[Federal Register Volume 73, Number 124 (Thursday, June 26, 2008)]
[Notices]
[Pages 36347-36350]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-14478]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

[FWS-R4-R-2008-N0137; 40136-1265-0000-S3]


Archie Carr National Wildlife Refuge, Brevard and Indian River 
Counties, FL

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice of availability: draft comprehensive conservation plan 
and environmental assessment; request for comments.

-----------------------------------------------------------------------

SUMMARY: We, the Fish and Wildlife Service (Service), announce the 
availability of a draft comprehensive conservation plan and 
environmental assessment (Draft CCP/EA) for Archie Carr National 
Wildlife Refuge for public review and comment. In this Draft CCP/EA, we 
describe the alternative we propose to use to manage this refuge for 
the 15 years following approval of the Final CCP.

DATES: To ensure consideration, we must receive your written comments 
by July 28, 2008.

ADDRESSES: Requests for copies of the Draft CCP/EA should be addressed 
to: Archie Carr National Wildlife Refuge, P.O. Box 6504, Titusville, FL 
32782-6504. Please indicate whether you would like a hardcopy or a 
compact diskette. The Draft CCP/EA may also be accessed and downloaded 
from the Service's Internet site: http://southeast.fws.gov/planning. 
You may also visit the refuge office at 1339 20th Street, Vero Beach, 
FL to obtain a copy. Comments on the Draft CCP/EA may be submitted to 
the above address or via electronic mail to: [email protected].

FOR FURTHER INFORMATION CONTACT: Cheri Ehrhardt, Natural Resource 
Planner; Telephone: 321/861-2368, or Joanna Webb, Park Ranger, Archie 
Carr National Wildlife Refuge; Telephone: 772/562-3909.

SUPPLEMENTARY INFORMATION:

Introduction

    With this notice, we continue the CCP process for Archie Carr 
National Wildlife Refuge. We started the process through a notice in 
the Federal Register on April 24, 2000 (65 FR 21784).
    The Archie Carr National Wildlife Refuge is administered under the 
Merritt Island National Wildlife Refuge Complex and co-managed with 
Pelican Island National Wildlife Refuge. Archie Carr Refuge is located 
along Florida's southeast coast between Melbourne Beach and Wabasso 
Beach in Brevard and Indian River Counties. Named after the famed sea 
turtle researcher, Dr. Archie F. Carr, the refuge was authorized in 
1989 and established in 1991 to conserve threatened and endangered 
wildlife, especially sea turtles. The refuge is more than 250 acres in 
size and supports hundreds of wildlife and plant species. In addition, 
the refuge provides protection for listed terrestrial species and 
native wildlife and habitat diversity across a mix of habitats, 
including maritime hammock and coastal scrub. The refuge consists of 
four segments spanning 20.5 miles and protects historical and 
archaeological sites. Several partners work with the Service to manage 
and protect wildlife and habitat along this stretch of the barrier 
island. A growing human population along with ongoing development and 
other human activities currently threaten the refuge.

Background

The CCP Process

    The National Wildlife Refuge System Improvement Act of 1997 (16 
U.S.C. 668dd-668ee), which amended the National Wildlife Refuge System 
Administration Act of 1966, requires us to develop a CCP for each 
national wildlife refuge. The purpose in developing a CCP is to provide 
refuge managers with a 15-year plan for achieving refuge purposes and 
contributing toward the mission of the National Wildlife Refuge System, 
consistent with sound principles of fish and wildlife management, 
conservation, legal mandates, and our policies. In addition to 
outlining broad management direction on conserving wildlife and their 
habitats, CCPs identify wildlife-dependent recreational opportunities 
available to the public, including opportunities for hunting, fishing, 
wildlife observation, wildlife photography, and environmental education 
and interpretation. We will review and update the CCP at least every 15 
years in accordance with the Improvement Act and NEPA.
    Significant issues addressed in the Draft CCP/EA include: Wildlife 
and habitat management, resource protection, visitor services, and 
refuge administration.

[[Page 36348]]

CCP Alternatives, Including Our Proposed Alternative

    We developed four alternatives for managing the refuge and chose 
Alternative B as the proposed alternative. A full description of each 
alternative is in the Draft CCP/EA. We summarize each alternative 
below.

Alternative A--No Action Alternative

    The refuge currently conducts limited management activities to 
protect sea turtles and other listed species; enhance biodiversity; and 
control exotic, invasive, and nuisance species.
    From March 1 through September 30, the refuge conducts daily sea 
turtle nest surveys along five miles of beach in Indian River County. 
Partners survey thirteen miles in Brevard County and three miles of the 
Sebastian Inlet State Park. Completion of the surveys is dependent upon 
volunteers and partners. Nest predation rates are targeted at less than 
10 percent, achieved through a combination of management techniques, 
including monitoring, trapping in target areas, and euthanizing 
nuisance animals. The refuge coordinates with Brevard and Indian River 
Counties and the Archie Carr Working Group to address lighting issues 
and unauthorized beach activities. The refuge also participates in 
stranded and injured sea turtle rescues. Further, the refuge annually 
supports about six sea turtle research studies on and around the 
refuge.
    Minimal southeastern beach mouse activities are conducted on the 
refuge, with occasional surveys conducted by researchers. However, the 
refuge is currently working with the Service's North Florida Ecological 
Services' Field Office, the University of Central Florida, and the Cape 
Canaveral Air Force Station to translocate beach mice from the Air 
Force Station to refuge-managed lands just north of Sebastian Inlet in 
an effort to reestablish an extirpated population. The refuge is 
working with Sebastian Inlet State Park to conduct habitat management 
and monitoring activities in support of the translocation efforts.
    The primary habitat management activity conducted by the refuge 
involves implementation of prescribed burns in scrub habitat on 5-year 
rotations. Fire suppression and prescribed burns are conducted by the 
Merritt Island National Wildlife Refuge fire crew in close coordination 
with Brevard County, Florida Park Service, and Florida Division of 
Forestry.
    Minimal refuge management activities address exotic, invasive, and 
nuisance species control beyond the trapping of raccoons in relation to 
sea turtle nest protection. Although volunteers annually treat about 
five acres of refuge lands for exotic plants, the partners are actively 
conducting exotic plant control efforts on their properties. The refuge 
also seeks grants to control invasive exotics.
    The refuge responds to cultural resource issues as they arise, 
coordinating with Merritt Island Refuge's law enforcement staff and the 
Regional Archaeologist. Currently, no law enforcement presence exists 
on the refuge, hence resource protection is minimal.
    All authorized visitor activities within the refuge originate on 
partner properties. Other than special tours and research activities 
and limited uses that occur in the small area above mean high water and 
below the vegetation along the shorelines, the refuge's properties are 
closed to public access. All fishing activities occur on and from 
partner properties, with some fishing occurring along the refuge's 
Indian River Lagoon and Atlantic Ocean shorelines; however, unapproved 
access currently occurs through closed refuge lands. Wildlife viewing 
and photography opportunities occur on partner properties. The refuge 
annually conducts ten sea turtle viewing programs, while the partners 
conduct an additional forty programs.
    All facilities, equipment, utilities, and staff are shared with 
nearby Pelican Island National Wildlife Refuge, with an office co-
located with the South Florida Ecological Services' field office in 
Vero Beach, Florida. The refuge shares four full-time staff positions 
with Pelican Island Refuge, with two positions targeted for 
elimination. Archie Carr Refuge historically has received endangered 
species recovery funding to support sea turtle monitoring and 
protection and to hire a seasonal biological science technician; 
however, this funding activity ends in 2008.

Alternative B--Rare, Threatened, and Endangered Species (Proposed 
Action)

    The refuge would expand management activities to protect federal 
and state listed species, migratory birds, and native wildlife and 
habitat diversity; expand management activities to control exotic, 
invasive, and nuisance species; and develop management activities to 
address the impacts of climate change on the refuge's resources.
    Sea turtle nest surveys would continue as in Alternative A. Nest 
predation rates would be lowered from 10 percent to less than 5 percent 
through trapping. The refuge would continue to coordinate with Brevard 
and Indian River Counties and Archie Carr Working Group to address 
lighting issues and unpermitted beach activities. The refuge would 
continue to participate in rescuing stranded and injured sea turtles. 
Further, the refuge would foster needed research to support sea turtle 
recovery and would work with the Service's South Florida Ecological 
Services' Office to develop sea turtle recovery targets. Management 
activities would include oversight of beach and dune restoration and 
mitigation of effects from erosion control efforts.
    Southeastern beach mouse management activities would be expanded. 
The refuge would actively modify and restore habitats to serve beach 
mice, including mechanical cutting of vegetation, prescribed burning, 
and planting of sea oats and other forage plants.
    The refuge would develop management activities to address the needs 
of gopher tortoises. This would include working with the partners to 
evaluate and implement, where feasible, projects to reduce vehicle 
mortality.
    Since only one known Florida scrub-jay family is known to occur on 
the refuge, the Service would evaluate its ability to meet the needs of 
this bird. The refuge would coordinate with the scrub-jay recovery team 
to evaluate management of refuge habitats to support the species. If 
determined to be feasible, the refuge would work with partners to 
restore former scrub-jay habitat on tracts in Segment 1, especially in 
the area of Twin Shores Park and Coconut Point Park.
    The refuge would work with partners to minimize impacts to wood 
storks and the conflicts with humans (e.g., at fish cleaning houses). 
The refuge would expand management activities in relation to the bald 
eagle, piping plover, eastern indigo snake, and West Indian manatee.
    Habitat management activities would be expanded or developed for 
scrub, the beach and dune system, and mangroves and wetlands. The 
refuge could continue to conduct regular prescribed burns in scrub 
habitat to help increase the amount and quality of scrub acreage 
managed on the refuge.
    Control of exotic, invasive, and nuisance species activities would 
be expanded and focused on high priority habitats serving rare, 
threatened, and endangered species.
    The refuge would institute management activities to address the 
impacts of climate change on refuge resources. This would be 
accomplished by coordinating with researchers and partners to identify 
climate change research needs for the refuge, and

[[Page 36349]]

investigating the impacts of climate change on rare, threatened, and 
endangered species and their habitats.
    The Service would pursue completion of the acquisition boundary 
from willing sellers through prioritized active acquisition efforts on 
those properties east of State Route A1A, and those adjacent to 
existing conservation lands. Land swaps, if necessary, would be used to 
protect high priority properties.
    The refuge would continue to respond to cultural resource issues as 
they arise, but would expand efforts in relation to protection of the 
Oak Lodge Site.
    A Pelican Island Refuge law enforcement officer would be shared 
with Archie Carr Refuge to conduct both nighttime and daytime patrols. 
Nighttime patrols would be conducted during the sea turtle nesting 
season to protect sea turtles from poaching and harassment.
    All permitted visitor activities would continue to occur on partner 
properties. Other than special tours and research activities, the 
refuge's properties would remain closed to public access. Although 
users would continue to access the beach from partner properties and 
access the refuge's shoreline along the Indian River Lagoon above mean 
high water and below the vegetation. The refuge would continue to work 
directly with the partners to install kiosks at all approved beach 
access points, with messages focusing on the protection of rare, 
threatened, and endangered species.
    All fishing activities would continue to occur or originate on 
partner properties. Unapproved access through closed refuge lands would 
be eliminated, and fishing activities would be directed toward approved 
access points. The refuge would work with the partners to evaluate the 
need to develop additional dune crossovers and to expand the 
monofilament recycling program.
    Wildlife viewing and photography opportunities would continue to 
occur on partner properties. Environmental education and interpretive 
opportunities would be increased, and the refuge would develop on- and 
off-site curriculum-based and interpretive programs with messages 
focused on rare, threatened, and endangered species and the 
minimization of human impacts. The volunteer program would increase and 
volunteers would be coordinated by staff.
    The refuge would continue to share facilities, equipment, 
utilities, and staff with Pelican Island Refuge, but would have its own 
budget and some of its own full-time staff members. The refuge would 
share a wildlife refuge manager, assistant refuge manager, refuge 
officer, administrative assistant, supervisory park ranger, supervisory 
maintenance worker, and wildlife biologist with Pelican Island Refuge. 
The staff specific to the refuge would include: Park ranger (volunteer 
coordinator/outreach and environmental education), maintenance worker, 
biological science technician, and a seasonal biological science 
technician (trapper).

Alternative C (Migratory Birds)

    Sea turtle monitoring and patrol efforts would be altered to 
minimize their effects on nesting shorebirds. If sea turtle surveys and 
other beach-side activities associated with these species were 
determined to have a negative effect on nesting shorebirds, these 
efforts would have to be altered. Likewise, southeastern beach mouse 
monitoring would have to be scaled back or otherwise adjusted if these 
activities conflicted with migratory bird management needs. Gopher 
tortoise, Florida scrub-jay, wood stork, and eastern indigo snake 
management would remain unchanged.
    For bald eagles, potential future nest sites would be protected. If 
eagles were found to be present, the refuge would adapt management as 
necessary, including creating closed areas to protect the site from 
human and pet disturbance.
    Migratory bird management would increase under this alternative. 
Management of piping plovers would increase with annual wintering 
surveys. Survey and monitoring efforts would be expanded for 
neotropical migratory birds, shorebirds, wading birds, water birds, and 
waterfowl. The refuge would work with partners to identify the 
potential for larger, unfragmented forests to serve the needs of these 
trust species. Shorebird management would include the closure of key 
areas to limit disturbance, including the alteration or elimination of 
sea turtle surveys in locations where shorebirds are particularly 
vulnerable. Law enforcement would be increased to enforce ``no dogs on 
beach'' zones, where applicable. For wading and water birds, the refuge 
would work with the partners to increase the ability in the area to 
rehabilitate injured birds. With regards to waterfowl, the refuge would 
work with partners to manage impoundments to also benefit waterfowl.
    Control of exotic, invasive, nuisance, and free-roaming/feral 
species would be expanded. The refuge would focus exotic plant control 
efforts on high priority habitats for migratory birds (e.g., maritime 
hammock). In addition, the refuge would coordinate with the partners to 
control feral and free-roaming animals to minimize adverse impacts to 
migratory birds.
    Under this alternative, the refuge would complete the boundary 
survey and prioritize active acquisition efforts on those properties 
with high migratory bird values. In addition, the refuge would consider 
a coordinated land management approach and consolidate those areas 
publicly held by multiple partners under the lead management of one 
entity (e.g., through management agreements and land swaps).
    A complete archaeological and historical survey of the refuge would 
be conducted. The refuge would also actively work with the partners to 
acquire or otherwise manage and protect the historically important Oak 
Lodge Site due to its contributions to research and historical data on 
migratory birds of the barrier island.
    Visitor services would be expanded under this alternative. Visitor 
informational resources would be altered with messages emphasizing 
migratory birds. An interpretive kiosk would be added to the Oak Lodge 
Site and a bird list would be developed.
    Management of fishing would be increased under this alternative. 
The refuge would work with the partners to provide information to the 
fishing public regarding the impacts of fishing activities on migratory 
birds (e.g., disturbance of shorebirds and monofilament line). All 
unapproved foot trails to public access through refuge properties would 
be closed, and the fishing public would be directed to approved access 
points. The need to create additional dune crossovers on partner 
properties would be evaluated.
    Wildlife viewing and photography would be changed from current 
management efforts. The sea turtle walk programs conducted by the 
Service would be eliminated. The refuge would work with the partners to 
develop informational materials for partners' trails to include 
migratory bird messages of the refuge. Staff and/or volunteer-led 
migratory bird walks would be developed by the refuge. Environmental 
education, interpretation, and outreach activities would be expanded.
    Alternative C would increase staffing levels. Staff shared with 
Pelican Island Refuge would include: Wildlife refuge manager, assistant 
refuge manager, refuge officer, administrative assistant, supervisory 
park ranger, supervisory maintenance worker, and wildlife biologist for 
a total of seven shared full-time employees. Full-time refuge-specific 
staff would include: Biological science technician, park ranger, and

[[Page 36350]]

maintenance worker for a total of three full-time employees.

Alternative D (Wildlife and Habitat Diversity)

    For sea turtles, regular law enforcement patrols would be conducted 
to protect these marine reptiles from disturbance and harassment. In 
addition, the refuge would work with private landowners and beach goers 
to minimize impacts to sea turtles (e.g., barriers to nesting, 
harassment of nesting and hatching sea turtles, and lighting). The 
refuge would coordinate and analyze sea turtle data and work with the 
partners to understand and manage nearshore habitats.
    Management of southeastern beach mice would include modifying and 
restoring habitats utilized by this species, including maintaining and 
opportunistically planting sea oats and other forage plants. The refuge 
would increase control of feral predators.
    Gopher tortoise management would be expanded under this 
alternative. The refuge, working with the partners, would identify 
locations where the gopher tortoise is especially vulnerable to vehicle 
collisions and evaluate the feasibility of developing wildlife 
underpasses, especially during roadway maintenance work. Gopher 
tortoise crossing signs would be posted in key areas.
    To minimize injury and drowning, the refuge would coordinate with 
partners to prevent manatees from entering water control structures.
    Piping plovers and eastern indigo snakes would be included in 
wildlife diversity surveys in an effort to determine the extent of 
their presence on the refuge.
    Control of exotic, invasive, and nuisance species would be 
expanded. The refuge would locate and identify new infestations of 
Categories I and II plants and work to eradicate these, while 
controlling non-native plants already established. It would coordinate 
with partners to control feral and free-roaming animals.
    The refuge would increase its efforts to minimize the effects of 
climate change. First, it would coordinate with researchers and 
partners to investigate the impacts of climate change on refuge 
resources and identify climate change research needs. It would foster 
and conduct needed research studies and adapt management as necessary.
    Under Alternative D, the refuge would complete the boundary survey 
and prioritize active acquisition efforts on those properties with high 
biodiversity values. The refuge would work to complete acquisition of 
lands within the acquisition boundary from willing sellers and use land 
swaps, where appropriate, as a method to meet this objective. Through 
collaboration with partners, areas high in biodiversity and wildlife 
corridors would be identified and protected.
    Under this alternative, a complete archaeological and historical 
survey of the refuge would be conducted. The refuge would also actively 
work with the partners to acquire or otherwise manage and protect the 
Oak Lodge Site due to its contributions to research and historical data 
on barrier island biodiversity.
    Visitor service programs would be expanded under this alternative. 
Informational resources available to visitors would emphasize 
biodiversity on the refuge. The refuge would work with the partners to 
incorporate wildlife and habitat diversity messages into their signage.
    Fishing would be increased. The refuge would close all unapproved 
foot trails to public access through refuge properties and direct the 
fishing public to approved access points. The need to create additional 
dune crossovers on partner properties would be evaluated.
    Wildlife viewing and photography would be changed from current 
management efforts. Sea turtle walk programs conducted by the Service 
would remain the same. The refuge would work with the partners to 
develop informational materials for partners' trails to include 
wildlife and habitat diversity messages of the refuge. Staff and/or 
volunteer-led migratory bird walks would be developed by the refuge.
    The refuge would increase environmental education, interpretation, 
and outreach activities under this alternative. Through collaborative 
efforts with the partners, the refuge would incorporate more 
information on biodiversity into existing education programs. On- and 
off-site interpretive programs aimed at maintaining or increasing 
biodiversity and the minimization of human impacts would be developed.
    Nighttime access to the beach from refuge properties would be 
eliminated and the refuge would close all unapproved foot trails to 
public access through its properties. On partner properties, the refuge 
would collaborate to eliminate nighttime access to the beach via 
unapproved foot trails. In addition, the need to close, relocate, or 
build dune crossovers at these sites would be evaluated.
    Under Alternative D, staff levels would be increased. Shared staff 
with Pelican Island Refuge would include: Wildlife refuge manager, 
assistant refuge manager, refuge officer, administrative assistant, 
supervisory park ranger, supervisory maintenance worker, and wildlife 
biologist for a total of seven shared full-time positions. Full-time 
refuge-specific staff would include: Biological science technician, 
park ranger, maintenance worker, and seasonal biological science 
technician for a total of 3.5 full-time positions.

Next Step

    After the comment period ends, we will analyze the comments and 
address them in the form of a final CCP and Finding of No Significant 
Impact.

Public Availability of Comments

    Before including your address, phone number, e-mail address, or 
other personal identifying information in your comment, you should be 
aware that your entire comment--including your personal identifying 
information--may be made publicly available at any time. While you can 
ask us in your comment to withhold your personal identifying 
information from public review, we cannot guarantee that we will be 
able to do so.

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

    Dated: June 9, 2008.
Cynthia K. Dohner,
Acting Regional Director.
[FR Doc. E8-14478 Filed 6-25-08; 8:45 am]
BILLING CODE 4310-55-P