funding. Some are concerned that any new proposals in this CCP will be substantially above current budget allocations, thus raising unrealistic expectations. It was pointed out that budgets can vary widely from year to year since they depend on annual Congressional appropriations. Other people supported our pursuit of new management goals, objectives, and strategies in the hopes that the CCP will establish new partnerships and funding sources. In fact, some people recom- mend a visitor contact facility be maintained throughout the year on the refuge. A “Friends Group” was suggested as one way to get assistance with funding and implementation. In developing each alternative, we identified seasonal staffing positions and funding levels necessary to implement its proposed actions over the next 15 years. In all alternatives, we are recommending the essential staffing levels already approved for the refuge be implemented (appendix E). All positions assigned to the refuge are currently vacant. Appendix D presents our Refuge Operating Needs (RONS) and Management Maintenance System (MMS) projected needs. These databases are updated regularly, and in fact, we are transitioning in 2005 to replace the MMS database with the Service Asset Maintenance Management System (SAMMS) database. Addressing this issue will help support all refuge goals.

Draft CCP - November 2005 1-23 Chapter 1

Issues Outside the Many people indicated they are greatly concerned about urban sprawl, the rate Scope of this and location of development, and the loss of habitat and resulting increased Environmental habitat fragmentation near refuge lands. Some wanted zoning for agriculture or Assessment something other than residential or commercial development. The authority of the Service does not extend to local zoning. However, we are working with Development and local adjacent towns to identify important wildlife habitats that need protection. zoning

Pollution Control Many refuge neighbors expressed their concern about poor water quality in the Wallkill River and their belief that it has steadily declined over the past years. Some attributed that decline to the use of herbicides and pesticides on agricul- tural fields and its relationship to the levels of DDE in the river, the highest in any Hudson River tributary. Others expressed their concerns about the effects of town wastewater treatment and pollution from farm operations. The Service has no jurisdiction, unless polluters are directly impacting Federal trust resources. However, our staff will continue to work with the Wallkill River Task Force and participate in local community planning to promote the best management and restoration practices to benefit water quality and the wetlands of the river and its tributaries.

American woodcock USFWS photo

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†olunteering2—nd ell2of2the2—ltern—tives2will2promote2existing2p—rtnershipsD2new2p—rtnershipsD2—nd €—rtnership v—lu—˜le2volunteer2opportunitiesF2„hose2rel—tionships2—re2vit—l2in2su™™essfully ypportunities m—n—ging2—ll2—spe™ts2of2the2refugeD2from2prote™ting2l—nd2to2m—n—ging2h—˜it—t2—nd spe™ies2—nd2providing2wildlifeEdependent2re™re—tionF2gh—pter2P2lists2m—ny2of2our p—rtners2in2™onserv—tionF2‡e2will2—lso2pursue2new2p—rtnerships2in2—re—s2of mutu—l2interest2th—t2˜enefit2refuge2go—ls2—nd2o˜je™tivesF hetermining gh—pter2I2des™ri˜es2the2requirements2for2™omp—ti˜ility2determin—tionsF2ell2of2the gomp—ti˜ility —ltern—tives2in™lude2our2PHHP2de™ision2on2model2—irpl—ne2flying2—nd2model —irpl—ne2™ompetitive2eventsD2whi™h2determines2th—t2those2—™tivities2—re2not ™omp—ti˜le2—nd2—re2not2—llowed2on2the2refuge2@—ppendix fAF2eppendix f2—lso in™ludes2the2following2dr—ft2™omp—ti˜ility2determin—tions2for2the2preferred —ltern—tiveX22gr—zingY2h—yingY2—r™hery2deer2huntingY2pu˜li™2fishingY2wildlife2o˜serE v—tionD2n—ture2photogr—phyD2environment—l2edu™—tionD2—nd2interpret—tionY2—ndD rese—r™h2™ondu™ted2˜y2nonEƒervi™e2personnelF2yur2fin—l2gg€2will2in™lude2the fin—lD2—pproved2™omp—ti˜ility2determin—tions2th—t2™onform2to2the2—ltern—tive sele™tedF2‚eg—rdless2of2the2—ltern—tiveD2we2will2™ontinue2to2prohi˜it2the2w—lking of2petsD2joggingD2˜i™y™lingD2riding2horsesD2driving2—llEterr—in2vehi™lesD2model —irpl—ne2flying2—nd2™ompetitionsD2—nd2the2tou™hing2downD2t—king2offD2or2—™ro˜—ti™ flying2of2—ir™r—ft2on2the2refugeF

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COMPATIBILITY DETERMINATION

Use: Model airplane flying and model airplane competitive events.

Refuge Name: Shawangunk Grasslands National Wildlife Refuge

Establishing and Acquisition Authority: 16 U.S.C. Section 667b (An Act Authorizing the Transfer of Certain Real Property for Wildlife)

Refuge Purpose: To carry out the national migratory bird management program.

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.

Description of Use: This activity is the conduct of free flight and radio-controlled model airplane flying and competitive events.

Model airplane flying was permitted for 26 years at the former Galeville Army Training Facility in Ulster County prior to the acquisition of the site. This use was suspended by the West Point Military Academy in 1995. In July 1999, 566 acres were transferred to the U.S. Fish and Wildlife Service (Service) for the protection and management of migratory bird habitat, with a special emphasis on grassland dependant birds. The site is now known as the Shawangunk Grasslands National Wildlife Refuge (Refuge).

Representatives from the East Coast Free Flight Conference and other model airplane organizations, such as the Academy of Model Aeronautics, began asking for permission to recommence model airplane flying and competitions as early as 1995. Congressman Benjamin Gilman (R-NY) has asked the Service to allow model airplane flying and competitions at the Refuge.

Use of the Refuge would range from a single individual to groups of people engaging in free flight or radio-controlled model airplane flying during daylight hours, probably for a period of several hours. Model airplane use would primarily occur from April through November, but would also be possible through the rest of the year, depending upon the weather. The size of the groups is unknown and accounts vary, but groups of six to twelve people engaging in recreational flying or practicing for competition would not be unlikely. Most of the group flying would likely occur on the weekends. Historically, six to seven two-day events were organized each year at the facility, including special competitions that would attract 300 people. Continuation of these events, which include qualifications for International Competition Classes, is one of the major reasons why the interest in model airplane flying at this Refuge has not abated. Given the size of the Refuge, model airplane flying would occur throughout the entire Refuge.

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The launching of free flight and radio-controlled model airplanes would generally take place on the existing runways, which are now used by the public for wildlife observation, nature photography, and environmental education. Depending on the speed and direction of the wind, modelers generally move to the furthest upwind area in the boundary of the flying site, as this gives the model more room to drift downwind. Some free flight planes, known as gliders, are towed to their initial starting altitude on a line as long as 50 meters. Modelers tow the plane to the location with the best air (a thermal). Modelers launched planes from the fields as well as the runways, particularly during competitions, in order to gain maximum time aloft.

Once launched, free flight planes cannot be controlled by the modeler. Thus, frequent retrieval of the planes in the grasslands and surrounding forests is expected. Radio-controlled planes are more likely to stay under the control of the modeler and will generally be able to return to the launch site. However, both types of models will crash, and retrieval may occur anywhere on the Refuge. Motorized vehicles and bicycles have been used in the past to retrieve models.

Models would fly over Refuge grasslands that are being managed for breeding and wintering grassland birds. These grasslands and the associated woodlands are also heavily used by migratory birds in the spring and fall.

Additional use of the area would require parking for upwards of 125 vehicles, including motor homes, during competitive events. Currently, the only place to park vehicles is on the runways. Competitions also draw family members and other spectators. Consequently, other incidental uses that would likely occur that have detrimental impacts to wildlife and habitat include picnicking, littering, and trespass.

Anticipated Impacts of the Use: The primary management objective of this Refuge is to provide large expanses of undisturbed grasslands so that birds may nest, incubate their eggs, rear their young, rest, and feed. Disturbance in winter is minimized to increase the survival of raptors and other species during periods of scarce food resources. Current public use activities are designed to minimize impacts. Only foot traffic is allowed on existing paved or concrete surfaces and visitors are prohibited from entering the grasslands.

The National Audubon Society of New York State has identified this site as an “Important Bird Area”, a designation given only to places that support a significant abundance and diversity of birds (Wells 1998). In particular, the Refuge is among a dwindling number of sites in New York State and one of only two sites in the Hudson Valley large enough to support the entire assemblage of grassland birds (New York State Department of Environmental Conservation and Office of Parks, Recreation and Historic Preservation 2001). Grassland dependant birds have declined more consistently and over a wider geographic area than any other group of North American birds over the last 30 years (Robbins et al. 1986, Askins 1993, Knopf 1995, Askins 1997, Sauer et al. 1997). Grassland birds nest, roost, and forage on the ground and are especially susceptible to human disturbance.

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Several grassland birds that use the Refuge are on lists of rare or declining species, including northern harrier, upland sandpiper, short-eared owl, horned lark, bobolink, grasshopper sparrow, Henslow’s sparrow, and vesper sparrow. The Service Northeast Region list of Birds of Conservation Concern (draft) includes upland sandpiper, short-eared owl, and Henslow’s sparrow. Partners In Flight (PIF) lists upland sandpiper, Henslow’s sparrow, and bobolink as high conservation priority species in the Northern Ridge and Valley physiographic region in which the Refuge lies (Pashley et al. 2000). The North American Bird Conservation Initiative (NABCI) ranks Henslow’s sparrow as a priority species in the Appalachian Mountain Bird Conservation Region (U.S. NABCI Committee 2000). The New York State Department of Environmental Conservation (1997) lists short-eared owl as an endangered species, northern harrier, upland sandpiper, and Henslow’s sparrow as threatened species, and horned lark, grasshopper sparrow, and vesper sparrow as species of special concern.

The Refuge is one of the most important grassland bird nesting and wintering areas in the state (Wells 1998). Grassland dependant birds that nest at the Refuge include northern harrier, upland sandpiper, grasshopper sparrow, Henslow’s sparrow, savannah sparrow, vesper sparrow, eastern meadowlark, and bobolink. Evidence of breeding short-eared owl has been observed, but nesting has never been confirmed. Grassland birds that find valuable wintering habitat at the Refuge include northern harrier, short-eared owl, and horned lark. According to Wells (1998) up to 16 short-eared owls and six northern harriers have been observed at the Refuge in winter, as well as flocks of 60 to 80 horned larks. However, Refuge winter raptor surveys frequently document 12 to 17 northern harriers (U.S. Fish and Wildlife Service 2002, unpubl. data) and Alfred Ott (2002) of the Queens County Bird Club reports a maximum of 35 northern harriers.

The Refuge also provides important habitat for migrant grassland birds in spring and fall. Northern harriers migrating along the Shawangunk Mountains often stop at the Refuge to rest and forage. Migrant short-eared owls arrive at the Refuge in early November and depart in late April. Flocks of up to100 bobolinks gather at the Refuge in August and September and flocks of up to 50 eastern meadowlarks are found at the Refuge in April, October, and November. Up to 19 vesper sparrows have been counted at the Refuge in October (Kahl 2001, U.S. Fish and Wildlife Service, pers. obs).

The Refuge offers sanctuary to several other birds that are on lists of rare or declining species. Loggerhead shrikes (state endangered) use the extensive grassland habitat during both southbound and northbound flights. Large flocks of common nighthawks (state special concern) forage over the Refuge and use the runways as daytime roosting areas before continuing their flights. Sharp-shinned hawks, Cooper’s hawks, northern goshawks, and red-shouldered hawks (state special concern) rest and forage at the Refuge in winter, spring, and fall. Peregrine falcon (state threatened) has been seen at the Refuge during fall migration. Other birds that nest at the Refuge or stop during migration that are on the Service list of Birds of Conservation Concern, PIF list of high conservation priority species, and NABCI priority species list include; black- billed cuckoo, red-headed woodpecker, yellow-bellied sapsucker, black-capped chickadee, wood thrush, prairie warbler, bay-breasted warbler, and Canada warbler.

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Fifty-eight bird species nest on the Refuge. These include American kestrel, killdeer, American woodcock, willow flycatcher, eastern kingbird, eastern bluebird, brown thrasher, chestnut-sided warbler, blue-winged warbler, field sparrow, and chipping sparrow. Many of these species nest near the edge of the runways and are especially susceptible to disturbance. Although the Service intends to remove the runways, the area will be re-vegetated with a plant community suited to these birds.

Hudsonia, a non-profit organization affiliated with Bard College, studied this site in 1992 (Stevens). Hudsonia found that, “(i)n spite of its generally disturbed condition, the importance of this site to native biological diversity may exceed that of many more pristine areas of equal or larger size. The design of any development or land use change contemplated for this property should incorporate the preservation of adequate habitat and buffer zones for the rare plant and animal species known to occur there.”

Impacts to migratory birds from model airplane flying and competitions are both direct and indirect. These impacts stem both from the act of model airplane flying and its associated activities, such as retrieval of planes. There are no specific studies that describe the impact of model airplane disturbance to grassland birds. However, there has been research showing that response to aircraft is influenced by many variables, including aircraft size, proximity, flight profile, engine noise, and sonic booms (Smith et al. 1988). Piping plovers have been observed to modify their behavior in the presence of kite-flying activities. Loons have been observed to engage in avoidance behavior when small airplanes are near. Gladwin et al. (1987) surveyed Service Endangered Species and Ecological Services Field Offices, National Wildlife Refuges, Hatcheries, and Research Centers to determine the nature and extent of aircraft impacts on fish and wildlife. Small propeller aircraft caused disturbance at 50% of the installations. Bélanger and Bédard (1995) described aircraft overflights as the most important cause of disturbance to migrant snow geese in Quebec. Bélanger and Bédard suggested that aircraft flights should be strictly regulated over snow goose staging areas with flights below 500 meters prohibited. Owens (1977) found that slow, noisy aircraft were most disruptive to brant. In fact, brant flew away in response to aircraft below 500 meters and up to 1.5 kilometers. Owens suggested that the strong response was partly due to the visual resemblance of planes to large predatory birds. Knight and Cole (1995) state that smaller fixed-winged aircraft may be more likely to disturb wildlife because they fly slower and at lower altitudes.

These authors describe the effects of passenger aircraft upon mainly waterfowl. Still, these examples are most relevant because they demonstrate that small, loud planes flown at low altitudes, low speeds, and unpredictable intervals cause the most disturbance to birds. These aircraft are most similar to model airplanes. In fact, model airplanes are a tool used to deter birds from occupying airport runways and flight paths (Transport Canada 1994).

Some airports, if managed properly, do provide important habitat for grassland birds. Examples include Logan Airport and Westover Air Reserve Base in Massachusetts (Jones and Vickery

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1997) and Bradley International Airport in Connecticut (Crossman 1989) to name a few. At these sites, however, air traffic is dominated by large planes flown at frequent, predictable intervals that enable wildlife to become habituated. Also, the general public is not allowed to traverse the fields surrounding the runways. Model airplane flying at the Refuge would not have the same characteristics.

Direct impacts from modelers include the destruction of nests or the modification of feeding and nesting behavior during the retrieval of stray models. Modelers prefer to walk in a straight line to the point where the model airplane lands to increase the chance that the model will be successfully retrieved. A model can often be unseen even when a person is only a few feet away. Therefore, modelers will want to walk through grasslands and wetlands that may have nesting, resting, or feeding birds to retrieve their planes. Additionally, individuals will enter grassland areas and disturb wildlife to launch free flight models when winds do not parallel the runways.

Scarlatelli (1996) of Northeast Environmental Management Systems, in a report prepared at the request of the East Coast Free Flight Conference, concluded that model airplane flying would be compatible with efforts to preserve the area’s ecological importance. This recommendation is based partly on the deduction that ground nesting birds of concern, including upland sandpiper, short-eared owl, vesper sparrow, savannah sparrow, grasshopper sparrow, Henslow’s sparrow, bobolink, and eastern meadowlark, present distraction displays in response to predators near their nests. Hence, the birds would be conspicuous to model airplane enthusiasts traversing fields to retrieve stray airplanes and the nests would be easy to avoid.

This reasoning ignores the fact that individuals walking through grassland areas to retrieve or launch model planes create a direct liability for breeding grassland birds. While adult birds are engaged in attempting to lure a perceived predator from their nests, the eggs and young are exposed to increased risk of nest predation and exposure to adverse temperatures. Lanyon (1995) relates that adult eastern meadowlarks become wary and delay visits back to nests with young after disturbance. Further, predation of eggs, young, and attendant adults can occur as a result of nest predators following scent paths and disturbed vegetation to the nest area. Predation of northern harrier young has occurred when predators followed humans to nests (Watson 1977, Toland 1985). At a minimum, adult birds that are attempting to divert humans from nests, or are simply frightened from nests, are unnecessarily expending energy and time during a critical period in their annual cycle.

Moreover, the conclusion that virtually all the breeding grassland birds of the region display diversionary behaviors near the nest is only partly accurate and misses the point. If the modeler can see that the bird is disturbed, which is not always obvious, then the disturbance has already occurred and the bird has expended energy in nest defense that is best used either incubating or rearing young.

In fact, the behavior of these birds from disturbance varies greatly between species, between individuals within species, and throughout the stages of the nesting cycle. This pattern is well-

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documented. Townsend (1961) gives the accounts of Saunders (1913), Urner (1921), and Urner (1923), of “wounded bird” acts of short-eared owls stimulated by humans near nests with young. These accounts sometimes include adult birds stooping or diving at the intruder. Tate (1992) and Clark (1975) also describe elaborate distraction displays, most often used by the male. However, Tate also states that both male and female short-eared owls often vacate the vicinity of the nest while an intruder is present. Thus, this species does not always make its nest location easy to determine and avoid.

Similarly, adult upland sandpipers sometimes feign injury, give alarm calls, and even fly directly at human intruders near fledglings (Coues 1874, Forbush 1912) or nests with eggs (Coues 1874, Bowen 1976). However, this behavior was not observed by Sordahl (1981). Indeed, the former description reflects a significant diversion of resources that should be prevented.

Adult savannah sparrows respond to predators within 10 to 15 meters of the nest by giving alarm calls, fanning tails, raising crests, and making short nervous flights (Wheelwright and Rising 1993), not a conspicuous display to the unpracticed eye. Furthermore, Potter (1974) describes only about 25% of females flushed from nests giving a conspicuous distraction display of scurrying and crouching with quivering wings.

Berger (1968) gives the account of Roberts (1932) of dramatic injury feigning by vesper sparrows flushed from the nest. Contrastingly, Roberts also states that vesper sparrows more commonly fly “directly away, low over the ground.” Berger states that female vesper sparrows will respond to humans near nests with young by running along the ground conspicuously, with tail spread and wings raised. Berger further states that the same stimulus near nests with eggs consistently cause the female to fly 50 to 60 yards away without feigning injury or giving alarm notes.

Vickery (1996) states that grasshopper sparrows give a broken-wing distraction display at the nest and probably near fledged young. Smith (1968) states that female grasshopper sparrows flushed from the nest may give a distraction display or may fly 25 to 30 feet away and hide in the grass. Smith also gives Nicholson’s (1936) description that some female grasshopper sparrows “will run off the nests before they are found” while others gave conspicuous distraction displays.

Both bobolink sexes perform diversionary displays in response to humans near their nests according to Martin and Gavin (1995). Martin and Gavin further state that, if pursued, these behaviors may proceed until the intruder is more than 100 meters from the nest.

Lanyon (1995) states that male and female eastern meadowlarks may attempt to lure humans from nests through distraction displays of spread wings and tail. Lanyon further states that females may also explode off the nest causing injury to eggs and young. Arbib (1988) noted that bobolink was confirmed in far more New York State Breeding Bird Atlas blocks by observation of distraction displays than eastern meadowlark, although the two species were found in a similar number of blocks.

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Response of Henslow’s sparrows to human intruders near their nests is not described. However, Smith (1968) characterizes the species as “a shy and retiring inhabitant of open fields and grasslands.” Smith further writes of “its custom of skulking or running mouselike through the grass at the approach of an intruder.” Eaton (1988a) calls Henslow’s sparrow “one of the most inconspicuous land birds in the Northeast.”

This variation in response indicates that displays of disturbance may not be sufficient to protect nests from direct impacts associated with the inadvertent trampling of vegetation.

Scarlatelli (1996) also concluded that individuals searching fields for errant model airplanes would not impact ground-nesting birds, including northern harrier, upland sandpiper, short-eared owl, vesper sparrow, savannah sparrow, grasshopper sparrow, Henslow’s sparrow, bobolink, and eastern meadowlark, because these species are “well-adapted to minor, temporary disturbances.” This conclusion fails to acknowledge that there are significant differences in the sensitivity of ground-nesting birds to disturbance between species, between individuals within species, and through the stages of the nesting cycle.

Upland sandpipers and savannah sparrows seem least disturbed by human presence near the nest. Bowen (1976) states that repeated flushing during nest checks does not cause nest desertion by upland sandpipers. Baird (1968) and Welsh (1975) indicate that breeding savannah sparrows are tolerant of human disturbance near the nest.

In contrast, Northern harriers are sensitive to nest disturbance. Macwhirter (unpubl. data) found that none of 15 northern harrier nests with three or more eggs were abandoned after discovery. However, nine of 20 nests with two or fewer eggs were subsequently abandoned, and only four pairs re-nested within their territory. Simmons (1983) found that harriers rarely deserted nests with young when observation blinds were placed within five to eight meters, but found the opposite when nests contained eggs. Saunders (1986) found that 25% of harrier adults behaved erratically in response to an occupied blind near nests with young. Serrentino (1992) suggests that suitable northern harrier breeding habitat in coastal New England is vacant in part because of heavy use by humans. In fact, volunteers field observers working on the New York State Breeding Bird Atlas project were warned to avoid disturbing the nest of this species (Smith 1988).

Leasure and Holt (1991) state that short-eared owls are generally not sensitive to human activity near the nest. However, they base this on the fact that short-eared owl nests are difficult to find. Further, Holt (1992) found that three of four female short-eared owls abandoned nest scrapes after being flushed by researchers and re-nested nearby. New York State Breeding Bird Atlas volunteers were advised against attempting to locate the nest of this species also (Eaton 1988b). Both this species and northern harrier are also sensitive to winter roost disturbance.

Eastern meadowlarks are particularly sensitive to human disturbance near their nests, especially before hatching. Lanyon (1995) states that a female flushed from the nest during incubation “invariably aborts.” Lanyon also states that desertion of nests with young is less likely.

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Furthermore, the frequency of disturbance to breeding grassland birds should not be considered temporary or minor. Scarlatelli (2002) gives Jean Pailet’s (ex-officer of the Academy of Model Aeronautics and member of the Skyscrapers Club) account of two to 12 individuals using the site on a typical weekend day and competitions rarely attended by more than 100 people. According to Langelius (1998 and 2002, ECFFC, pers. com.), the Galeville Army Training Facility was used daily by modelers. In addition, six to seven two-day events were held annually from May to October, drawing up to 125 modelers and 150 family members per event. Thus, the disturbance to wildlife would be very significant, even if only a fraction of these users walked across the fields to retrieve or launch model airplanes, or used loud, radio-controlled models.

The impact of model retrieval to nesting birds is compounded when modelers use all terrain vehicles (ATVs) or other motorized vehicles to cross through fields. Scarlatelli (2002) states that modelers typically used two-wheeled, powered motor bikes or motor scooters and that a minority used three- or four-wheeled vehicles. Scarlatelli further states that vehicles were primarily used on runways and “established paths” to approach the vicinity of the stray aircraft, but final retrieval was done on foot. Conflictingly, correspondence from Refuge neighbors and bird watchers describe ATVs frequently being driven throughout the grassland interior by modelers, sometimes becoming stuck.

Nor is the level of noise generated by radio-controlled planes a minor disturbance. The noise is high-pitched, irregular, random, and fluctuates with the aeronautic maneuvering of the model. The Radio Control Club of Rochester (AMA Charter 465), New York recommends a 95 decibel (dBA) maximum for radio-controlled planes at nine feet at full power on the ground (Radio Control Club of Rochester 2001). This level exceeds the noise produced by a chainsaw, lawnmower, or air compressor. Under certain atmospheric conditions, this noise can carry more than one mile. In addition, radio-controlled planes with 0.09cc internal combustion engines can produce sound levels up to 115 dBA. The noise generated from radio-controlled model airplane competitions has been described as like “an angry swarm of bees” (Madison Radio Controlled Airplane Society 2001).

Currently, parking for 125 cars would only be possible if the existing runway system in the middle of the Refuge were used. This accommodation would create disturbance from vehicles driving into the grasslands, hydrocarbon pollution from emissions and oil leaks, and litter associated with the parking area. It would also displace visitors on the nature trail, which is currently comprised of the entrance road and runways. Moreover, the Service intends to remove these runways, except for an approximately eight-foot wide strip for the nature trail and administrative access. Consequently, approximately 30 acres of grassland habitat will be restored. Allowing model airplane use would create an incentive to preserve the runways, halt the Service’s plan to restore wildlife habitat, and is contrary to the mission of the Refuge and the National Wildlife Refuge System.

The runways are in the least desirable area of the Refuge to accommodate parking, as they are located in the center of the field. Hence, a new parking area would have to be constructed on a

fEQV22ƒh—w—ngunk2x—tion—l2‡ildlife2‚efuge wodel2eirpl—ne2plying2—nd2wodel2eirpl—ne2gompetitive2ivents location where the negative impacts to wildlife and visitors will be less. The most likely place would be along the current access road into the Refuge. Although the detrimental effects would be less than parking on the runways, construction of a new 125 car parking lot will create a direct negative impact to wildlife through conversion of natural habitat to pavement.

Individuals crossing grassland areas on foot or with motorized vehicles could also negatively impact the Refuge’s flora. Five state-listed rare plant species occur on the Refuge (Stevens 1992). These include small-flowered agrimony (Agrimonia parviflora), small white aster (Aster vimineus), purple milkweed (Asclepias purprascens), Bush’s sedge (Carex bushii), and Frank’s sedge (Carex frankii). Identification of these protected species is quite difficult to the untrained eye. Any unnecessary disturbance from people and motorized vehicles traversing areas off designated trails could harm or eliminate the habitat of these plants.

Purple loosestrife (Lythrum salicaria) and common reed (Phragmites australis) are invasive, exotic plant species that occur on the Refuge and significantly degrade wildlife habitat (Smith 1964, Stuckey 1980, Rawinski and Malecki 1984, Malecki 1987, Thompson et al. 1987, Baldassarre and Bolen 1994). Purple loosestrife has undoubtedly become so well established because of previous degradation of the site, including clearing, filling, road and runway construction. Allowing motorized vehicles to access the grasslands to launch or retrieve models could exacerbate the spread of purple loosestrife and common reed due to soil disturbance.

In an update commissioned by the Academy of Model Aeronautics, Scarlatelli (2002) states that model airplane flyers have pursued their hobby on “conservation lands” with positive outcomes, citing Hambly (1996) of the Massachusetts Division of Fish and Wildlife, Buffington (1989) of the Colorado Division of Parks and Outdoor Recreation, and personal observation at the Hackensak Meadowlands of New Jersey. The Oregon Department of Fish and Wildlife (2002) reported a good relationship with model airplane organizations using lands the agency administers. Additionally, Knetzger (2002) listed several sites in Wisconsin and Illinois that modelers have used, including county parks, village parks, state recreation areas, and state forest preserves. However, all of these examples are from areas administered by agencies that include provision of recreational opportunities as equal or higher in priority than management for wildlife.

Moreover, conflict between model airplane use, wildlife, and outdoor enthusiasts does occur at some locations. Scarlatelli (2002) gives the account of Porutski (1996) of the New Jersey Division of Fish, Game and Wildlife on model airplane use at Assunpink Wildlife Management Area entailing few, minor problems that were easily resolved. However, Porutski further states that:

“the most difficult issue to deal with is the noise associated with this type of activity and its effect on wildlife, sportsmen and the general public. Sportsmen and the general public seek to enjoy the outdoors and wildlife in a quiet and serene environment. Model airplane flying in this type of environment represents a very serious conflict. I would

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recommend that this type of activity take place in a park which accommodates a diversity of recreational uses such as picnicking, ball fields and swimming.”

Dorosh (2002) of the Brooklyn Bird Club cites model airplane use as one of the contributing factors causing a virtual extirpation of breeding grassland birds at Floyd Bennett Field, New York. Neuendorffer (2001) describes a severe negative impact of model airplane activities at Latadomi Nature Center in Pennsylvania, including trampled vegetation, soil erosion and compaction, excessive noise, and decreased wildlife. The model airplane group no longer uses this site.

Further, 32 local and national organizations submitted comments (Appendix) on the draft Compatibility Determination expressing strong concern over the negative impact of model airplane flying upon grassland birds and the ability of the public to enjoy priority wildlife- dependant uses at the Refuge. Certainly, the ability of a bird watcher to hear bird vocalizations is directly impaired by the noise of radio-controlled planes, motorized vehicles, and crowds at competitive events. Likewise, their ability to observe wildlife is diminished due to the avoidance behavior of wildlife in this environment. Thus, permitting model airplane flying would prevent the Refuge staff from providing a high quality experience for the wildlife-dependant visitor. Additionally, residents near the Refuge have applauded our decision to not issue special use permits for model airplane flying.

Hunting is not currently allowed on the Refuge, but alternatives being considered as part of the Refuge’s Comprehensive Conservation Plan open some hunting seasons. Hunting has been established as a priority public use through the National Wildlife Refuge System Improvement Act of 1997. Moreover, hunting will be a vital tool for controlling the Refuge’s deer population. This control is critical, for an overabundant deer population has adverse impacts on the Refuge’s plant community, and therefore the rest of the Refuge’s wildlife. Model airplane activities conducted in the fall would interfere with hunting. However, restrictions will be implemented on hunting seasons and techniques to minimize disturbance to migrant or wintering birds.

Availability of Resources: If allowed, this use would increase maintenance, law enforcement, biological monitoring, and administrative costs. The Refuge currently has a four-car parking lot, which will be expanded in 2002 to accommodate ten cars. Facilities do not exist to accommodate the 125 cars likely associated with competitive events (Langelius, ECFFC, 1998, pers. com.). In the past, modelers parked on the runways. These runways are now accessible by foot only. While a small portion of the runways will be retained for use as a nature trail, the majority of the runways will be removed and the area restored to native grasslands. Therefore, allowing competitive events would require the construction of a 125-car parking lot.

If model airplane flying were allowed, a monitoring program would have to be developed and implemented to determine the impacts of model airplane flying and its associated activities on wildlife and visitors seeking a wildlife-oriented experience. A law enforcement presence would be required for all competitive events and at other times to ensure compliance with stipulations

fERH22ƒh—w—ngunk2x—tion—l2‡ildlife2‚efuge wodel2eirpl—ne2plying2—nd2wodel2eirpl—ne2gompetitive2ivents and Refuge regulations. The issuance of special use permits and the development of stipulations would entail administrative costs.

Anticipated annual costs to allow model airplane flying on an individual basis, through special use permit, are estimated below. These numbers assume that individual modelers use the Refuge four days per week from May through September, and weekends from April through October. This estimation is based on personnel communication (1998 and 2002, Langelius, East Coast Free Flight Conference), Scarlatelli’s (2002) figures, and correspondence from individuals who used the site when it was in the ownership of West Point Military Academy. The estimation that individual modelers would use the Refuge 101 days per year is conservative.

Biological monitoring oversight: $21,008 ($26/hour @ 8 hours/day for 101 days) Law enforcement: $26,260 ($32.5/hour @ 8 hours/day for 101 days) Administrative: $ 5,000 ($25/hour @ 200 hours, assumes 400 individual permits issued and processed annually; per Ross, ECFFC, 1996, correspondence to Senator D’Amato) Fuel/Vehicle: $ 683 ($1.30/gallon @ 2.6 gallons/trip for 202 trips) Equipment Use/Replacement: $ 5,000 (wear on vehicles)

Total costs: $57,951

In order to hold seven competitive events annually (Langelius, 1998, ECFFC, pers. com.), the following additional costs would be necessary:

Parking area development: $345,000 (costs from Construction and Rehabilitation Cost Estimating Guide, 1999, U.S. Fish and Wildlife Service) Additional law enforcement: $3,640 ($32.5/hour @ 8 hours/day for 14 days) Additional biological monitoring: $2,912 ($26/hour @ 8 hours/day for 14 days) Administrative: $ 980 ($35/hour average cost for 28 hours to develop agreements, issue permits, and process payments)

Total additional costs for competitive events: $352,532

The combined expense to the Service to allow model airplane flying and competitive events at the Refuge would be $410,483 the first year that competitive events were allowed, and $65,483 annually thereafter (not adjusted for inflation and cost of living increases in salaries).

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Annual user fees of $250 per individual or $5,000 per competitive event could be collected to help offset the costs of administering this program. However, the parking area would need to be constructed prior to the holding of competitive events. Expending $345,000 to build a parking lot to support model airplane competitions, while decreasing migratory bird habitat, increasing impacts to grassland birds, and decreasing or preventing wildlife observation and photography opportunities for priority public users, is not an appropriate or legitimate use of resource dollars.

Public Review and Comment: The draft Compatibility Determination was advertised with a public notice in two daily and one weekly newspaper with wide local distribution. The draft determination was posted on the Refuge web site until the Department of the Interior was disconnected from the Internet on December 5, 2001, due to a court order. Notices of the determination were also posted at the Refuge kiosk, the Shawangunk Town Supervisor’s office, and the Wallkill Library. Copies of the draft Compatibility Determination were mailed to stakeholders, Congressman Benjamin A. Gilman, and Congressman Maurice D. Hinchey. The draft determination was available for public review for 75 days.

A total of 2,343 written comments were received. Of these, 222 were in favor of the Service position and 2,121 were opposed. Approximately 1,650 comments received were form letters expressing dissatisfaction with the content of the draft determination and requesting reconsideration of the Service’s position.

Comments addressed 14 primary issues, including concern over the impact of model airplane activities to wildlife, impact of model airplane flying on the quality of experience for Refuge visitors, diversion of Service resources to accommodate use, precedent set for model airplane flying throughout the National Wildlife Refuge System, and effect of model airplane flying on Refuge neighbors. Other issues addressed included contention over model plane flying practices or techniques and intensity of past use by modelers.

Several comments described observations of wildlife using flying areas simultaneous with model airplane enthusiasts. However, the vast majority of these observations were of species that are very adaptable and tolerant of human disturbance, including Canada goose, red-tailed hawk, American kestrel, turkey vulture, wild turkey, killdeer, barn swallow, raccoon, red fox, coyote, woodchuck, and whitetail deer.

Many comments disputed the anticipated impacts of model airplane flying upon wildlife, stating that the Galeville Army Training Facility supported a thriving bird community during the 26 year period that the site was used for model airplane flying, including the assemblage of grassland

fERP22ƒh—w—ngunk2x—tion—l2‡ildlife2‚efuge wodel2eirpl—ne2plying2—nd2wodel2eirpl—ne2gompetitive2ivents bird species that currently occurs on the Refuge. However, model airplane advocates have not proven that negative impacts, such as decrease in nest productivity, did not occur. Presence of an adult alone is not an indication of successful nesting or undisturbed feeding or resting.

Several individuals questioned the calculation of costs associated with individual use and model airplane competitions. The cost of these calculations has been modified to increase the cost of biological monitoring and law enforcement and the size of the parking area needed, based on a more accurate, though probably still conservative, estimate of the level of use (based on information received from model airplane representatives). The cost has been decreased to eliminate charges for garbage collection and port-a-potty rentals during competitive events. These costs have historically been paid by the model airplane clubs and would continue to be the responsibility of the organizing club.

Many comments related cooperative use of areas administered by agencies or organizations with missions similar to the National Wildlife Refuge System. These comments are reviewed on pages 9 and10. Several comments questioned the allowance of hunting while disallowing model airplane use. This topic is discussed on page 10.

A portion of the comments described illegal activities. Some described poor behavior or offenses of model airplane enthusiasts, including trespass onto private property, and destruction of private property. Some comments expressed that the Service is not enforcing current regulations prohibiting hunting and ATVs on the Refuge and that these abuses are more harmful to wildlife than model airplane activities. However, the Refuge is regularly patrolled by law enforcement staff and these violations are rare. Further, this disturbance is minor compared to historic use of the site for model airplane activities and competitive events.

Determination:

___x___Use is Not Compatible ______Use is Compatible With the Following Stipulations

Stipulations Necessary to Ensure Compatibility: No stipulations can be developed to ensure compatibility of this activity with the purpose of the Refuge or the National Wildlife Refuge System.

Justification: Model airplane flying and competitions are not compatible uses and will not be allowed on the Refuge. Both have direct and indirect effects on the wildlife being managed at the Refuge and the visiting public seeking a wildlife-dependant experience. More importantly, no evidence exists that the activities of modelers had no impact upon the nesting productivity of these grassland birds or wintering raptors. Clearly, sound professional judgment indicates that hundreds of people using the site through the nesting season, flying predator-shaped objects, and walking and riding motorized vehicles through fields would have a negative impact upon the breeding productivity of grassland birds. Several of the species using this Refuge are state-listed

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Berger, A. J. 1968. Pooecetes gramineus gramineus (Gmelin) eastern vesper sparrow. Pages 868-882 in O. L. Austin, JR. editor. Life histories of North American cardinals, grosbeaks, buntings, towhees, finches, sparrows, and allies. Part 2. Smithsonian Institution Press, U.S. National Museum Bulletin 237.

Bowen, D. E. 1976. Coloniality, reproductive success, and habitat interactions in upland sandpipers, Bartramia longicauda. Dissertation, Kansas State University, Manhattan, Kansas, USA.

Buffington, G. K. 1989. Correspondence to Geoff Styles, Director of Public Relations, Academy of Model Aeronautics. State of Colorado, Division of Parks and Outdoor Recreation (02/01/1989).

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Coues, E. 1874. Birds of the Northwest. Government Printing Office, Washington, D.C., USA.

Crossman, T. I. 1989. Habitat use of grasshopper and savannah sparrows at Bradley International Airport and management recommendations. Thesis, University of Connecticut, Storrs, Connecticut, USA.

Davis, R. A. and A. L. Wiseley. 1974. Normal behaviour of snow geese on the Yukon-Alaska north slope and the effects of aircraft-induced disturbance on this behaviour, September 1973. Arctic Gas Biological Report Series 27:1-85.

Dorosh, P. 2002. Correspondence to Steven Kahl, U.S. Fish and Wildlife Service, Wallkill River National Wildlife Refuge. President, Brooklyn Bird Club (02/06/2002).

Eaton, S. W. 1988a. Short-eared owl Asio flammeus. Pages 210-211 in R. F. Andrle and J. R. Carroll editors. The atlas of breeding birds in New York State. Cornell University Press, Ithaca, NewYork, USA.

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_____. 1988b. Henslow’s sparrow Ammodramus henslowii. Pages 450-451 in R. F. Andrle and J. R. Carroll editors. The atlas of breeding birds in New York State. Cornell University Press, Ithaca, NewYork, USA.

Forbush, E. H. 1912. A history of game birds, wild-fowl, and shore birds of Massachusetts and adjacent states. Massachusetts State Board Agriculture, Boston, Massachusetts, USA.

Gladwin, D. N., D. A. Asherin, and K. M. Manci. 1987. Effects of aircraft noise and sonic booms on fish and wildlife: results of a survey of U.S. Fish and Wildlife Endangered Species and Ecological Services Field Offices, Refuges, Hatcheries, and Research Centers. NERC-88/30. U.S. Fish and Wildlife Service, National Ecology Research Center, Fort Collins, Colorado, USA.

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Martin, S. G. and T. A. Gavin. 1995. Bobolink (Dolichonyx oryzivorus). In A. Poole and F. Gill editors. The birds of North America. Number 176. The Academy of Natural Sciences, Philadelphia, Pennsylvania, USA, and The American Ornithologists’ Union, Washington, D.C., USA.

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Porutski, R. 1996. Correspondence to Donald Ross, East Coast Free Flight Conference. State of New Jersey, Department of Environmental Protection, Division of Fish, Game and Wildlife, Central Region Office (9/27/1996).

hr—ft2gg€2E2xovem˜er2PHHS fERU eppendix2f2–2gomp—ti˜ility2hetermin—tions

Potter, P. E. 1974. Breeding behavior of savannah sparrows in southeastern Michigan. Jack- Pine Warbler 52:50-63.

Radio Club of Rochester (AMA Charter 465). 2001. Noise Recommendations. Http://home.rochester.rr.com/start.html.

Rawinski, T. J. and R. A. Malecki. 1984. Ecological relationships among purple loosestrife, cattail and wildlife at the Montezuma National Wildlife Refuge. New York Fish and Game Journal 31:81-87.

Robbins, C. S., D. Bystrak, and P. H. Geissler. 1986. The Breeding Bird Survey: its first fifteen years, 1965-1979. U.S. Fish and Wildlife Service Resource Publication 157.

Roberts, T. S. 1932. The birds of Minnesota. Volume 2.

Ross, D. 1996. Correspondence to Senator Alfonse D’Amato. East Coast Free Flight Conference.

Sauer, J. R., J. E. Hines, G. Gough, I. Thomas, and B. J. Peterjohn. 1997. The North American Breeding Bird Survey results and analysis. Version 96.4. Patuxent Wildlife Research Center, Laurel, Maryland, USA. Http://www.mbr-pwrc.usgs.gov/bbs/bbs.html (12/1999).

Saunders, A. A. 1913. Some notes on the nesting of the short-eared owl. Condor 15:121-125.

Saunders, M. B. 1986. Food provisioning of nesting northern harriers (Circus cyaneus) during a year of low vole abundance on the Tantramar Marsh, New Brunswick. Thesis, Mount Allison University, Sackville, New Brunswick, Canada.

Scarlatelli, K R. 1996. Site survey report: runway facilities Galeville Army training site. Northeast Environmental Management Systems, Lodi, New Jersey, USA.

_____. 2002. Response to the U.S. Fish and Wildlife Service’s draft Compatibility Determination on model airplane flying and model airplane competitive events at the Shawangunk Grasslands National Wildlife Refuge. Northeast Environmental Management Systems, Lodi, New Jersey, USA.

Serrentino, P. 1992. Northern harrier, Circus cyaneus. Pages 89-117 in K. J. Schneider and D. M. Pence editors. Migratory nongame birds of management concern in the Northeast. U.S. Department of the Interior, Fish and Wildlife Service, Newton Corner, Massachusetts, USA.

fERV22ƒh—w—ngunk2x—tion—l2‡ildlife2‚efuge wodel2eirpl—ne2plying2—nd2wodel2eirpl—ne2gompetitive2ivents

Simmons, R. E. 1983. Polygyny, ecology and mate choice in the northern harrier Circus cyaneus (L.). Thesis, Acadia University, Wolfville, Nova Scotia, Canada.

Smith, D. G., D. H. Ellis, and T. H. Johnson. 1988. Raptors and aircraft. Pages 360-367 in R. L. Glinski et al. editors. Proceedings of the Southwest raptor management symposium and workshop. National Wildlife Federation, Washington, DC, USA.

Smith, G. A. 1988. Northern Harrier Circus cyaneus. Pages 102-103 in R. F. Andrle and J. R. Carroll editors. The atlas of breeding birds in New York State. Cornell University Press, Ithaca, NewYork, USA.

Smith, R. H. 1964. Experimental control of purple loosestrife (Lythrum salicaria). New York Fish and Game Journal 11:35-46.

Smith, R. L. 1968. Ammodramus savannarum (Gmelin) grasshopper sparrow. Pages 725-742 in O. L. Austin, Jr. editor. Life histories of North American cardinals, grosbeaks, buntings, towhees, finches, sparrows, and allies. Part 2. Smithsonian Institution Press, U.S. National Museum Bulletin 237.

Smith, W. P. 1968. Passerhubulus henslowii susurrans Brewster eastern Henslow’s sparrow. Pages 776-778 in O. L. Austin, Jr. editor. Life histories of North American cardinals, grosbeaks, buntings, towhees, finches, sparrows, and allies. Part 2. Smithsonian Institution Press, U.S. National Museum Bulletin 237.

Sordahl, T. A. 1981. Predator-mobbing behavior in the shorebirds of North America. Wader Study Group Bulletin 31:41-44.

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Stuckey, R. L. 1980. Distributional history of Lythrum salicaria (purple loosestrife) in North America. Bartonia 47:3-20.

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Urner, C. A. 1921. Short-eared owl nesting at Elizabeth, N. J. Auk 38:602-603.

_____. 1923. Notes on the short-eared owl. Auk 40:30-36.

Vickery, P. D. 1996. Grasshopper sparrow (Ammodramus savannarum). In A. Poole and F. Gill editors. The birds of North America. Number 239. The Academy of Natural Sciences, Philadelphia, Pennsylvania, USA, and The American Ornithologists’ Union, Washington, D.C., USA.

Ward, D. H. and R. A. Stehn. 1989. Response of brant and other geese to aircraft disturbance at Izembek Lagoon, Alaska. Final Report by the U.S. Fish and Wildlife Service, Alaska Fish and Wildlife Research Center for the U.S. Minerals Service.

Watson, D. 1977. The hen harrier. T.E.A.D. Poyser, Ltd., Berkhamsted, Hertfordshire, England.

Wells, J. V. 1998. Important Bird Areas in New York State. National Audubon Society, Albany, New York, USA.

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Welsh, D. A. 1975. Savannah sparrow breeding and territoriality on a Nova Scotia dune beach. Auk 92:235-251.

Wheelwright, N. T. and J. D. Rising. 1993. Savannah sparrow (Passerculus sandwichensis). In A. Poole and F. Gill editors. The birds of North America. Number 45. The Academy of Natural Sciences, Philadelphia, Pennsylvania, USA, and The American Ornithologists’ Union, Washington, D.C., USA.

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APPENDIX: Organizations and agencies submitting comments on the draft Compatibility Determination on model airplane flying and model airplane competitive events at Shawangunk Grasslands National Wildlife Refuge.

Supporting Audubon New York American Birding Association Buffalo Audubon Society Brooklyn Bird Club Defenders of Wildlife Edgar A. Mearns Bird Club Federation of New York State Bird Clubs Friends of the Shawangunks Fyke Nature Association Genesee Valley Audubon Society Great South Bay Audubon Society John Burroughs Natural History Society The Linnaean Society Lyman Langdon Audubon Society National Audubon Society National Wildlife Refuge Association New Jersey Audubon Society New Jersey Department of Environmentat Protection Division of Fish and Wildlife, Endangered and Nongame Species Program New Jersey Environmental Lobby New York City Audubon Society New York State Department of Environmental Conservation Division of Fish, Wildlife and Marine Resources, Region 3 Division of Fish, Wildlife and Marine Resources, Endangered Species Unit North Shore Audubon Society Northern Catskills Audubon Society Orange County Audubon Society Public Employees for Environmental Responsibility Putnam Highlands Audubon Society Queens County Bird Club Ralph T. Waterman Bird Club Rockland Audubon Society SUNY - College of Environmental Science and Forestry Birding Club Wallkill River Task Force Webster Groves Nature Study Society

189 letters from individuals

OPPOSED

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Academy of Model Aeronautics Auburn - Finger Lakes Radio Control Club Barons Model Club Brooklyn Skyscrapers Model Aeroplane Club Button Valley Bombers The Charles River Radio Control Club East Coast Free Flight Conference Englewood Flyers Flying Dutchmen Aeromodelers Hillsdale Flyers Hilltop Radio Control Club International Miniature Aircraft Association Islip Model Aviation Society Kent County Aeromodelers Keystone Radio Control Society Meroke Radio Club Milwaukee Association of Radio Control Clubs New England Sport Scale Association Ocean County Modelers Oregon Department of Fish and Wildlife Pennsylvania Fun Flyers Pinkham Field Irregulars Rondout Valley Flyers Society of Antique Modelers Spirits of St. Louis Radio Control Flying Club Sullivan Orange Ulster Radio Society Top of New Jersey Tuscon Free Flight Club Valley Radio Control Flying Club Vidalia Sky Vikings Radio Control Club York Area Radio Control Club

1650 form letters from individuals

440 individual letters

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Academy of Model Aeronautics Auburn - Finger Lakes Radio Control Club Barons Model Club Brooklyn Skyscrapers Model Aeroplane Club Button Valley Bombers The Charles River Radio Control Club East Coast Free Flight Conference Englewood Flyers Flying Dutchmen Aeromodelers Hillsdale Flyers Hilltop Radio Control Club International Miniature Aircraft Association Islip Model Aviation Society Kent County Aeromodelers Keystone Radio Control Society Meroke Radio Club Milwaukee Association of Radio Control Clubs New England Sport Scale Association Ocean County Modelers Oregon Department of Fish and Wildlife Pennsylvania Fun Flyers Pinkham Field Irregulars Rondout Valley Flyers Society of Antique Modelers Spirits of St. Louis Radio Control Flying Club Sullivan Orange Ulster Radio Society Top of New Jersey Tuscon Free Flight Club Valley Radio Control Flying Club Vidalia Sky Vikings Radio Control Club York Area Radio Control Club

1650 form letters from individuals

440 individual letters

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ShawangunkMap C-1 Shawangunk Grasslands Grasslands National National Wildlife Wildlife Refuge Refuge Ulster County, New York

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n x—tion—l2‡ildlife2‚efuge2ƒystem2edministr—tive2e™t2of2IWTT2—s2—mended2˜y2the2x—tion—l2‡ildlife ‚efuge2ƒystem2smprovement2e™t2of2IWWUD2IT2 FƒFgF2TTVdd2et2seqFX2defines2the2x—tion—l ‡ildlife2‚efuge2ƒystem2—s2in™luding2wildlife2refugesD2—re—s2for2the2prote™tion2—nd2™onserv—tion2of fish2—nd2wildlife2whi™h2—re2thre—tened2with2extin™tionD2wildlife2r—ngesD2g—me2r—ngesD2wildlife m—n—gement2—re—s2—nd2w—terfowl2produ™tion2—re—sF22st2—lso2est—˜lishes2—2™onserv—tion2mission2for the2‚efuge2ƒystemD2defines2guiding2prin™iples2—nd2dire™ts2the2ƒe™ret—ry2of2the2snterior2to2ensure th—t2˜iologi™—l2integrity2—nd2environment—l2he—lth2of2the2system2—re2m—int—ined2—nd2th—t2growth2of the2system2supports2the2missionF

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n hep—rtment—l2w—nu—l2@snteriorAD2€—rt2WIH2hwD2gh—pter2ID2‡ildfire2ƒuppression2w—n—gement @w—r™h2PWD2IWWHAX2defines2hep—rtment2of2snterior2pire2w—n—gement2€oli™iesF

n x—tion—l2invironment—l2€oli™y2e™t2of2IWTWX22regul—tions2implementing2the2x—tion—l2invironment—l €oli™y2e™t2@xi€eA2en™our—ges2the2™om˜in—tion2of2environment—l2™omments2with2other2—gen™y do™uments2to2redu™e2dupli™—tion2—nd2p—perwork2@RH2gp‚2ISHHFR@oA2—nd2ISHTFRAF

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n peder—l2pire2w—n—gement2poli™y2of2IWWS

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n pire2m—n—gement2—™tivities2will2˜e2™ondu™ted2on2—n2inter—gen™y2˜—sis2with2the2involvement2of2—ll p—rtners2when2—ppropri—teF

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n w—int—in2fuel2lo—dings2within2the2n—tur—l2r—nges2@determined2˜y2fuel2typeAF

n eid2in2™ontrol2of2inv—sive2pl—nts2—nd2weeds2th—t2™ontri˜ute2to2the2fuel2lo—dF PF ennu—l2€rep—r—tion „he2‚efuge2w—n—gerD2in2™onsult—tion2with2the2‡ildlife2fiologist2—nd2one2€res™ri˜ed2pire2ƒpeE ™i—list2or2pire2w—n—gement2yffi™er2will2formul—te2the2—nnu—l2pres™ri˜ed2fire2progr—mF2„he2results of2this2pl—nning2effort2will2˜eX

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n „he2—nnu—l2t—rget2—™re—ge2s™heduled2for2tre—tmentF

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n ‚efuge2w—n—gerX22„he2‚efuge2w—n—ger2is2responsi˜le2for2the2full2r—nge2of2m—n—gement2duties within2the2‚efuge2in™luding2fire2m—n—gement2—™tivities2th—t2implement2—n2effe™tive2fire2m—n—gement progr—mF22eppropri—te2—™tion2will2˜e2t—ken2˜y2the2‚efuge2w—n—ger2for2fires2on2or2—dj—™ent2to ‚efuge2l—ndsF22‚el—ted2fire2m—n—gement2—™tivities2in™lude2deleg—tion2of2—uthorityD2design—tion2of resour™e2—dvisors2on2in™identsD2implementing2extended2initi—l2—tt—™k2org—niz—tionsD2developing ™ooper—tive2—greements2with2lo™—l2fire2dep—rtments2—nd2st—te2—gen™iesD2—nd2—uthorizing2the2use2of vehi™les2—nd2he—vy2equipment2within2design—ted2resour™e2sensitive2—re—s2of2the2‚efugeF

n ‚efuge2‡ildlife2fiologistX22e™ts2—s2‚esour™e2edvisor2on2initi—l2—nd2extended2—tt—™k2or2proje™t2size wildfiresF

n ‚egion—l2pire2w—n—gement2fr—n™h2ghief2@‚pwgAX22€rovides2™oordin—tionD2tr—iningD2ev—lu—tionD —nd2te™hni™—l2guid—n™eD2—s2requestedD2to2the2‚efuge2st—ffD2—pproves2fire2prep—redness2—nd2fuels tre—tment2˜udget2requestsF22„he2‚pwg2will2˜e2informed2of2—ll2wildfire2suppression2—™tivity o™™urring2on2the2‚efuge2through2the2one2pwyF

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n gomprehensive2inventory2—nd2—ssessment2of2the2‚efuge’s2h—z—rd2fuelsD2—nd2the2identifi™—tion2—nd prioritiz—tion2of2h—z—rd2fuel2unitsF

n essessment2of2h—z—rd2fuel2m—n—gement2optionsD2—nd2their2effe™ts2upon2‚efuge2resour™e2o˜je™tives

n essessment2of2long2—nd2short2term2fire2effe™ts2in2the2h—˜it—ts2of2the2‚efuge2with2re™ommend—tions2for tre—tment2—™tivitiesF

n essessment2of2tre—tment2—ffe™ts2monitoring2needs2—nd2prep—r—tion2of2monitoring2pl—nF

eF wonitoring2—nd2‚ese—r™h „he2effe™ts2of2fuel2tre—tments2upon2the2‚efuge’s2pl—nt2—nd2—nim—l2popul—tion’s2needs2to2˜e2˜etter understoodF2„hrough2—pplied2rese—r™h2—nd2™—reful2—ppli™—tion2nonEfire2tre—tmentsD2d—t—2™olle™ted2™—n

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n winimum2levels2@photopointsA

n sntermedi—te2@x€ƒ2pire2iffe™ts2wonitoring2r—nd˜ookA

n †olumeGweight2removed2me—surements

n w—ximum2levels2–2integr—te2with2other2refuge2monitoring2progr—ms2to2support2—d—ptive m—n—gementF

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n signifi™—nt2injuryG—™™ident

n signifi™—nt2property2or2resour™e2d—m—ge

n signifi™—nt2s—fety2™on™erns

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pERR22ƒh—w—ngunk2qr—ssl—nds2x—tion—l2‡ildlife2‚efuge

Shawangunk Grasslands National Wildlife Refuge c/o Wallkill River Refuge 1547 County Route 565 Sussex, NJ 07461 E-Mail: [email protected] Phone: 973/702 7266 http://shawangunk.fws.gov

Federal Relay Service for the deaf or hard of hearing 1800/877 8339

U.S. Fish and Wildlife Service Website http://www.fws.gov

For National Wildlife Refuge System Information: 1800/344 WILD

November 2005