[Federal Register Volume 72, Number 65 (Thursday, April 5, 2007)]
[Notices]
[Pages 16811-16815]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E7-6346]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service


Notice of Availability of the Draft Comprehensive Conservation 
Plan and Environmental Assessment for Wheeler National Wildlife Refuge 
Complex in Limestone, Madison, and Morgan Counties, AL

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice of availability.

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SUMMARY: We, the Fish and Wildlife Service, announce that a Draft 
Comprehensive Conservation Plan and Environmental Assessment (Draft 
CCP/EA) for Wheeler National Wildlife Refuge Complex is available for 
review and comment. The National Wildlife Refuge System Administration 
Act of 1966, as amended by the National Wildlife Refuge System 
Improvement Act of 1997, requires the Service to develop a CCP for each 
national wildlife refuge. This Draft CCP, when final, will describe how 
we intend to manage the

[[Page 16812]]

Wheeler National Wildlife Refuge Complex over the next 15 years.

DATES: To ensure consideration, we must receive your comments no later 
than May 7, 2007.

ADDRESSES: Send your comments or requests for more information to: John 
Beck, Natural Resource Planner, Wheeler National Wildlife Refuge 
Complex, 2700 Refuge Headquarters Road, Decatur, AL 35603; Telephone 
256/353-7243 ext. 32. Your comments may be sent electronically to: 
[email protected] with a subject line, ``Draft CCP Comments: Wheeler 
NWR Complex.'' The Draft CCP/EA may be accessed and downloaded from the 
Service's Internet Web site http://southeast.fws.gov/planning/.

SUPPLEMENTARY INFORMATION: The Wheeler National Wildlife Refuge Complex 
is currently comprised of seven refuges, spreading across 12,500 square 
miles of northern Alabama. In addition, the Wheeler Complex administers 
five Farm Service Agency conservation easement tracts. This draft plan 
covers four of the seven refuges. These refuges and their establishing 
dates are as follows: Wheeler (1938); Key Cave (1997); Sauta Cave, 
formerly known as Blowing Wind Cave (1978); and Fern Cave (1981). The 
other three refuges, Cahaba River (2002), Mountain Longleaf (2003), and 
Watercress Darter (1980), will be addressed at a later date in a 
separate comprehensive conservation plan.
    Wheeler Refuge is located among the cities of Athens, Decatur, and 
Huntsville. The refuge was established in 1938 by Executive Order 7926 
as a breeding ground for migratory birds and other wildlife. Additional 
purposes were added later under the authorities of the Migratory Bird 
Conservation Act of 1929, and the Refuge Recreation Act of 1962. This 
37,000-acre refuge is overlaid on the middle third of the Tennessee 
Valley Authority's Wheeler Reservoir with property in Limestone, 
Madison, and Morgan Counties. Refuge lands were acquired in 1934 and 
1935 by the Tennessee Valley Authority to serve as a buffer strip for 
the reservoir, which was impounded a year later in 1936.
    Considered the eastern most national wildlife refuge in the 
Mississippi Flyway, Wheeler provides winter habitat for the state's 
largest duck population and formerly supported the southernmost and 
Alabama's only major concentration of wintering Canada geese. Snow 
geese are now the most prominent component of the winter goose 
population.
    The refuge consists of approximately 25,950 acres of land and 
11,250 acres of water. Habitats consist of bottomland hardwoods, mixed 
hardwoods, pine uplands, shallow water embayments, and agricultural 
fields that support interesting flora; a bird list of 288 species; and 
a wide variety of mammals, reptiles, amphibians, and fishes. It is well 
developed with more than 100 miles of graveled roads, 2,500 acres of 
managed wetlands, a modern Headquarters Complex with a large Visitor 
Center and a Waterfowl Observation Building. Approximately 700,000 
visitors are reported annually.
    Key Cave Refuge was established in 1997 under the authority of the 
Fish and Wildlife Act of 1956, the Endangered Species Act of 1973, and 
the National Wildlife Refuge Administration Act of 1966 to ensure that 
the biological integrity of Key Cave, Collier Cave, and Collier Bone 
Cave remains intact. Key Cave is the only known refuge for the 
federally endangered Alabama cavefish (Speoplatyrhinus poulsoni). It is 
on the northern shore of Pickwick Lake in a limestone karst area that 
contains numerous sinkholes and several underground cave systems. The 
area's sinkholes are an integral component of groundwater recharge to 
the caves.
    Prior to 1992, the Monsanto Company owned a large 1,060-acre-tract 
of land just north of Key Cave and about five miles southwest of 
Florence, Lauderdale County, Alabama, in the high hazard risk area of 
the Key Cave Aquifer. In 1992 the company sold this tract to The 
Conservation Fund. Five years later, the Service acquired the land and 
established Key Cave Refuge.
    In addition to the Alabama cavefish, Key Cave Refuge also serves as 
a priority one maternity cave for the federally endangered gray bat 
(Myotis grisescens), as well as habitat for two species of blind 
crayfish (Procambarus pecki and Cambarus jonesi). Collier Cave, located 
approximately 1.5 miles upstream from Key Cave, and Collier Bone Cave 
are also considered potential habitat for these cave species. Cave 
entrances are located on Tennessee Valley Authority lands on the 
northern shore of Pickwick Lake. Furthermore, the refuge provides 
habitat for a variety of migratory and resident wildlife species. 
Several priority bird species commonly occurring on the refuge include: 
dickcissel, grasshopper sparrow, field sparrow, northern bobwhite, 
northern harrier, and short-eared owl.
    Sauta Cave Refuge, known as Blowing Wind Cave Refuge until 1999, 
lies just above the Sauty Creek embayment of the Tennessee Valley 
Authority's Guntersville Reservoir, seven miles west of Scottsboro, 
Jackson County, Alabama. The refuge consists of 264 acres of hardwood 
forest established in 1978 under the authority of the Endangered 
Species Act of 1973 to provide protection for the federally endangered 
gray bat and the Indiana bat (Myotis sodalis) and their crucial 
habitat. The cave provides a summer roosting site for about 300,000-
400,000 gray bats and a winter hibernaculum for both bats.
    Besides the endangered bats, many other species occur in the cave, 
including the Tennessee cave salamander (Gyrinophilus palleucus) and 
the cave salamander (Eurycea lucifuga). Additionally, a relatively 
large population (>250 individuals) of Price's potato-bean (Apios 
priceana), a federally threatened plant species, is found on the 
refuge. The cave has upper and lower gated entrances and 14,628 feet of 
mapped passage. Formations in the lower cave have been described as 
spectacular and petroglyphs have been found on the cave ceilings. The 
cave was used as a saltpeter mine during the civil war, a nightclub 
during the 1920s, and a fallout shelter during the 1960s. All 264 acres 
of habitat outside of the cave are predominately hardwood forest.
    Fern Cave Refuge was established in 1981 under the authority of the 
Endangered Species Act of 1973 to provide protection for the endangered 
gray bat and the Indiana bat. The refuge is 20 miles west of Scottsboro 
and two miles northeast of Paint Rock in Jackson County, Alabama, and 
consists of 199 acres of forested hillside underlain by a massive cave 
with many stalactite- and stalagmite-filled rooms. An additional 299 
acres of land are included in the approved acquisition boundary of the 
refuge.
    The cave itself has five hidden entrances, with four of these 
currently occurring on the refuge. The fifth entrance (Surprise Pit) is 
within the approved acquisition boundary for the refuge. Recent 
estimates indicate that one million gray bats hibernate in the cave, 
making it the largest wintering colony of gray bats in the United 
States. In the past, the threatened American Hart's-tongue fern 
(Phyllitis scolopendrum var. americana) has been found on the refuge.
    Significant issues addressed in the draft plan include: threatened 
and endangered species conservation; waterfowl management; wildlife 
monitoring and population surveys, invasive/exotic species control; 
bottomland hardwood restoration; agriculture; visitor services (e.g., 
hunting, fishing, wildlife observation, wildlife photography, and

[[Page 16813]]

environmental education and interpretation); funding and staffing; 
cultural resources protection; land and visitor protection; urban 
encroachment; and water quality issues. We developed four alternatives 
for managing the Wheeler Complex and chose Alternative D as the 
proposed alternative. These alternatives are briefly described as 
follows:
    Alternative A, the no-action alternative, would continue current 
Complex management practices. We would not initiate any significant 
changes. Management emphasis would continue to focus on maintaining 
biological integrity of habitats found on each refuge in the Complex. 
All management actions would be directed towards achieving the 
Complex's primary purposes, including (1) conserving wintering 
waterfowl habitat; (2) meeting the habitat conservation goals of 
national and international plans; and (3) conserving wetlands, all 
while contributing to other national, regional, and state goals to 
protect and restore migratory birds, threatened and endangered species, 
and resident species. Alternative A represents the anticipated 
conditions of each refuge for the next 15 years assuming current 
policies, programs, and activities continue.
    Refuge management programs would continue to be developed and 
implemented with limited baseline biological information. Active 
habitat management would be conducted through water level manipulations 
and moist-soil, cropland, and forest management designed to provide a 
diverse complex of habitats that meets the foraging, resting, and 
breeding requirements for a variety of species. Hunting and fishing 
would continue to be major focuses of the public use program, with no 
expansion of current opportunities. Current restrictions or 
prohibitions would remain. Environmental education, wildlife 
observation, and wildlife photography would be accommodated at present 
levels.
    Alternative B would maximize compatible wildlife-dependent public 
use. It would provide for more public use recreational opportunities, 
while maintaining current habitat and wildlife management programs. 
Additional staff and/or resources would be dedicated to increasing 
compatible wildlife-dependent public use opportunities. Most habitat 
management programs, including the cooperative farming program, would 
continue; however, habitat improvement projects that would benefit 
compatible wildlife-dependent public use opportunities would be given a 
higher priority. Law enforcement activities to provide visitor safety 
would be intensified.
    Under this alternative, hunting and fishing opportunities would be 
expanded. At Wheeler Refuge, the number of hunting days for small game 
would be increased within the state hunting season framework and two 
additional youth fishing rodeos would be held annually. The 2,000 acres 
around Garth Slough, presently closed to all public entry from November 
15 through January 15, would be evaluated for the possible opening of 
portions of the upland areas to public access under existing gate 
closure policy; thereby providing additional hunting and other public 
use opportunities. In addition, the hunting of feral hogs would be 
allowed during both the large game and small game seasons. At Key Cave 
Refuge, feral hogs would be added to the hunting permit and other 
hunting opportunities would be explored annually.
    Increased wildlife observation and photography opportunities would 
result from the construction of nine new visitor facilities (e.g., 
three photo blinds, three wildlife observation towers, a wildlife 
viewing platform, a nature trail, and a wildlife drive) and the 
rehabilitation of existing visitor facilities. Environmental education 
and interpretation would be expanded by increasing the number of off-
refuge programs with local schools and by constructing a new 
environmental education center at Wheeler Refuge. New informational 
brochures would be published for Key Cave, Sauta Cave, and Fern Cave 
Refuges and visitor access would be improved at Sauta Cave Refuge.
    Additional resources would be required to accomplish the goals of 
this alternative. Personnel priorities would include employing 
additional education specialists, wildlife biologists, a law 
enforcement officer, and an education coordinator.
    Alternative C would maximize wildlife/habitat management by 
providing for the restoration of native wildlife, fish, and plant 
communities and the health of those communities, while maintaining 
current public use opportunities. Federally listed species would be of 
primary concern, but needs of other resident and migratory wildlife 
would also be considered. At each refuge, extensive wildlife, plant, 
and habitat inventories would be initiated to obtain the biological 
information needed to implement and monitor management programs.
    Studies necessary to reduce impacts of contaminants to fish, 
wildlife, and plants would be developed and a complex-wide litter 
control program would be initiated. Research would also be initiated to 
explore methods for increasing conservation efforts for threatened and 
endangered species on Key Cave, Sauta Cave, and Fern Cave Refuges.
    Habitat management programs for waterfowl impoundments, old field, 
cropland, grassland, and forests would be re-evaluated and step-down 
management plans would be developed or updated to meet the foraging, 
resting, and breeding requirements for a variety of species, 
particularly migratory birds. Any areas within the Complex with pumping 
capabilities and water control structures would be managed for moist-
soil vegetation, or would be farmed (with 100 percent of crops left 
standing) to benefit migratory waterfowl. Cooperative farming would be 
eliminated and all farming activities would be conducted via contracts 
or force account using Complex staff and equipment. Farming fields 
would be planted in milo, corn, or soybeans (in order of preference) 
and flooded during the late fall and winter. Beaver control would be 
increased by expanding the contract with USDA's Wildlife Services and 
forestry management would be increased.
    Law enforcement activities to protect trust resources would be 
intensified and a study to analyze the impacts of existing rights-of-
way on refuge resources would be initiated. Results would determine if 
current Complex policy concerning easements should be altered. 
Coordination with local planning and zoning departments would be 
increased to help minimize encroachment from urbanization.
    Under this alternative, the priority of land acquisition at Fern 
Cave Refuge would remain focused on acquiring land surrounding the 
fifth cave entrance (Surprise Pit). Based on recommendations from the 
Alabama Comprehensive Wildlife Conservation Strategy, we would explore 
methods to protect lands within the lower reaches of Piney and 
Limestone Creeks close to Wheeler Refuge and lands within the Key Cave 
high risk water recharge zone close to Key Cave Refuge.
    Compatible wildlife-dependent recreation activities would continue 
as currently scheduled, but only when and where they would not detract 
from, or conflict with, wildlife management activities and objectives. 
All Complex lands would be closed at night to the general public and 
select areas of high waterfowl use on Wheeler Refuge would be closed 
from November-March,

[[Page 16814]]

reducing acreages for public hunting and eliminating all night bank 
fishing.
    Administration plans would stress the need for increased 
maintenance of existing infrastructure and construction of new 
facilities, benefiting wildlife conservation. Additional resources 
would be required to accomplish the goals of this alternative. 
Personnel priorities would include employing additional wildlife 
biologists, biological technicians, maintenance workers, a law 
enforcement officer, a contamination specialist, and a forester.
    Alternative D, our proposed alternative, would balance wildlife/
habitat management and compatible wildlife-dependent public use. It was 
developed based on public comments received during scoping, and the 
best professional judgment of the Complex staff, biological review 
team, public use review team, and the comprehensive conservation 
planning team. Under this alternative, existing management activities 
would continue and some would be expanded.
    This alternative would strive for a balanced approach to addressing 
key issues and refuge mandates, while improving wildlife and habitat 
management on each refuge in the Complex. It is designed to optimize 
habitat management for the restoration and protection of the refuge's 
biological diversity, while providing a balance of appropriate and 
compatible wildlife-dependent recreational and educational programs for 
visitors. Under Alternative D, refuge lands would be more intensively 
managed than at present to provide high-quality habitat for wildlife, 
particularly migratory birds. Areas within the Complex with water 
control capabilities would be managed for moist-soil vegetation or 
would be force-account farmed (with 100 percent of crops left standing) 
to benefit migratory waterfowl. Cooperative farming fields would be 
planted in corn or soybeans (in order of preference) and flooded during 
the late fall and winter.
    Studies necessary to reduce impacts of contaminants on fish, 
wildlife, and plants would be developed and a complex-wide litter 
control program would be initiated. Research would also be initiated to 
explore methods for increasing conservation efforts for threatened and 
endangered species on Key Cave, Sauta Cave, and Fern Cave Refuges.
    A large majority of Complex lands would be closed at night and 
select areas of high waterfowl use on Wheeler Refuge would be closed 
from November-March, slightly reducing acreages for both public hunting 
and night bank fishing. However, all six improved boat launching 
facilities and several other designated night bank fishing areas would 
remain open at night. A free night fishing permit would be required. 
This action would help reduce illegal activities and human disturbance 
to wildlife.
    Habitat management programs for waterfowl impoundments, old field, 
cropland, grassland, and forests would be re-evaluated and step-down 
management plans would be developed or updated to meet the foraging, 
resting, and breeding requirements for a variety of species, 
particularly migratory birds.
    Law enforcement activities to protect resources and provide visitor 
safety would be intensified and a study to analyze the impacts of 
existing rights-of-way on resources would be initiated. Results would 
determine if current Complex policy concerning easements should be 
altered. Coordination with local planning and zoning departments would 
be increased to help minimize encroachment from urbanization. Under 
this alternative, the priority of land acquisition at Fern Cave Refuge 
would remain focused on acquiring land surrounding the fifth cave 
entrance (Surprise Pit). Based on recommendations from the Alabama 
Comprehensive Wildlife Conservation Strategy, we would explore methods 
to protect lands within the lower reaches of Piney and Limestone Creeks 
close to Wheeler Refuge and lands within the Key Cave high risk water 
recharge zone close to Key Cave Refuge.
    Hunting and fishing would continue with greater emphasis on 
increasing opportunities and enhancing the quality of the experience. 
At Wheeler Refuge, the number of hunting days for small game would be 
increased within the state hunting season framework and an additional 
youth fishing rodeo would be held annually. Feral hogs would be hunted 
during both the large game and small game seasons. At Key Cave Refuge, 
the hunting program would be evaluated annually. Results would dictate 
if the hunting program should be expanded or reduced.
    Increased wildlife observation and photography opportunities would 
result from the construction of four visitor facilities (e.g., a photo 
blind, a wildlife observation tower, a wildlife viewing platform, and a 
wildlife drive) and the rehabilitation of existing visitor facilities. 
Environmental education and interpretation would be expanded by 
increasing the number of off-refuge programs with local schools and by 
constructing an environmental education center at Wheeler Refuge. New 
informational brochures would be published for Key Cave, Sauta Cave, 
and Fern Cave Refuges and visitor access would be improved at Sauta 
Cave Refuge. Administration plans would balance restoration efforts 
between habitat management and public use needs. Additional resources 
would be required to accomplish the goals of this alternative. 
Personnel priorities would include employing additional wildlife 
biologists, biological technicians, maintenance workers, assistant 
managers, an education coordinator, a law enforcement officer, and a 
contamination specialist.
    Some management programs would occur regardless of which 
alternative is selected for implementation. Features or actions common 
to all four alternatives are identified and summarized below.
     Fish and Aquatic Species--Cooperation with the Alabama 
Division of Wildlife and Freshwater Fisheries for fisheries monitoring, 
implementing aquatic habitat improvement projects, and conducting game 
and non-game fish surveys would continue and increase as opportunities 
become available.
     Fire Management--Suppression of all wildland fires would 
continue. Prescribed fire may be used, in conjunction with other refuge 
management tools, to reduce hazard fuels, restore natural processes and 
vitality of ecosystems, improve wildlife habitat, remove or reduce non-
native species, and conduct research.
     Monitoring--Existing migratory bird monitoring, including 
waterfowl surveys, bald eagle surveys, Christmas bird counts, call 
counts, and breeding bird surveys, would continue. More specific 
monitoring activities may increase to meet other objectives.
     Research--Special use permits would be issued on a case-
by-case basis to universities, partners, and other interested parties 
to perform compatible, appropriate wildlife-related research and/or 
surveying. Research would continue to be encouraged to evaluate 
contaminant levels and their impacts on wildlife.
     Cultural Resource Protection--Current cultural resource 
protection efforts would continue, including a partnership with the 
Tennessee Valley Authority to conduct bank stabilization projects at 
Wheeler Refuge. Efforts to increase cultural resource protection 
through education and inventories would be explored.
     Partnerships--To aid and promote refuge management 
programs, currently established partnerships with agencies, 
organizations, and individuals would continue. Additional partnerships 
would be welcomed.
     Volunteer Program--The volunteer program would continue 
and would

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grow as more individuals become interested in volunteering.
     Private Lands Management--Technical assistance for private 
land management would continue to be offered through the Service's 
Partners for Fish and Wildlife Program. Efforts to expand the program 
would be explored.
     Restrictions/Limitations and Prohibitions--All-terrain 
vehicle use would continue to be prohibited on all refuges in the 
Complex. Key Cave, Sauta Cave, and Fern Cave Refuges would continue to 
be closed at night and horseback riding would continue to be prohibited 
on these satellite refuges.
    We will present the Draft CCP/EA to the public at a meeting to be 
held at Wheeler Refuge's Visitor Center on U.S. Highway 67, in Decatur, 
Alabama. Mailings, newspaper articles, and posters will be the avenues 
to inform the public of the date and time for the meeting. We will 
conduct the environmental review of this project in accordance with the 
requirements of the National Environmental Policy Act of 1969, as 
amended (42 U.S.C. 4321 et seq.); NEPA Regulations (40 CFR parts 1500-
1508); other appropriate Federal laws and regulations; and our policies 
and procedures for compliance with those regulations. All comments 
received become part of the official public record. Requests for such 
comments will be handled in accordance with the Freedom of Information 
Act NEPA (40 CFR 1506.6(f), and Departmental and Service policies and 
procedures.

    Authority: This notice is published under the authority of the 
National Wildlife Refuge System Improvement Act of 1997, Public Law 
105-57.

    Dated: February 8, 2007.
Cynthia K. Dohner,
Acting Regional Director.
[FR Doc. E7-6346 Filed 4-4-07; 8:45 am]
BILLING CODE 4310-55-P