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APPENDIX B
NORTHERN TALLGRASS PRAIRIE NATIONAL WILDLIFE REFUGE
SPORT FISH PLAN
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Northern Tallgrass Prairie
National Wildlife Refuge Sport Fishing Plan 2019
U.S. Fish and Wildlife Service
Northern Tallgrass Prairie National Wildlife Refuge
44843 687th Ave
Odessa, MN 56276
Submitted By:
Project Leader
________________________________________ _____________
Signature Date
Concurrence:
Refuge Supervisor
Concurrence:
_______________________________________ _____________
Signature Date
Approved:
Regional Chief,
National Wildlife Refuge System
_______________________________________ _____________
Signature Date
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Contents
I. INTRODUCTION 3
II. CONFORMANCE WITH STATUTORY AUTHORITIES 5
III. STATEMENT OF OBJECTIVES 7
IV. ASSESSMENT 7
V. DESCRIPTION OF THE FISHING PROGRAM 8
VI. MEASURES TAKEN TO AVOID CONFLICTS WITH OTHER MANAGEMENT
OBJECTIVES 10
VII. CONDUCT OF THE FISHING PROGRAM 11
VIII. REFERENCES 13
IX. APPENDIX A. REFUGE MAP 14
X. APPENDIX B. DRAFT COMPATIBILITY DETERMINATION 15
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I. INTRODUCTION This Sport Fishing Plan formulates the general concept for fishing opportunities on the Northern
Tallgrass Prairie National Wildlife Refuge (refuge).
The Northern Tallgrass Prairie National Wildlife Refuge encompasses 4,837 fee title acres and
6,219 easement acres. The refuge spans 85 counties in western Minnesota and north-western
Iowa. Sport fishing will only be open on fee title acres found in Dickinson, Jasper, Kossuth, and
O’Brien counties in northwestern Iowa and Clay, Kandiyohi, Kittson, Lincoln, Murray, Norman,
Otter Tail, Pope, Rock, and Stevens counties in western Minnesota. A map of the fee title areas
proposed to be open for fishing can be found in the Appendix (Appendix A). The map is missing
a recent addition of fee title land of approximately 150 acres in Clay County, Minnesota. The
map will be updated in the final plan to reflect this missing parcel.
Northern Tallgrass Prairie National Wildlife Refuge was established in 2000 to preserve and
enhance the remaining remnant tracts of northern tallgrass prairie and aspen parklands habitats
within Iowa and Minnesota. The refuge is authorized for 77,000 acres through conservation
easements and government ownership in all or part of 85 counties in western Minnesota and
northwestern Iowa. The purposes of the Northern Tallgrass Prairie National Wildlife Refuge
derive from the Fish and Wildlife Act of 1956: “... for the development, advancement,
management, conservation, and protection of fish and wildlife resources ... 16 U.S.C. §
742f(a)(4)" “... for the benefit of the United States Fish and Wildlife Service, in performing its
activities and services. Such acceptance may be subject to the terms of any restrictive or
affirmative covenant, or condition of servitude ..." 16 U.S.C. § 742f(b)(1) (Fish and Wildlife Act
of 1956).
Protection, enhancement and restoration of native prairie is a high priority for the U.S. Fish and
Wildlife Service (Service) and its partners. Conserving, managing, and restoring the diversity
and viability of native fish and wildlife populations associated with native prairie is also a chief
objective. The Service is a partner in the multi-agency/organization effort to conserve prairie in
Minnesota and Iowa.
The refuge provides some (less than 5%) aquatic habitat, in which fish can be found. The
existing fishable areas include small sections of Little Sioux River (Dickinson County Iowa),
Indian Lake and Pipestone Creek (Pipestone County Minnesota), and Beaver Creek and
associated tributaries (Rock County Minnesota). The remaining habitat currently acquired and
projected to be acquired is classified as majority upland. As additional fee title lands are acquired
they will be open for fishing after they meeting required compliance needs. It is likely that a
categorical exclusion would be used since <5% of the total acreage in future acquisitions over
the next 20 years are projected to be suitable fish habitat and therefore would not cause a
measurable increase in fishing pressure.
This Sport Fishing Plan will describe, in detail, the current and future fishing opportunities, how
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fishing will be conducted, and conflict resolution with other management objectives.
The refuge identified goals in the interim Comprehensive Conservation Plan and environmental
impact statement completed in 1998. Refuge goals are:
● Preserve remnants of native tallgrass prairie to ensure protection of unique plant
communities, native fish and wildlife, and historic and cultural sites.
● Restore native tallgrass prairie, including:
● Enhancement of some of the best remaining degraded remnants of tallgrass prairie
through management practices (burning, grazing, etc.) and inter-planting or
seeding of native plant species. Associated natural wetland habitats including
prairie wetlands (potholes), fens, wet prairie, and riverine areas could be enhanced
as well.
● Reconstruction of areas of tallgrass prairie using native plant species to buffer or
connect remnant native prairie tracts.
● Conserve, manage, and restore the diversity and viability of native fish and wildlife
populations associated with tallgrass prairie.
● Provide public areas for compatible wildlife-dependent uses, emphasizing increased
public understanding of the tallgrass prairie.
II. CONFORMANCE WITH STATUTORY AUTHORITIES The National Wildlife Refuge System includes Federal lands managed primarily to provide
habitat for a diversity of fish, wildlife and plant species. National wildlife refuges are established
under many different authorities and funding sources for a variety of purposes.
The authority for the establishment of the Northern Tallgrass Prairie National Wildlife Refuge is
the Fish and Wildlife Act of 1956 (16 U.S.C. § 742 (a)(4) and (b)(1). The primary source of
funds for land acquisition for this refuge is the Land and Water Conservation Fund. The Nature
Conservancy also donates fee and easement lands. Funding for the fishing program will be a part
of the refuge operations and maintenance fund.
This Sport Fishing Plan has been developed to guide fishing on the refuge in a manner that
allows the Service to fulfill the purposes for which the refuge was established as well as provide
wildlife-dependent recreation opportunities to the public.
In the 1998 Finding of No Significant Impact for the “Environmental Impact Statement and
Interim Comprehensive Conservation Plan (CCP) for the Northern Tallgrass Prairie National
Wildlife Refuge” the Service selected for implementation of Alternative B. This alternative
identified that the refuge will be opened to fishing in accordance with state regulations. The
Service also determined, per a draft 2019 Compatibility Determination, that this use is
compatible with the purpose of the refuge and the mission statement of the National Wildlife
Refuge System (Appendix B).
Guidance for authorizing public uses on national wildlife refuges is provided in the
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National Wildlife Refuge System Improvement Act (Improvement Act) of 1997 (USFWS 1997).
The Improvement Act states, “compatible wildlife-dependent recreation is a legitimate and
appropriate general public use of the System…through which the American public can develop
an appreciation for fish and wildlife”. The Improvement Act recognizes that wildlife-dependent
recreational uses involving hunting, fishing, wildlife observation, wildlife photography, and
environmental education and interpretation, when determined to be compatible, are a legitimate
and appropriate use of the Refuge System lands. The Improvement Act states that these specific
six uses should receive priority consideration in refuge planning and management. Other uses not
listed as priority public uses may be allowed if they are determined to be appropriate and
compatible with the purposes for which the refuge was established.
According to the Improvement Act, when a wildlife-dependent recreational use is determined to
be a compatible use and is not inconsistent with public safety, that activity should be facilitated.
The term “compatible use” is defined as a wildlife-dependent recreational use or any other use of
a refuge unit that, in the sound professional judgment of the Director, will not materially
interfere with or detract from the fulfillment of the mission of the System or the purposes of the
refuge. The U.S. Fish and Wildlife Service’s Final Compatibility Policy (USFWS 2000) pursuant
to the Improvement Act delegates the responsibility of determining compatibility to the refuge
manager with concurrence by the regional office supervisor.
Fishing on the refuge will allow refuge staff to provide wildlife-dependent recreational
opportunities for the public and promote a better understanding and appreciation of natural
habitats and their associated fish and wildlife resources. Implementation of the proposed actions
will be consistent and compatible with the Refuge Recreation Act, the Refuge Administration
Act, and the Final Environmental Impact Statement for the establishment of the Northern
Tallgrass Prairie National Wildlife Refuge.
Relationship to other Plans and Documents
The Environmental Impact Statement establishing the refuge and the interim Comprehensive
Conservation Plan for the refuge were approved in 1998. The CCP identified that on most units
of the refuge, fishing would be permitted in accordance with state seasons and limits. Both Iowa
and Minnesota Departments of Natural Resources (IA DNR, MN DNR) will be asked to concur
with this general management approach. The refuge manager may establish time and space zones
to regulate fishing to insure it remains compatible with the wildlife and refuge purposes and to
reduce potential conflict between users.
Upon completion and adoption of this Sport Fishing Plan, the Service will publish in the Federal
Register a Proposed Rule that updates the fishing program on the refuge. Following the comment
period on the Proposed Rule, a determination will be made whether to implement the updated
fishing opportunities outlined in this Sport Fishing Plan. Subsequently, a Final Rule will be
published outlining fishing on the refuge.
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III. STATEMENT OF OBJECTIVES The objectives of a sport fishing program on Northern Tallgrass Prairie Refuge are to provide:
● the public with recreational opportunities to experience wildlife on more refuge lands and
increase opportunities for anglers;
● biological diversity by preserving the natural diversity and variety of biotic communities
occurring on refuge lands;
● wildlife-dependent public recreation as mandated by and according to Service law and
policy;
● preserve our American heritage.
Fishing is consistent with the refuge’s Interim Comprehensive Conservation Plans larger goals of
preservation, protection, restoration and enhancement of native tallgrass prairie habitat and
maintenance of the biological diversity that this habitat possesses. This would include protecting
rare and endangered prairie species, providing habitat for migratory bird species (including
waterfowl), managing existing prairies for plant and animal diversity, and restoring former
prairie lands. Protection of the soil and water resources will further contribute to economic,
recreational and educational opportunities.
The following fishing program information for the Northern Tallgrass Prairie National Wildlife
Refuge is outlined in the 1998 Interim Comprehensive Conservation Plan:
On most units of the refuge, fishing will be permitted in accordance with state seasons
and limits. Both Iowa and Minnesota Departments of Natural Resources will be asked to
concur with this general management approach. The refuge manager may establish time
and space zones to regulate fishing to insure it remains compatible with the wildlife and
refuge purposes and to reduce potential conflict between users.
Certain small portions of the units may be closed to fishing when the manager determines
that there are specific habitat or wildlife protection needs that are best met by establishing
sanctuary areas.
A Sport Fishing Plan may further define parameters under which fishing may be
regulated, and is why this plan is being created
IV. ASSESSMENT The Service has not formally opened fishing on Northern Tallgrass Prairie National Wildlife
Refuge prior to this plan.
Fish populations on refuge lands are considered healthy enough to support recreational fishing.
While minimal aquatic acreage has been acquired and large amounts are not projected to be
acquired, the Northern Tallgrass Prairie National Wildlife Refuge boundary contains a wide
variety of aquatic habitats which are characterized by different fish communities. Fish habitats
ranging from prairie potholes to lakes and warm water streams to large rivers can be found
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within the acquisition boundary. The seven major watersheds contained in the refuge area are the
Red, Minnesota, Crow, Big Sioux, Little Sioux, Des Moines and Iowa rivers.
Important sport fish species known to inhabit waters in western Minnesota and northwest Iowa
include walleye, northern pike, largemouth bass, smallmouth bass, sunfish, crappie, channel
catfish, flathead catfish, bullheads and yellow perch. Carp, buffalo, and bullhead are the
dominant commercial species (USFWS 1998).
The primary aquatic resource on acquired and proposed lands for the refuge are prairie potholes
and small wetlands. Fishery resources of these systems are dominated by fathead minnows and
stickleback. Fatheads are an important bait minnow and are trapped extensively on non-service
lands in western Minnesota (USFWS 1998). All minnow trapping is prohibited on the refuge.
The Service will rely on Minnesota and Iowa DNR fisheries assessments and expertise for
establishing regulations and species limits for waters located within the acquired and proposed
tracts. As more land is acquired and the magnitude of the fishing program is expanded, we do not
anticipate additional conflicts with other programs since most acquired land is non-aquatic
habitat and since existing fishable areas on the refuge are accessible by walk in access.
There are no known administrative conflicts associated with the proposed fishing program. All
features of the program are in compliance with state and Federal objectives for the region. The
Minnesota and Iowa DNRs and several other public land agencies control significant acreages
adjacent to and within the refuge acquisition boundary and fishing is currently allowed on these
lands.
V. DESCRIPTION OF THE FISHING PROGRAM Most of the refuge supports fishable populations of game species where suitable habitat exists.
Most of the refuge is open to the public for some type of recreational use (hunting, fishing,
wildlife observation, interpretation, photography, and/or environmental education).
Proposed Fishing Program:
The proposed regulation is to follow state fishing regulations. Minnesota and Iowa DNR publish
their regulations each year and are available online:
https://www.dnr.state.mn.us/regulations/fishing/index.html
https://www.iowadnr.gov/Fishing/Fishing-Licenses-Laws
Print copies of these resources are also made available by the state on an annual basis and
generally can be found where fishing licenses are sold.
Areas capable of being fished would cover approximately 5% of the existing 4,837 fee title acres
open to fishing on the refuge. As additional suitable lands are acquired, they would also be
opened to fishing after completing required compliance necessary. All refuge management
activities and refuge actions require some level of NEPA compliance and possibly compliance
with other environmental laws and regulations (e.g., Endangered Species Act, National Historic
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Preservation Act). It is projected that an addition of <5% total acreage over the next 20 years
would be suitable fish habitat and therefore not cause a measurable increase in fishing pressure.
The refuge ownership is constantly changing as new land is acquired.
Fishing hours and seasons will correspond with state regulations. As additional lands are
acquired and refuge management programs are instituted, it may become necessary to impose
some regulations that are more restrictive than state laws (ie: closed areas, size limits). These
modifications will be included during the annual amendment process through the Federal
Register and the public will be informed through media and posting. As with other uses, we will
look for opportunities to seek feedback on angler experience and success.
Consultation will be made with Minnesota and Iowa DNR Fisheries, fisheries biologist and area
managers to discuss the merit and success of the refuge fishing program, the status of the area's
fish and game resources, and to consider recommendations for program modifications via the
annual amendments.
Law enforcement of refuge and state fishing regulations, trespass and other violations associated
with management of the refuge is the responsibility of a refuge law enforcement officer. Refuge
officers cooperate with, and are assisted by, state and county officers as well as state
conservation officers. Ongoing coordination and communication between refuge staff and law
enforcement officers is conducted throughout the year.
Sport Fishing State regulations apply as to license, seasons, sizes, limits, methods of take, and species of fish to
be taken with the following exceptions:
1. Minnows, crayfish, frogs and turtles are protected and may not be collected or harvested.
2. Motorized boats are prohibited.
Consultation and Coordination with the State
National wildlife refuges, including Northern Tallgrass Prairie National Wildlife Refuge,
conduct fishing programs within the framework of state and Federal regulations. All authorized
fishing opportunities are at least as restrictive as state regulations. The Minnesota and Iowa DNR
will be informed of the draft Sport Fishing Plan and afforded an opportunity to comment on the
plan. The framework for the Sport Fishing Plan was provided in the Interim Comprehensive
Conservation Plan. Through the interim CCP and Environmental Impact Statement process the
refuge worked with all partners to provide opportunities for input. The proposed fishing program
for the refuge mirrors state regulations for both Iowa and Minnesota.
Methods of Control and Enforcement
The enforcement of refuge and state fishing regulations, trespass and other public use violations
normally associated with management of a national wildlife refuge is the responsibility of
commissioned refuge law enforcement officers. The law enforcement officers within the refuge
acquisition boundary cooperate with, and are assisted, by state, county and city police officers as
well as state conservation officers. The procedures used for obtaining law enforcement assistance
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are based on the legal jurisdiction where incidents occur. The refuge regularly meets with the
various state, city and county law enforcement agencies to develop agreements and strategies to
ensure law enforcement operations are performed as safely and efficiently as possible.
Funding and Staffing Requirements
The fishing program is designed to be administered with minimal refuge resources. The costs of
administering and enforcing the refuge fishing program comes out of the the annual budget of
each Wetland Management District or refuge that overseas management of units in their
boundaries. Expenses include program management, staff resources, boundary posting, signage,
brochures, facility maintenance and other fishing specific activities.
VI. MEASURES TAKEN TO AVOID CONFLICTS WITH OTHER MANAGEMENT OBJECTIVES Biological Conflicts
The refuge avoids conflict related to biological resources by adopting the “wildlife first”
principle explicitly stated in the Refuge Improvement Act. Staff monitors species population
trends to ensure that target species can be fished for on the refuge without adversely affecting the
species. These monitoring activities include direct observation of populations, consultation with
state and Service species specialists, and review of current species survey information and
research. The refuge could limit or exclude fishing activities on portions of refuge units to avoid
conflicts related to biological resources.
The Federally threatened/endangered Indiana bat, gray wolf, northern-long eared bat, piping
plover, least tern, Dakota skipper, Powshiek skipperling, pallid sturgeon, Topeka shiner, prairie
bush clover, rusty patched bumble bee and western prairie fringed orchid may occur on the
refuge and are found within the boundaries of the refuge acquisition boundary. Only the Topeka
shiner and western prairie fringed orchid are documented on the refuge. An Endangered Species
Act Section 7 consultation was conducted and it was determined that the proposed alternative
will not conflict with the recovery and/or protection of these species. A determination of “No
Effect” was made as the proposed project will not directly or indirectly affect (neither negatively
nor beneficially) individuals of listed/proposed/candidate species or designated/proposed critical
habitat of such species. Section 7 of the Endangered Species Act requires Federal agencies to
evaluate potential impacts to Threatened and Endangered species and their habitats and an
Environmental Assessment under the National Environmental Policy Act specifically for the
fishing program and addresses each of these species. See the Environmental Assessment for the
Section 7 Analysis.
Public Use Conflict
We do not anticipate any conflict between fishing and other recreational uses of the refuge. The
boundary of most lands owned by the Service are posted with refuge boundary signs. Areas
administratively closed to fishing will be clearly marked with “No Fishing Zone” or “Area
Beyond This Sign Closed” signs.
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Administrative Conflicts
Refuge management activities can be accomplished without conflict with fishing
activities through the use of administratively closed areas, timing of fishing, size limits, and
methods of fishing.
VII. CONDUCT OF THE FISHING PROGRAM Fishing Regulations
Regulations Pertaining to all National Wildlife Refuge System Lands
Regulations pertaining to fishing on all national wildlife refuges are found in 50 CFR 32.5. They
State:
§ 32.5 What are the requirements for sport fishing on areas of the National Wildlife
Refuge System?
The following provisions shall apply to each person while engaged in public sport fishing
on a wildlife refuge area:
(a) Each person shall secure and possess the required state license.
(b) Each person shall comply with the applicable provisions of Federal law and
regulation including this subchapter.
(c) Each person shall comply with the applicable provisions of the laws and
regulations of the state wherein any area is located unless the same are further
restricted by Federal law or regulation.
(d) Each person shall comply with the terms and conditions authorizing access
and use of the wildlife refuge area.
(e) Each person must comply with the provisions of any refuge-specific regulation
governing fishing on the wildlife refuge area. Regulations, special conditions, and
maps of the fishing areas for a particular wildlife refuge are available at that area's
headquarters. In addition, refuge-specific sport fishing regulations appear in §§
32.20 through 32.72.
The regulations, as they are published in the Code of Federal Regulations (CFR), are the
official notification to the public. Copies of the CFR can be found in libraries and on the
internet.
A general synopsis of regulations relating to fishing in Minnesota and Iowa are published in the
“Iowa Fishing Regulations” booklet by the Iowa Department of Natural Resources and in the
“Minnesota Fishing Regulations” booklet by the Minnesota Department of Natural Resources.
This information is available online, from a license distributor or any DNR Service Center.
Refuge-Specific Fishing Regulations Refuge-specific regulations pertaining to fishing are found in 50 CFR 32.2. They state:
Minnesota:
m) Northern Tallgrass Prairie National Wildlife Refuge
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(4) Sport Fishing. We allow fishing on designated areas subject to the following
conditions:
(i) We prohibit the taking of any turtle, frog, leech, minnow, crayfish, and
mussel (clam) species by any method on the refuge (see §27.21 of this
chapter).
(ii) The conditions set forth in m)(1)(iii) apply. m)(1)(iii) states, All boats,
decoys, blind materials, stands, platforms, and other personal property (see
27.93 and 27.94 of this chapter) brought onto the refuge, must be removed
at the end of each day.
Iowa:
e) Northern Tallgrass Prairie National Wildlife Refuge
(4) Sport Fishing. We allow sport fishing on the refuge subject to the following
conditions:
(i) We prohibit the taking of any turtle, frog, leech, minnow, crayfish, and
mussel (clam) species by any method on the refuge (see §27.21 of this
chapter).
(ii)The conditions set forth at paragraph (e)(1)(iii) apply. (e)(1)(iii) states,
All boats, decoys, blind materials, stands, platforms, and other personal
property (see 27.93 and 27.94 of this chapter) brought onto the refuge,
must be removed at the end of each day.
Anticipated Public Reaction to the Sport Fishing Plan
Conflicts between fishing and environmental education, interpretation, hunting, and wildlife
observation are expected to be minimal as these uses are similar to state wildlife management
areas, state forests, national forests and other public lands scattered across Minnesota and Iowa.
These uses have historically occurred on the refuge with minimal conflict and it is assumed these
uses will continue to have minimal conflict. Overall, public fishing on the refuge is viewed as a
positive and accepted use of refuge property.
Fishing Application and Registration
For general fishing activities, no special application or registration process is required. Anglers
are required to have the appropriate state license on them when fishing on refuge lands.
Announcing and Publicizing Openings, Closings, and Modifications
As with previously developed changes to the refuge fishing programs, this Sport Fishing Plan
will be available for public review for a period of 30 days. All openings, closings, and
modifications will be documented in the Code of Federal Regulations once per year.
Entry and Access Procedures
There are no special entry or access procedures for anglers using the refuge. For specific access
questions please contact the refuge manager at:
Northern Tallgrass Prairie National Wildlife Refuge
44843 687th Ave
13
Odessa, MN 56276
320-273-2191
Fishing Requirements
Anglers who are eligible to fish under Minnesota and Iowa law are allowed to fish on refuge
units. The refuge does not routinely require anglers to report on fishing activities or harvest.
Should an additional reporting program be implemented, the refuge will use the appropriate form
approved by the Office of Management and Budget.
VIII. REFERENCES Iowa Department of Natural Resources 2018. Iowa Fishing Regulations 2018-2019. Iowa
Department of Natural Resources, Des Moines, IA.
Minnesota Department of Natural Resources 2018. Minnesota Fishing Regulations 2018-2019.
Minnesota Department of Natural Resources, St. Paul, Minnesota.
National Wildlife Refuge Improvement Act of 1997. Pub. L. No. 105–57, 111 Stat. 1252 (2007).
U.S. Fish and Wildlife Service 1998. Northern Tallgrass Prairie Habitat Preservation Area
Interim Comprehensive Conservation Plan. U.S. Department of the Interior, Fish and Wildlife
Service, Region 3, Bloomington, MN.
U.S. Fish and Wildlife Service 1998. Northern Tallgrass Prairie Habitat Preservation Area
Environmental Impact Statement. U.S. Department of the Interior, Fish and Wildlife Service,
Region 3, Bloomington, MN.
APPENDIX A
REFUGE MAP WITH AREAS OPEN TO FISHING
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APPENDIX B
DRAFT SPORT FISHING COMPATIBILITY DETERMINATION