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UmbagogNational Wildlife Refuge

Hunting Management Planwith Compatibility Determination, and Environmental Assessment

March 2018

U.S. Fish & Wildlife Service

HUNTING MANAGEMENT PLAN Umbagog National Wildlife Refuge

March 2018 Draft

United States Department of the Interior Fish and Wildlife Service

Umbagog National Wildlife Refuge Coos County, New Hampshire and Oxford County, Maine

Submitted: Refuge Manager Date Concurrence: Refuge Supervisor Date Approved: Regional Chief Date

Hunting Management Plan, Umbagog National Wildlife Refuge, March 2018 Draft 2

Table of Contents I. INTRODUCTION .................................................................................................................................................. 3

A. Environment and Land Use .............................................................................................................................. 4 B. Wildlife Resources ........................................................................................................................................... 6

1. Endangered, Threatened, and Species of Special Concern .......................................................................... 6 2. Waterfowl..................................................................................................................................................... 6 3. Other Migratory Birds .................................................................................................................................. 6 4. Resident Wildlife ......................................................................................................................................... 7

C. Hunting ............................................................................................................................................................. 7 II. CONFORMANCE WITH STATUTORY AUTHORITIES .................................................................................. 7 III. STATEMENT OF OBJECTIVES .......................................................................................................................... 8 IV. ASSESSMENT ...................................................................................................................................................... 9

A. Are wildlife populations present in numbers sufficient to sustain optimum population levels for priority refuge objectives other than hunting? ................................................................................................................................... 9 B. Is there competition for habitat between target species and other wildlife? ..................................................... 9 C. Are there unacceptable levels of predation by target species on other wildlife? .............................................. 9

V. DESCRIPTION OF THE HUNTING PROGRAM ................................................................................................ 9 A. Areas of the Refuge that Support Populations of Target Species ................................................................... 10 B. Areas and Seasons Open to Hunting .............................................................................................................. 10 C. Species to be Hunted ...................................................................................................................................... 13 D. Justification for Permit ................................................................................................................................... 13 E. Consultation and Coordination ....................................................................................................................... 13 F. Control and Enforcement................................................................................................................................ 13 G. Staffing and Funds .......................................................................................................................................... 14

VI. MEASURES TAKEN TO AVOID CONFLICTS WITH OTHER MANAGEMENT OBJECTIVES ................ 14 A. Biological Conflicts ........................................................................................................................................ 14 B. Public Use Conflicts ....................................................................................................................................... 15 C. Administrative Conflicts................................................................................................................................. 15

VII. CONDUCT OF THE HUNT ................................................................................................................................ 15 A. Refuge-Specific Hunting Regulations ............................................................................................................ 15

1. Maine ......................................................................................................................................................... 15 2. New Hampshire .......................................................................................................................................... 16

B. Hunter Requirements ...................................................................................................................................... 17 C. Hunter Orientation .......................................................................................................................................... 17 D. Anticipated Public Reaction ........................................................................................................................... 17 E. Media Selection for Announcing and Publicizing the Hunt Program............................................................. 17

VIII. LITERATURE CITED ................................................................................................................................... 18 IX. APPENDICES ...................................................................................................................................................... 18


I. INTRODUCTION Umbagog National Wildlife Refuge (NWR; refuge) is managed by the U.S. Fish and Wildlife Service (USFWS) and was established on November 12, 1992 under the authorities of the:

• Federal Property and Administrative Service Act of 1949, as amended (40 U.S.C. 471-535);

• Emergency Wetlands Resources Act of 1986, as amended (16 U.S.C. § 3901 (b)); • Migratory Bird Conservation Act of 1929, as amended (16 U.S.C. § 715d); and • Fish and Wildlife Act of 1956, as amended (16 U.S.C. § 742f(a)(4) and 742f(b)(1))

In order to meet specific refuge and other broader USFWS directives, the following purposes were established for Umbagog NWR:

…conservation of the wetlands of the Nation in order to maintain the public benefits they provide and to help fulfill international obligations contained in various migratory bird treaties and conventions... 16 U.S.C. § 3901(b) (Emergency Wetlands Resources Act);

…use as an inviolate sanctuary, or for any other management purpose, for migratory birds... 16 U.S.C. § 715d (Migratory Bird Conservation Act);

…the development, advancement, management, conservation, and protection of fish and wildlife resources… 16 U.S.C. § 742f(a)(4) (Fish and Wildlife Act); and

…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)

The mission of the National Wildlife Refuge System (Refuge System) “is 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.”

— National Wildlife Refuge System Improvement Act of 1997, as amended (Refuge Improvement Act; Public Law 105–57; 111 Stat. 1254; USFWS 1997)

Umbagog NWR was established as part of a comprehensive cooperative protection and management effort to conserve wildlife, wildlife habitat, wetlands, and timber resources along the northern New Hampshire-western Maine border. Partners in this conservation effort included the States of New Hampshire and Maine, conservation organizations, land trusts, and local landowners. The Umbagog area was listed by both the states of Maine and New Hampshire as a priority protection site under the North American Waterfowl Management Plan. This plan is designed to halt the decline of waterfowl populations, and involves federal and state agencies working alongside waterfowl conservation groups and others to protect and restore waterfowl habitat. The Umbagog area wetland complex has also been listed as a priority wetland for New England by the U.S. Environmental Protection Agency. The Umbagog NWR Comprehensive Conservation Plan (CCP) was signed in 2009 (USFWS 2009). This document was developed with an Environmental Impact Statement, and included an expanded acquisition boundary. The CCP


states that “land acquired will be open to long-term public access for compatible public uses such as: hunting, fishing, wildlife observation and photography, environmental education and interpretation” (USFWS 2009). Umbagog Lake is located in Coos County, New Hampshire (NH) and Oxford County, Maine (ME), in the towns of Errol, Wentworth Location, and Cambridge in NH and Upton and Magalloway Plantation, in ME. It is located approximately 30 miles north of Berlin, NH and immediately east of Errol, NH (Figure 1). The lake is the westernmost lake of the Rangeley Lakes chain and is one of the largest lakes along the NH/ME border, covering more than 8,500 acres, and stretching over 10 miles in length. With an average depth of only 15 feet and over 50 miles of shoreline, the lake provides important wildlife habitat for many species, including endangered and threatened species, migratory birds, rare plants, and resident wildlife.

A. Environment and Land Use Umbagog NWR currently encompasses approximately 36,957 acres or approximately 57 square miles of upland and wetland habitat in Coos County, New Hampshire and Oxford County, Maine. A wide variety of habitat types may be found on the refuge, including open water, bogs, river and lakeshore marshes, northern white cedar swamps, alder swamps, jack pine shoreline and spruce-fir and northern hardwoods. The Magalloway, Rapid, and Dead Cambridge rivers empty into the Umbagog Lake and provide associated riparian habitat. In addition, the Androscoggin River drains out of Umbagog Lake from its northwestern end. Water levels of the Rangeley Lakes chain, which includes Umbagog Lake, are managed through a series of dams. Most of the upland portions of the refuge and bottomland woodlands, have been managed for timber production during the past 190 years, and are in various stages of regrowth (USFWS 2009). The waters around Umbagog Lake receive moderate to heavy recreational pressure during the summer period. The economy of the surrounding area is primarily recreation and timber-based. Visitation to Umbagog NWR is estimated at 73,540 people during October 2016 to September 2017. Actual visitation numbers are difficult to obtain due to the size of the refuge and accessibility through numerous entrance points. Major non-consumptive, recreational activities include boating, paddling, camping, and wildlife observation during the non-winter months. The chief consumptive uses at Umbagog NWR are hunting and fishing, estimated at 7,460 visits and 12,000 visits respectively from October 2016 to September 2017. Snowmobiling and ice fishing are the primary recreational activities during the winter months. The major game species sought are waterfowl, white-tailed deer, moose, and upland game birds, including ruffed grouse and woodcock. New Hampshire Fish and Game Department data for Coos County indicate that the primary waterfowl species taken by hunters are mallard, American black duck, green-winged teal, wood duck, and hooded merganser. Much of Umbagog NWR is best accessed by boat. Motor vehicle access to the refuge is off State Routes 16 and 26 via maintained gravel roads. In addition, several fair-to-good quality dirt roads provide access to private camps located in various parts of the refuge. Old skid trails are distributed throughout much of the refuge's interior upland areas, but the majority of these are impassable to most vehicles.


B. Wildlife Resources

1. Endangered, Threatened, and Species of Special Concern Federal: The Canada lynx (Lynx canadensis) is listed as threatened under the Endangered Species Act of 1973, as amended. Canada lynx have been reported from areas near Umbagog NWR and some suitable habitat for this species occurs on the refuge; however, the refuge is not located in designated critical habitat for Canada lynx. There are 4 confirmed historical (1880s) records of Canada lynx from Upton, ME, an area which includes the eastern shore of Umbagog Lake. Modern records for Canada lynx include two reliable reports from Wilson’s Mills, ME in 1995 and 1998. Wilson’s Mills is located about 10 miles from the refuge boundary. State monitoring efforts within the past five years have detected Canada lynx, most notably in Success, Cambridge (10 miles south) and Pittsburg, NH (20 miles north). It is therefore possible that Canada lynx may be present on, or occasionally use refuge lands. Maine and New Hampshire: The following species are confirmed to occur on the refuge and have been listed by the states of New Hampshire and Maine as threatened or endangered: American pipit (ME), American three-toed woodpecker (NH), black tern (ME), pied-billed grebe (NH), common loon (NH), northern harrier (NH), osprey (NH), and little brown bat (ME, NH). State listed species suspected to occur on the refuge, but have not been documented include: northern bog lemming (ME) and peregrine falcon (ME, NH). The refuge acquisition boundary is adjacent to an active peregrine falcon nest near C Pond, ME. Peregrines nesting at nearby Diamond Peaks, NH occasionally forage on the refuge. Additionally, there are records for golden eagle (ME, NH), common tern (NH), Cooper’s hawk (NH), and common nighthawk (NH) from the Umbagog area. C Pond on the refuge is also a historic golden eagle nest site. Golden eagles have also been reported foraging within 15 miles of the refuge boundary, in Wilson's Mills, ME. Species considered rare in northern New Hampshire that occur on the refuge include: gray jay, spruce grouse, black-backed woodpecker, merlin, rusty blackbird, Canada warbler, and palm warbler and wood turtle (USFWS 2008).

2. Waterfowl Waterfowl species known to breed on the refuge include: American black duck, ring-necked duck, wood duck, common goldeneye, hooded merganser, common merganser, mallard, green-winged and blue-winged teal, and Canada goose. The area supports high concentrations of American black ducks. Many additional species such as snow goose, scoter, ring-necked duck, common goldeneye, scaup, bufflehead, American widgeon, northern pintail, and green-winged teal frequent the refuge during migration (USFWS 2008).

3. Other Migratory Birds In additional to bald eagles, Umbagog NWR supports a variety of raptors, including: osprey, sharp-shinned hawks, northern goshawks, red-shouldered hawks, and broad-winged hawks, among others. Over 20 species of warblers breed in the refuge area. In the last five years, Umbagog Lake has supported an average of about 15 territorial loon pairs, a decline from a peak of over 30 territorial pairs in 2000.


4. Resident Wildlife The Umbagog area is home to an array of resident mammals, including: moose, white-tailed deer, black bear, eastern coyote, red fox, beaver, river otter, mink, fisher, bobcat, muskrat and snowshoe hare, as well as a variety of small mammal species and bats. Several white-tailed deer, winter concentration areas are located within the refuge acquisition boundary, including south of the refuge headquarters along the Magalloway River, along the Rapid River, near the southern end of Lake Umbagog, and a small area in the vicinity of Whaleback Ponds. Through anuran call surveys, vernal pool surveys, and observations made by refuge staff, eight species of frogs and toads have been confirmed on Umbagog NWR, including one species of concern (northern leopard frog). The rare blue-spotted salamander is also known to occur on the refuge.

C. Hunting Hunting pressure in the Lake Umbagog area is considered moderate for northern New Hampshire (Coos County) and western Maine (Oxford County). Hunting occurred on all lands prior to USFWS ownership. Umbagog NWR has been open to public hunting of big game, upland game and migratory game birds for all USFWS-owned lands within the refuge boundary since 2000 (USFWS 2000). This plan updates the Hunting Management Plan from 2007 (USFWS 2007). Hunting would continue to occur throughout the refuge’s 36,957 acres (see Figure 1), which includes recently acquired refuge lands totaling 16,586 acres (11,042 acres in New Hampshire and 5,544 acres in Maine). Additionally, the refuge has an active acquisition program. Future acquisitions would be considered a minor change to the hunting program and covered if hunting on newly acquired lands would be conducted in accordance with this hunting management plan, and current hunting regulations, policies and procedures. The Refuge Manager will document that all requirements per USFWS policy have been fully satisfied before newly acquired acreage is added to the existing hunting program. Providing opportunities for visitors to hunt will promote stewardship of natural resources, and increase public appreciation and support for Umbagog NWR.

II. CONFORMANCE WITH STATUTORY AUTHORITIES The Refuge Recreation Act of 1962, as amended (16 U.S.C. 460K) authorizes the Secretary of the Interior to administer refuges, hatcheries, and other conservation areas for recreational use. The Refuge Recreation Act requires: 1) that any recreational use permitted will not interfere with the primary purpose for which the area was established; and 2) that funds are available for the development, operation, and maintenance of the permitted forms of recreation. Fundamental to the management of lands within the Refuge System is the Refuge Improvement Act, which provides a mission for the Refuge System and clear standards for its management, use, planning, and growth. The Act recognized six priority wildlife-dependent recreational uses: hunting, fishing, wildlife observation and photography, and environmental education and interpretation, when determined to be compatible with the mission of the Refuge System and purposes of the refuge. These six priority wildlife-dependent recreational uses, including hunting,


“shall receive priority consideration in national wildlife refuge planning and management.” The Secretary of Interior may permit hunting on a refuge if it is determined that the use is compatible, meaning the hunting program would not materially interfere with or detract from the fulfillment of the purposes of the refuge or the mission of the Refuge System. Recreational hunting authorized by the regulations should not interfere with the primary purpose for which Umbagog NWR was established, which is based upon the completion of a compatibility determination (see Appendix A of this plan).

III. STATEMENT OF OBJECTIVES The primary objective is to provide safe and compatible hunting opportunities on the Umbagog NWR in accordance with the refuge’s public hunting plan and CCP. Umbagog NWR would continue to be open to hunting migratory game birds, upland game and big game, which has historically been the case in the Umbagog area. Prior to the establishment, refuge lands and the surrounding area were hunted for many years when primarily under private timber company ownership. The Umbagog NWR hunting program would allow hunters to continue hunting as they have in the past, in accordance with State and Federal regulations. Maine hunting seasons and regulations would apply to all refuge lands in Maine, and New Hampshire hunting seasons and regulations would apply to refuge lands in New Hampshire. Hunters would also have to comply with additional refuge-specific regulations, including but not limited, to those contained in. Hunters would also have to comply with additional refuge-specific regulations, including but not limited to those contained in Title 50 of the Code of Federal Regulations (CFR) Parts 32.38 and 32.48, which are revised or updated annually as needed. Providing wildlife-dependent recreation, including hunting, on refuges help ensure fulfillment of our duty to achieve refuge purposes and further the Refuge System mission:

1. Conserve and restore habitats and ecosystems, specifically wetlands, adjacent upland habitat, and lake shoreline for the benefit of wildlife.

2. Conserve, restore where appropriate, and enhance all species of fish, wildlife, and plants

that are endangered or threatened with becoming endangered, as well as preserve populations, especially waterfowl and migratory birds.

3. Protect unique habitats that support a variety of migratory bird and resident mammal, fish,

reptile, amphibian, invertebrate, and rare plant species, thereby contributing to the preservation of biological diversity in the northeastern United States.

4. Instill an appreciation of fish, wildlife, and plants, and their conservation, by providing the

public with safe, high-quality, and compatible wildlife-dependent recreation.


IV. ASSESSMENT

A. Are wildlife populations present in numbers sufficient to sustain optimum population levels for priority refuge objectives other than hunting?

Current, refuge-specific data on populations of game species are limited. However, the area has been open to hunting for many years under State of Maine and New Hampshire hunting regulations and management. The States of Maine and New Hampshire monitor and manage populations of game species on a state-wide level to ensure sustainable population levels (NHFGD 2017, NHFGD 2015, Sullivan 2017). The refuge relies on State wildlife assessments to guide management of game species on the refuge. Migratory waterfowl populations are Federally-managed on a flyway-wide level. Hunting pressure on the refuge is presently considered moderate for northern New Hampshire and western Maine. Continuation of hunting will allow for the management of game species to be kept in balance with carrying capacity and maintenance of healthy habitat conditions for game and non-game wildlife species. The refuge hunting program will be governed by additional refuge-specific regulations designed to minimize any potential conflicts with other refuge management objectives. The hunting program will be reviewed annually and adjusted if necessary to reduce or avoid any conflicts. Information on impacts is provided in the Compatibility Determination (Appendix A) and Environmental Assessment for Public Hunting Expansion (Appendix B).

B. Is there competition for habitat between target species and other wildlife? There is little to no competition among migratory birds, upland game or big game for habitat on the refuge. While some of the species use the same foods or forage in similar areas, the abundant acreage of habitat available to wildlife on the refuge and surrounding areas tends to distribute species widely. The hunting program will be reviewed annually and adjusted if necessary to reduce or avoid any competition conflicts.

C. Are there unacceptable levels of predation by target species on other wildlife? There are not any unacceptable levels of predation by target species on other wildlife. The hunting program will be reviewed annually and adjusted if necessary to reduce any unacceptable levels of predation.

V. DESCRIPTION OF THE HUNTING PROGRAM The Umbagog NWR hunting program will be conducted according to regulations developed annually by the State of Maine Department of Inland Fisheries and Wildlife for refuge lands located in Maine, and by the State of New Hampshire Fish and Game Department for refuge lands located in New Hampshire, Federal regulations, and additional refuge-specific regulations contained in 50 CFR.


A. Areas of the Refuge that Support Populations of Target Species Umbagog NWR currently encompasses about 36,957 acres of habitat in NH and ME. A wide variety of habitat types support populations of target species and non-target species on the refuge, including bogs, river and lakeshore marshes, northern white cedar swamps, alder swamps, jack pine shoreline and spruce-fir and northern hardwoods. See the additional details provided previously in the Introduction section under A. Environment and Land Use.

B. Areas and Seasons Open to Hunting Lands within the Umbagog NWR acquisition boundary represent a patch-work mosaic of federal, state, conservation organization, and private ownership, together with conservation easements held on privately owned lands. The objective of the refuge’s land acquisition program has been to complement the conservation efforts of these conservation partners. The Environmental Assessment (USFWS 1991) establishing the refuge emphasized the importance of a cooperative partnership to achieve the larger goals of protecting wildlife habitat and preserving existing land uses. This included timber management and traditional public uses, such as hunting. These objectives received considerable support from state agencies, local conservation organizations, landowners, and the public during the initial planning process that established the refuge. Providing opportunities for visitors to hunt will continue to promote stewardship of natural resources, and increase public appreciation and support for Umbagog NWR. The entire 36,957 acres at Umbagog NWR would continue to be open to hunting in accordance with State of Maine and State of New Hampshire seasons and methods (Figures 2 and 3). This includes recently acquired refuge lands totaling 16,586 acres (11,042 acres in New Hampshire and 5,544 acres in Maine). Additionally, the refuge has an active acquisition program. Future acquisitions would be considered a minor change to the hunting program and covered if hunting on newly acquired lands would be conducted in accordance with this hunting management plan, and existing hunting regulations, policies and procedures. The Refuge Manager will document that all requirements per USFWS policy have been fully satisfied before newly acquired acreage is added to the existing hunting program. Lands open to hunting include upland deciduous, coniferous, and mixed forests, early successional habitat, open water, wetlands and peatlands (Figure 2). In New Hampshire, five permanent blinds are available to waterfowl hunters by reservation. Blinds are located in Leonard Marsh, Leonard Pond, Sweat Meadows, Harper’s Meadow and an unnamed backwater of the Magalloway River. Boat access for waterfowl and other types of hunting is available at a number of locations in the vicinity of Umbagog Lake, both on and off refuge ownership. Annual estimated visitation to Umbagog NWR for the purpose of hunting is estimated at 7,460 visits as of 2017. Annual estimated visitation for other purposes (fishing, wildlife observation, etc.) is estimated to be 73,540 as of 2017. The refuge will remain open to the public and all users during hunting season, as visitor conflicts have not been significant. The Refuge Manager may, upon annual review of the hunting program, impose further restrictions on hunting activity, recommend that the refuge be closed to hunting, consider zoning for different uses, or further liberalize hunting regulations within the limits of State law. Restrictions would occur if hunting becomes inconsistent with other higher priority refuge programs or endangers Refuge resources or public safety.


Figure 2


Figure 3


C. Species to be Hunted As defined by the USFWS Refuge Manual, hunting on refuges may be allowed for migratory game birds and resident game species, which are generally sub-divided into big game and upland (small) game categories. Hunting for species within all three categories will be permitted on Umbagog NWR, in accordance with State of Maine and State of New Hampshire hunting seasons and regulations. In New Hampshire, migratory game bird hunting will include: duck, goose, crow, coot, snipe, and woodcock; upland game hunting will include: coyote, fox, raccoon, woodchuck, squirrel, porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse; and big game hunting will include: bear, coyote, white-tailed deer, wild turkey, and moose. In Maine, migratory game bird hunting will include: goose, snipe, duck, coot, crow and woodcock; upland game hunting will include: fox raccoon, woodchuck squirrel, porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse; and big game hunting will include: bear, white-tailed deer, coyote, wild turkey, and moose. Hunting of wild turkey is a new species included for the 2018-2019 hunting season.

D. Justification for Permit Currently, refuge hunting permits are not required to hunt on Umbagog NWR, which will continue unless hunting pressure increases substantially in the future. Hunting information brochures/sheets are updated annually and made available to hunters on the refuge website, as well as at other refuge locations accessible to hunters and visitors. Special Use Permits (SUPs) are required for any commercial use on a refuge, therefore commercial guides and outfitters for hunters requires a SUP that will be issued at no cost to the guide/outfitter.

E. Consultation and Coordination Biologists and management personnel within the Maine Department of Inland Fisheries and Wildlife and the New Hampshire Fish and Game Department have been consulted and provided valuable information to inform the hunting program at Umbagog NWR, as needed. We consider consultation and coordination with both States to be an ongoing process. Beyond State wildlife agencies, refuge staff also consulted with staff from the USFWS Division of Migratory Bird Management, Pondicherry Division of the Silvio O. Conte National Fish and Wildlife Refuge in NH, Moosehorn NWR in ME, and Maine Coastal Islands NWR in ME regarding various aspects of the hunting program and this plan (e.g., impacts of hunting on resident wildlife, migratory birds, and non-hunted wildlife).

F. Control and Enforcement Hunting will be conducted during State (New Hampshire and Maine) big game, upland game, and waterfowl hunting seasons, and will be in accordance with Federal and State regulations. State conservation officers and game wardens patrol the area and insure adherence to hunting regulations. Refuge officers will supplement State law enforcement patrols from time to time. Additional law enforcement staff may be added as needed to increase coverage during hunting season. Hunt check stations will not be established on the Umbagog NWR at this time.


G. Staffing and Funds There are sufficient funds within the refuge’s annual operating budget to administer the hunting program. Fiscal resources to conduct the hunting program would continue to be minimal as the refuge has been open to hunting since 2000 and has relatively few refuge-specific regulations beyond State regulations. No administrative or recreation fees will be collected from participants. No permits would be issued to hunters. Special Use Permits (SUPs) are required for any commercial use on a refuge, therefore commercial guides and outfitters for hunters requires a SUP that will be issued at no cost to the guide/outfitter. Refuge costs associated with administration of hunting total an estimated $4,500 per year, and include staff time for planning and reporting, maintenance, leaflet preparation, law enforcement, and response to public inquiries, as well as supplies:

Annual Hunt Review and Guide SUPs Issuance – GS-12 Deputy Refuge Manager/ GS-11 Wildlife Biologist = $1,000

Preparation and Printing of Refuge Hunting Brochure – GS-12 Deputy Refuge Manager, GS-5 Administrative Assistant = $1,800

Managing Waterfowl Blind Reservation System/ Dispensing Information during year – GS-5 Administrative Assistant = $1,200

Maintenance of Waterfowl Blinds – WG-7 Maintenance Worker = $500

Total = $4,500

VI. MEASURES TAKEN TO AVOID CONFLICTS WITH OTHER MANAGEMENT OBJECTIVES

A. Biological Conflicts Hunting has occurred in the Umbagog area for generations prior to the creation of the refuge with minimal or no discernible adverse impacts to resources. Hunting can result in positive or negative impacts to the biological resources. Additional information on impacts is provided in the Compatibility Determination (Appendix A) and Environmental Assessment for Public Hunting Expansion (Appendix B). The public hunting program at Umbagog NWR will cause few biological conflicts with other management objectives. Federal and refuge-specific regulations are designed to avoid or minimize biological conflicts. Restricting use of ATVs, off-road travel, permanent stands and blinds, camping, and fires are all examples of measures taken to avoid biological conflicts. As detailed in the previous section I.B.1 Endangered, Threatened and Species of Special Concern, several sensitive species are located on Umbagog NWR. There are no known or anticipated biological conflicts between management objectives for sensitive species and the hunting program. For federally listed species, an Endangered Species Act section 7 evaluation was conducted (Appendix D). The evaluation determined that the activities proposed in the CCP, including hunting, may affect, but are not likely to adversely affect listed species – meaning effects


would be negligible (not reaching the level of ‘take’ of the species as defined under the Endangered Species Act).

B. Public Use Conflicts Peak recreational use of Umbagog NWR by non-hunters is concentrated during the summer and fall months. Hunting pressure on the refuge is presently considered moderate for northern NH and western Maine. Visitor conflicts between hunters and non-hunters have not been significant. Measures are taken to avoid or minimize public use conflicts, such as posting signs in prominent places around the refuge and providing other information in various forums to inform visitors that the refuge is open to hunting. As previously noted the Refuge Manager may, upon annual review of the hunting program, impose further restrictions on hunting activity, recommend that the refuge be closed to hunting, consider zoning for different uses, or further liberalize hunting regulations within the limits of State law. Restrictions would occur if hunting becomes inconsistent with other higher priority refuge programs or endangers Refuge resources or public safety.

C. Administrative Conflicts No administrative conflicts are known to occur or are anticipated to occur with the hunting program at Umbagog NWR. For many years, the refuge has planned and provided for hunting opportunities. Refuge management sets priorities, allowing staff sufficient time to administer the hunt program.

VII. CONDUCT OF THE HUNT Listed below are refuge-specific regulations in 50 CFR that pertain to Umbagog NWR as of the date of this plan. These regulations may be modified as conditions change.

A. Refuge-Specific Hunting Regulations

1. Maine A. Migratory Game Bird Hunting. We allow hunting of duck, goose, snipe, coot, crow,

and woodcock in accordance with State regulations subject to the following conditions: 1. Hunters must remove temporary blinds, boats, and decoys from the refuge

following each day's hunt. 2. We prohibit dog training on the refuge. 3. You may possess only approved nontoxic shot when hunting snipe, crow and

woodcock on the refuge. B. Upland Game Hunting. We allow hunting of fox, raccoon, woodchuck, squirrel,

porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse in accordance with State regulations, seasons, and bag limits, subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day.


2. You may possess only approved nontoxic shot when hunting upland game on the refuge.

3. We prohibit dog training on the refuge.

C. Big Game Hunting. We allow hunting of bear, white-tailed deer, coyote, wild turkey, and moose in accordance with State regulations subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day. 2. We prohibit dog training on the refuge. 3. Hunters must retrieve all species, including coyotes, harvested on the refuge. 4. We allow temporary blinds and tree stands that are clearly marked with the owner’s

name and address. Temporary blinds and tree stands may be erected no earlier than 14 days prior to the hunting season and must be removed within 14 days after the hunting season.

2. New Hampshire A. Migratory Game Bird Hunting. We allow hunting of duck, goose, snipe, coot, crow,

and woodcock in accordance with State regulations subject to the following conditions: 1. Hunters must remove temporary blinds, boats, and decoys from the refuge at the

end of each day's hunt. 2. We prohibit dog training on the refuge. 3. You may possess only approved nontoxic shot when hunting snipe, crow and


porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse in accordance with State regulations, seasons, and bag limits subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day. 2. You may possess only approved nontoxic shot when hunting upland game on the

refuge. 3. We prohibit dog training on the refuge.

C. Big Game Hunting. We allow hunting of black bear, coyote, white-tailed deer, wild turkey, and moose in accordance with State regulations, seasons, and bag limits subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day. 2. We prohibit dog training on the refuge. 3. Hunters must retrieve all species, including coyotes, harvested on the refuge. 4. We allow temporary blinds and tree stands that are clearly marked with the owner’s

name and address. Temporary blinds and tree stands may be erected no earlier than 14 days prior to the hunting season and must be removed within 14 days after the hunting season.


B. Hunter Requirements All State and Federal laws pertaining to hunting will apply. For example, hunters must possess valid New Hampshire and/or Maine State hunting licenses, permits, and stamps. All hunters in New Hampshire and Maine must present a previous hunting or archery license or a Certificate of Completion from an approved Hunter or Bowhunter Education or safety course when applying for a license. Age restrictions on hunting are the same as listed in New Hampshire and Maine State hunting regulations. Refuge-specific requirements listed in part A, above, also apply.

C. Hunter Orientation No formal orientation meetings will be held for hunters at Umbagog NWR. Hunting information brochures/sheets are updated annually and made available to hunters on the refuge website, as well as at other refuge locations accessible to hunters and visitors.

D. Anticipated Public Reaction Northern NH and western ME have a well-established hunting ethic and hunting is a traditional use of the Umbagog area. Hunting is an important economic and recreational use of New Hampshire’s and Maine’s natural resources. It is anticipated that local reaction to continuing the hunting program will be positive, with the possible exception of some hunters who will be affected by refuge-specific hunting regulations. There may be some negative reaction to continuation of the hunting program from some non-hunters.

E. Media Selection for Announcing and Publicizing the Hunt Program The public will be informed through local venues (e.g., media in Berlin, Colebrook, Lancaster, Bethel and Rangeley), the refuge website, and social media.


VIII. LITERATURE CITED New Hampshire Fish and Game Department (NHFGD). 2015. New Hampshire Game Management Report 2016-2025. Available online at: http://www.wildlife.state.nh.us/hunting/documents/game-mgt-plan.pdf New Hampshire Fish and Game Department (NHFGD). 2017. 2017 New Hampshire Wild Harvest Summary. Available online at: http://www.wildlife.state.nh.us/hunting/documents/2017-harvest-summary.pdf Sullivan, K. 2017. Personal communication. Maine Department of Inland Fisheries and Wildlife.

U.S. Fish and Wildlife Service (USFWS). 1991. Final Environmental Assessment, Proposal to Protect Wildlife Habitat, Lake Umbagog, Coos County, New Hampshire, Oxford County, Maine.

U.S. Fish and Wildlife Service (USFWS). 2007. Hunting management plan: Lake Umbagog National Wildlife Refuge. U.S. Fish and Wildlife Service, Lake Umbagog National Wildlife Refuge, Errol, NH. U.S. Fish and Wildlife Service (USFWS). 2008. Lake Umbagog National Wildlife Refuge Final Comprehensive Conservation Plan and Environmental Impact Statement. U.S. Fish and Wildlife Service, Umbagog National Wildlife Refuge, Errol, NH. Available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html U.S. Fish and Wildlife Service (USFWS). 2009. Umbagog National Wildlife Refuge Comprehensive Conservation Plan. U.S. Fish and Wildlife Service, Umbagog National Wildlife Refuge, Errol, NH. Available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html

IX. APPENDICES

Appendix A: Compatibility Determination, Public Hunting, Umbagog National Wildlife Refuge

Appendix B: Environmental Assessment for Public Hunting Expansion, Umbagog National Wildlife Refuge

Appendix C: Draft Finding of No Significant Impact, Environmental Assessment for Public Hunting Expansion, Umbagog National Wildlife Refuge

Appendix D: Intra-Service Section 7 Biological Evaluation Form

http://www.wildlife.state.nh.us/hunting/documents/game-mgt-plan.pdf

http://www.wildlife.state.nh.us/hunting/documents/2017-harvest-summary.pdf

https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html


Appendix A: Compatibility Determination Public Hunting

COMPATIBILITY DETERMINATION

USE: Public Hunting REFUGE NAME: Umbagog National Wildlife Refuge DATE ESTABLISHED: November 12, 1992 ESTABLISHING AND ACQUISITION AUTHORITIES: Umbagog National Wildlife Refuge (NWR; Umbagog Refuge; Refuge) is managed by the U.S. Fish and Wildlife Service (USFWS) and was established under the authorities of the:

1. Federal Property and Administrative Service Act of 1949, as amended (40 U.S.C. 471-535);

2. Emergency Wetlands Resources Act of 1986, as amended (16 U.S.C. § 3901 (b));

3. Migratory Bird Conservation Act of 1929, as amended (16 U.S.C. § 715d); and

4. Fish and Wildlife Act of 1956, as amended (16 U.S.C. § 742f(a)(4) and 742f(b)(1))

PURPOSE(S) FOR WHICH ESTABLISHED: In order to meet specific refuge and other broader USFWS directives, the following purposes were established for Umbagog NWR:

1. …the conservation of the wetlands of the Nation in order to maintain the public benefits they provide and to help fulfill international obligations contained in various migratory bird treaties and conventions... 16 U.S.C. § 3901(b) (Emergency Wetlands Resources Act);

2. …use as an inviolate sanctuary, or for any other management purpose, for migratory birds… 16 U.S.C. § 715d (Migratory Bird Conservation Act);

3. …the development, advancement, management, conservation, and protection of fish and wildlife resources… 16 U.S.C. § 742f(a)(4) (Fish and Wildlife Act); and

4. …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)

MISSION OF THE NATIONAL WILDLIFE REFUGE SYSTEM: The mission of the National Wildlife Refuge System (Refuge System) “is 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.”


Compatibility Determination – Public Hunting at Umbagog National Wildlife Refuge

March 2018 Draft – Page 2

DESCRIPTION OF USE:

a. What is the use? Is the use a priority public use?

The use is public hunting of migratory game birds, upland game, and big game. Hunting was identified as one of six priority public uses of the Refuge System by Executive Order 12996 (March 25, 1996) and legislatively mandated by the National Wildlife Refuge System Administration Act of 1966 (16 U.S.C. 668dd-668ee), as amended by the Refuge Improvement Act of 1997, when found to be compatible. Supporting uses associated with hunting at Umbagog NWR are camping, as well as commercial guides and outfitters. These secondary uses that facilitate wildlife-dependent priority public uses, such as hunting, have separate appropriate use findings and compatibility determinations (USFWS 2009). b. Where would the use be conducted? Umbagog NWR has been open to public hunting of big game, upland game and migratory game birds for all USFWS-owned lands within the refuge boundary since 2000 (USFWS 2000). Hunting occurred on all lands prior to USFWS ownership. Hunting would continue to occur throughout the refuge’s 37,047 acres (see Figure 1), which includes recently acquired refuge lands totaling 16,676 acres (11,042 acres in New Hampshire and 5,634 acres in Maine). Umbagog NWR consists of approximately 57 square miles in Oxford County, Maine and Coos County, New Hampshire. Additionally, the refuge has an active acquisition program. Future acquisitions would be considered a minor change to the hunting program and covered if hunting on newly acquired lands would be conducted in accordance with the existing hunting management plan, and current hunting regulations, policies and procedures (including compatibility). The Refuge Manager will document that all requirements per USFWS policy have been fully satisfied before newly acquired acreage is added to the existing hunting program. Lands open to hunting include upland deciduous, coniferous, and mixed forests, early successional habitat, open water, wetlands and peatlands. These habitats support big game such as moose, white-tailed deer, coyote, wild turkey and black bear, upland game including fox, raccoon, woodchuck, squirrel, porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse, as well as migratory game birds such as duck, goose, crow, coot, snipe, and woodcock. c. When would the use be conducted? Hunting will be conducted during State of New Hampshire and Maine big game, upland game, and waterfowl hunting seasons, and will be in accordance with Federal and State regulations. Specific regulations for the hunts will be published by the refuge in advance of the hunt seasons. d. How would the use be conducted? Hunting will continue to be conducted according to State and Federal regulations. Federal regulations contained in 50 CFR pertaining to the Refuge System Administration Act, and established refuge-specific regulations will apply. Hunting will including migratory game bird species (duck, goose, snipe, coot, crow, and woodcock), upland game species (fox, raccoon, woodchuck, squirrel, porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed



grouse), and big game species (bear, white-tailed deer, coyote, wild turkey, and moose). Hunting will be allowed on all land currently owned by the refuge and all areas of the Refuge will remain open to the public during hunting season, as visitor conflicts have not been significant. The Refuge Manager may, upon annual review of the hunting program, impose further restrictions on hunting activity, recommend that the refuge be closed to hunting, consider zoning for different uses, or further liberalize hunting regulations within the limits of State law. Restrictions would occur if hunting becomes inconsistent with other high priority refuge programs or endangers refuge resources or public safety. Currently, refuge hunting permits are not required to hunt on Umbagog NWR, which will continue unless hunting pressure increases substantially in the future. Hunting information brochures/sheets are updated annually and made available to hunters on the refuge website, as well as at other refuge locations accessible to hunters and visitors. Hunters will use vehicles on public roads to access hunting locations. Some hunting locations require access by walking, and by both motorized and non-motorized boating. Boat access for waterfowl and other types of hunting is available at a number of locations in the vicinity of Umbagog Lake, both on and off refuge ownership. In New Hampshire, five permanent blinds are available to waterfowl hunters by reservation. Blinds are located in Leonard Marsh, Leonard Pond, Sweat Meadows, Harper’s Meadow and an unnamed backwater of the Magalloway River. e. Why is the use being proposed? Fundamental to the management of lands within the Refuge System is the Refuge Improvement Act, which provides a mission for the Refuge System and clear standards for its management, use, planning, and growth. The Act recognized six priority wildlife-dependent recreational uses: hunting, fishing, wildlife observation, photography, environmental education, and interpretation, when determined to be compatible with the mission of the Refuge System and purposes of the refuge. These six priority wildlife-dependent recreational uses, including hunting, “shall receive priority consideration in national wildlife refuge planning and management. The Secretary of Interior may permit hunting on a refuge if it is determined that the use is compatible, meaning the hunting program would not materially interfere with or detract from the fulfillment of the purposes of the refuge or the mission of the Refuge System. Hunting is used in some instances to manage wildlife populations and is also a traditional form of wildlife-oriented recreation that many Refuge System lands can accommodate. Furthermore, adding wild turkey as a species and recently acquired lands (16,586 acres – 11,042 acres in New Hampshire and 5,544 acres in Maine) to the hunting program addresses interest of the public in engaging in one of the refuge’s priority public uses. These additions also fulfill intentions of the Comprehensive Conservation Plan (CCP), which states “land acquired will be open to long-term public access for compatible public uses such as: hunting, fishing, wildlife observation and photography, environmental education and interpretation” (USFWS 2009). AVAILABILITY OF RESOURCES:

There are sufficient funds within the refuge’s annual operating budget to administer the hunting program. Fiscal resources to conduct the hunting program would continue to be minimal as the refuge has been open to hunting since 2000 and has relatively few refuge-specific regulations beyond State regulations. No administrative or recreation fees will be collected from



participants. No permits would be issued to hunters. Special Use Permits (SUPs) are required for any commercial use on a refuge, therefore commercial guides and outfitters for hunters requires a SUP that will be issued at no cost to the guide/outfitter. Refuge costs associated with administration of hunting are estimated to include:

Annual Hunt Review and Guide SUPs Issuance – GS-12 Deputy Refuge Manager/ GS-11 Wildlife Biologist = $1,000 Preparation and Printing of Refuge Hunting Brochure – GS-12 Deputy Refuge Manager, GS-5 Administrative Assistant = $1,800 Managing Waterfowl Blind Reservation System/ Dispensing Information during year – GS-5 Administrative Assistant = $1,200 Maintenance of Waterfowl Blinds – WG-7 Maintenance Worker = $500 Total = $4,500

ANTICIPATED IMPACTS OF THIS USE:

Umbagog NWR has been open to hunting since 2000. Hunting pressure is considered moderate for northern New Hampshire and western Maine (USFWS 2009). Hunting has occurred in the Umbagog area for generations prior to the creation of the refuge with minimal or no discernible adverse impacts to resources. Hunting can result in positive or negative impacts to the wildlife resources. However, few additional impacts are anticipated with the addition of wild turkey and expansion of hunting to recently acquired lands (see discussion of hunting impacts in the refuge's Environmental Assessment for Public Hunting Expansion – Appendix B in the Hunting Management Plan).

a. Vegetation The physical effects on vegetation from hunting various game species on the refuge are expected to be minimal. Hunting may result in some trampling of vegetation, but since most of the vegetation will be dormant for a majority of the hunting season and hunters tend to disperse (versus repeated traffic in same areas), we expect the impacts to vegetation to be minimal to negligible. Spring turkey hunters could trample some new growth, but the spring turkey season occurs during the month of May, prior to the growing season in the area. Additionally, hunter use during all seasons will be dispersed throughout the refuge, minimizing the impact to any one area. Off-road vehicles, including for hunting, are prohibited on the refuge, which will avoid impacts to vegetation. Positive, indirect effects on the vegetation may result by maintaining white-tailed deer and moose populations at levels in sync with the carrying capacity of available habitat. The impacts of dense deer populations on forest regeneration and the composition and diversity of the herbaceous understory have been well documented (Tierson et al. 1966, Behrend et al. 1970, Tilghman 1989, Cote et al. 2004, White 2012). An overabundance of deer can suppress native vegetation, facilitating the success of invasive species in forested habitats (Knight et al. 2009).



b. Wildlife Hunting can have direct and indirect impacts on both target and non-target species. These impacts include direct mortality of individuals; changes in wildlife behavior; changes in wildlife population structure, dynamics, and distribution patterns; and disturbance from noise and hunters walking on- and off-trail (Cole and Knight 1990, Cole 1990, Bell and Austin 1985). In many cases, hunting removes a portion of the wildlife population that will otherwise naturally succumb to predation, disease, or competition (Bartmann et al. 1992). Typical changes in deer behavior in response to hunting include avoiding certain areas, becoming more wary, staying closer to cover, and shifting feeding times (e.g., feeding more at night) (King and Workman 1986). For waterfowl species, hunting may make them more skittish and prone to disturbance, reduce the amount of time they spend foraging and resting, alter their habitat usage patterns, and disrupt their pair and family bonds (Raveling 1979, Owen 1973, White-Robinson 1982, Madsen 1985, Bartelt 1987). Game populations will be managed at a sustainable population level by the respective state agencies (NHFGD 2017, NHFGD 2015, Sullivan 2017). In general, refuge visitors engaged in hunting will be walking off-trail. General disturbance from recreational activities, including hunting, vary with the wildlife species involved and the activity’s type, level, frequency, duration, and the time of year it occurs. The responses of wildlife to human activities, such as hunting, include avoidance or departure from the site (Owen 1973, Burger 1981, Kaiser and Fritzell 1984, Korschen et al. 1985, Kahl 1991, Klein 1993, Whittaker and Knight 1998), the use of suboptimal habitat (Erwin 1980, Williams and Forbes 1980), altered behavior or habituation to human disturbance (Burger 1981, Korschen et al. 1985, Morton et al. 1989, Ward and Stehn 1989, Havera et al. 1992, Klein 1993, Whittaker and Knight 1998), attraction (Whittaker and Knight 1998), and an increase in energy expenditure (Morton et al. 1989, Belanger and Bedard 1990). Some bird species flee from human disturbance, which can lower their nesting productivity and cause disease and death (Knight and Cole 1991). Miller et al. (1998) found bird abundance and nesting activities (including nest success) increased as distance from a recreational trail increased in both grassland and forested habitats. Bird communities in this study were apparently affected by the presence of recreational trails, where common species (i.e., American robins) were found near trails and more specialized species (i.e., grasshopper sparrows) were found farther from trails. Nest predation also was found to be greater near trails (Miller et al. 1998). Disturbance may affect the reproductive fitness of males by hampering territory defense, male attraction and other reproductive functions of song (Arcese 1987). Disturbance, which leads to reduced singing activity, makes males rely more heavily on physical deterrents in defending territories, which are time and energy consuming (Ewald and Carpenter 1978). These disturbances would most be noticed during the refuge spring male-only turkey hunting in May. While some disturbance to non-target wildlife species is expected, we anticipate that impact to be minimal to negligible, given that the majority of hunting activity occurs outside the breeding season (except for the spring turkey season). Hunters engaging in all hunting types could disturb resident wildlife, but negative impacts are expected to be short-term and limited. For federally listed species, a Section 7 evaluation was conducted (Appendix C in the Hunting Management Plan). The evaluation determined that the activities proposed in the CCP, including hunting, may affect, but are not likely to adversely affect listed species – meaning effects would be negligible (not reaching the level of ‘take’ of the species as defined under the Endangered Species Act of 1973, as amended).



Hunting can provide beneficial impacts by fostering a better appreciation and more complete understanding of the wildlife and habitats associated with the northern New Hampshire and western Maine landscape. This can translate into more widespread and stronger support for wildlife conservation, the refuge, the Refuge System, and the USFWS. c. Other Visitors and Users Currently, all areas of the refuge are open to hunters and other members of the public during hunting season. Although conflicts between user groups can occur, this does not appear to be a significant issue at present use levels. In the future, the refuge may need to manage public use to minimize conflicts and insure public safety, should significant conflicts become evident. This may include increasing public outreach, using zoning to separate user groups, or closing areas. PUBLIC REVIEW AND COMMENT:

As part of the Hunting Management Plan and accompanying Environmental Assessment, this compatibility determination will undergo public review, including a public notification and review period of a minimum of 14 days. We will inform the public through local venues, the refuge website, and social media. DETERMINATION (check one below): _____ Use is Not Compatible X Use is Compatible With the Following Stipulations STIPULATIONS NECESSARY TO ENSURE COMPATIBILITY:

We will manage the hunting program at Umbagog NWR in accordance with State and Federal regulations, as well as refuge-specific restrictions and general operations to ensure that wildlife and habitat management goals are achieved, and that the program is providing a safe, high quality hunting experience for participants. We will evaluate this program annually and if monitoring indicates that this use or any of its component are not compatible (materially interferes with or detracts from fulfillment of the Refuge System mission or the purposes of the refuge), we would curtail, modify or eliminate the use or component. The following stipulations are necessary to ensure compatibility for hunting in New Hampshire and Maine: a. All Hunting – Migratory Game Bird, Upland Game, and Big Game Hunting We prohibit dog training on the refuge. Other options for dog training on non-refuge lands are available.



b. Migratory Game Bird Hunting You may possess only approved nontoxic shot when hunting snipe, crow and woodcock on the refuge. c. Upland Game Hunting You may possess only approved nontoxic shot when hunting upland game on the refuge. d. Big Game Hunting Hunters must retrieve all species, including coyotes, harvested on the refuge. JUSTIFICATION:

Hunting is a popular form of wildlife recreation in northern New Hampshire and western Maine, as well as a traditional activity on Umbagog NWR. Hunting satisfies a recreational need, but hunting on national wildlife refuges is also an important, proactive management action that can prevent overpopulation and the deterioration of habitat. Hunting is a wildlife-dependent priority public use with minimal impact on refuge resources. It is consistent with the purposes for which Umbagog NWR was established, the USFWS policy on hunting, the Refuge Improvement Act, and the broad management objectives of the Refuge System. Policy provides for expanding opportunities for wildlife-dependent uses when compatible and consistent with sound fish and wildlife management, and ensuring that they receive enhanced attention during planning and management. Hunting seasons and bag limits are established by the states (Maine and New Hampshire) and are generally adopted by the refuge. These restrictions ensure the continued well-being of overall populations of game animals. Hunting does result in the taking of many individuals within the overall population, but restrictions are designed to safeguard an adequate population from year to year. Disturbance to other fish and wildlife does occur, but this disturbance is generally short-term and minimal, if not negligible, as adequate habitat occurs in adjacent areas. Loss of plants from foot traffic is minor, or temporary, since hunting occurs mainly after the growing season.



We do not expect this use to materially interfere with or detract from the mission of the refuge System nor diminish the purposes for which the refuge was established. The use will not cause an undue administrative burden. We will manage the use in accordance with State and Federal regulations, as well as refuge-specific restrictions and general operations to ensure that wildlife and habitat management goals are achieved, and that the use is providing a safe, high quality experience for participants. Restrictions will ensure proper control of the means of use and provide management flexibility should detrimental impacts develop. Annual adjustments can be made to the use or any of its components to ensure its continued compatibility, and to further the mission of the Refuge System by providing renewable resources, while conserving fish, wildlife, and plant resources for the benefit of present and future generations. Signature: Refuge Manager (Signature and Date) Concurrence: Regional Chief (Signature and Date) Mandatory 15-year re-evaluation date: ______________________________________

(Date)



REFERENCES: Arcese, P. 1987. Age, intrusion pressure and defense against floaters by territorial male Song Sparrows. Animal Behavior, 35, 773-784. Bartelt, G.A. 1987. Effects of disturbance and hunting on the behavior of Canada geese family groups in East Central Wisconsin. Journal of Wildlife Management, 51, 517-522. Bartmann, R.M., White, G.C., and Carpenter, L.H. 1992. Compensatory mortality in a Colorado mule deer population. Wildlife Monographs, 121, 1-39. Behrend, D.F., Mattfield, G.F., Tierson, W.C., and Wiley, J.E. 1970. Deer density control for comprehensive forest management. Journal of Forestry, 68, 695-700. Belanger, L., and Bedard, J. 1990. Energetic cost of man-induced disturbance to staging snow geese. Journal of Wildlife Management, 54, 36-41. Bell, D.V., and Austin, L.W. 1985. The game-fishing season and its effects on overwintering wildfowl. Biological Conservation, 33, 65-80. Burger, J. 1981. Effect of human activity on birds at a coastal bay. Biological Conservation 21, 231-241 Cole, D.N. 1990. Ecological impacts of wilderness recreation and their management. In J. C. Hendee, G.H. Stankey, and R.C. Lucas (Eds.), Wilderness Management (pp. 425–466). Golden, CO: North American Press. Cole, D.N., and Knight, R.L. 1990. Impacts of recreation on biodiversity in wilderness. Natural Resources and Environmental Issues, 0, 33-40. Cote, S.D., T.P. Rooney, J-P Tremblay, C. Dussault, and D.M. Waller. 2004. Ecological Impacts of Deer Overabundance. Annual Review of Ecology and Systematics 35:113-147. Erwin, R.M. 1980. Breeding habitat by colonially nesting water birds in two Mid-Atlantic U.S. regions under different regimes of human disturbance. Biological Conservation, 18, 39-51. Ewald, P.W., and Carpenter, F.L. 1978. Territorial responses to energy manipulations in the Anna hummingbird. Oecologia, 31, 277-292. Havera, S.P., Boens, L.R., Georgi, M.M., and Shealy, R.T. 1992. Human disturbance of waterfowl on Keokuk Pool, Mississippi River. Wildlife Society Bulletin, 20, 290-298. Kahl, R. 1991. Boating disturbance of canvasbacks during migration at Lake Poygan, Wisconsin. Wildlife Society Bulletin, 19, 242-248. Kaiser, M.S., and Fritzell, E.K. 1984. Effects of river recreationists on green-backed heron behavior. Journal of Wildlife Management, 48, 561-567.



King, M.M., and Workman, G.W. 1986. Response of desert bighorn sheep to human harassment: management implications. Transactions 51st North American Wildlife and Natural Resource Conference. Klein, M.L. 1993. Waterbird behavioral responses to human disturbance. Wildlife Society Bulletin, 21, 31-39. Knight, R.L., and Cole, D.N. 1991. Effects of recreational activity on wildlife in wildlands. Transactions of the 56th North American Wildlife and Natural Resources Conference, 238-247. Knight, T.M., J.L. Dunn, L.A. Smith, J. Davis, and S. Kalisz. 2009. Deer facilitate invasive plant success in a Pennsylvania forest understory. Natural Areas Journal 29(2):110-116. Korschen, C.E., George, L.S., and Green, W.L. 1985. Disturbance of diving ducks by boaters on a migrational staging area. Wildlife Society Bulletin, 13, 290-296. Madsen, J. 1985. Impact of disturbance on field utilization of pink-footed geese in West Jutland, Denmark. Biological Conservation, 33, 53-63. Miller S.G., Knight, R.L, and Miller, C.K. 1998. Influence of Recreational Trails on breeding bird communities. Ecological Society of America, 8(1), 162–169. Morton, J. M., Fowler, A. C., and Kirkpatrick, R. L. 1989. Time and energy budgets of American black ducks in winter. Journal of Wildlife Management, 53, 401-410 (also see corrigendum in Journal of Wildlife Management, 54, 683. New Hampshire Fish and Game Department (NHFGD). 2015. New Hampshire Game Management Report 2016-2025. Available online at: http://www.wildlife.state.nh.us/hunting/documents/game-mgt-plan.pdf New Hampshire Fish and Game Department (NHFGD). 2017. 2017 New Hampshire Wild Harvest Summary. Available online at: http://www.wildlife.state.nh.us/hunting/documents/2017-harvest-summary.pdf Owen, M. 1973. The management of grassland areas for wintering geese. Wildfowl, 24,123-130. Raveling, D.G. 1979. Traditional use of migration and winter roost sites by Canada geese. Journal of Wildlife Management, 43, 229-235. Sullivan, K. 2017. Personal communication. Maine Department of Inland Fisheries and Wildlife. Tierson, W. C., E. F. Patric, and D. F. Behrend. 1966. Influence of white-tailed deer on the logged northern hardwood forest. J. For. 64:801-805. Tilghman, N.G. 1989. Impacts of white-tailed deer on forest regeneration in northwestern Pennsylvania. Journal of Wildlife Management, 53, 524-532.






Ward, D.H., and Stehn, R.A. 1989. Response of brant and other geese to aircraft disturbance at Izembek Lagoon, Alaska. Anchorage, AK: U.S. Fish and Wildlife Service, Alaska Fish and Wildlife Research Center. Final report to the Minerals Management Service. White, M.A. 2012. Long-term effects of deer browsing: composition, structure and productivity in a northeastern Minnesota old-growth forest. Forest Ecology and Management 269: 222-228. White-Robinson, R. 1982. Inland and saltmarsh feeding of wintering brent geese in Essex. Wildfowl, 33, 113-118. Whittaker, D., and Knight, R. 1998. Understanding wildlife responses to humans. Wildlife Society Bulletin, 26(3), 312-317. Williams, G.J., and Forbes, E. 1980. The habitat and dietary preferences of dark-bellied brant geese and widgeon in relation to agricultural management. Wildfowl, 31, 151-157. U.S. Fish and Wildlife Service (USFWS). 1997. National Wildlife Refuge Improvement Act 1997. Public Law 105-57-Oct. 9, 1997. U.S. Fish and Wildlife Service (USFWS). 2000. Lake Umbagog National Wildlife Refuge Hunting Management Plan. U.S. Fish and Wildlife Service, Lake Umbagog National Wildlife Refuge, Errol, NH. U.S. Fish and Wildlife Service (USFWS). 2009. Umbagog National Wildlife Refuge Comprehensive Conservation Plan. U.S. Fish and Wildlife Service, Umbagog National Wildlife Refuge, Errol, NH. Available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html




Figure 1

Appendix B: Environmental Assessment for Public Hunting Expansion

Environmental Assessment for Public Hunting Expansion at

Umbagog National Wildlife Refuge Coos County, New Hampshire

Oxford County, Maine

Date: March 2018 This Environmental Assessment (EA) is being prepared to evaluate the impacts associated with the proposed action and complies with the National Environmental Policy Act of 1969, as amended (NEPA) in accordance with Council on Environmental Quality regulations (40 CFR §1500-1509) and Department of the Interior (516 DM 8) and U.S. Fish and Wildlife Service (550 FW 3) policies. NEPA requires examination of the impacts of proposed actions on the natural and human environment. Proposed Action: The U.S. Fish and Wildlife Service (USFWS) manages Umbagog National Wildlife Refuge (NWR, refuge), and in accordance with the Hunting Management Plan and Comprehensive Conservation Plan (CCP; USFWS 2009), proposes to:

1. open for wild turkey hunting throughout the refuge;

2. expand hunting opportunities to recently acquired lands, which includes 16,586 acres (11,042 acres in New Hampshire and 5,544 acres in Maine) since the last Hunt Management Plan update in 2007; and

3. revise refuge-specific regulations to more closely align with New Hampshire and Maine regulations.

Background: National wildlife refuges are guided by the mission and goals of the National Wildlife Refuge System (Refuge System), the purposes of an individual refuge, USFWS policy, and laws and international treaties. Relevant guidance includes the: National Wildlife Refuge System Administration Act of 1966 (NWRSAA), as amended by the National Wildlife Refuge System Improvement Act of 1997, as amended; Refuge Recreation Act of 1962, as amended; Fish and Wildlife Service Manual; and selected portions of the Code of Federal Regulations (CFR). Umbagog NWR was established on November 12, 1992 under the authorities of the:

1. Federal Property and Administrative Service Act of 1949, as amended (40 U.S.C. 471-535);

2. Emergency Wetlands Resources Act of 1986, as amended (16 U.S.C. § 3901 (b));

Environmental Assessment for Public Hunting Expansion at Umbagog NWR, March 2018

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3. Migratory Bird Conservation Act of 1929, as amended (16 U.S.C. § 715d); and

4. Fish and Wildlife Act of 1956, as amended (16 U.S.C. § 742f(a)(4) and 742f(b)(1))

In order to meet specific refuge and other broader USFWS directives, the following purposes were established for Umbagog NWR:

1. …the conservation of the wetlands of the Nation in order to maintain the public benefits they provide and to help fulfill international obligations contained in various migratory bird treaties and conventions... 16 U.S.C. § 3901(b) (Emergency Wetlands Resources Act);

2. …use as an inviolate sanctuary, or for any other management purpose, for migratory birds… 16 U.S.C. § 715d (Migratory Bird Conservation Act);

3. …the development, advancement, management, conservation, and protection of fish and wildlife resources… 16 U.S.C. § 742f(a)(4) (Fish and Wildlife Act); and

4. …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)

The mission of the National Wildlife Refuge System (Refuge System) “is to administer a national network of lands and waters for the conservation, management, and where appropriate, restoration of the fish, wildlife, and plant resources and their habitats within the United States for the benefit of present and future generations of Americans.”


The Refuge Recreation Act authorizes the Secretary of the Interior to administer refuges, hatcheries, and other conservation areas for recreational use. The Refuge Recreation Act requires: 1) that any recreational use permitted will not interfere with the primary purpose for which the area was established; and 2) that funds are available for the development, operation, and maintenance of the permitted forms of recreation. Fundamental to the management of lands within the Refuge System is the Refuge Improvement Act, which provides a mission for the Refuge System and clear standards for its management, use, planning, and growth. The Act recognized six priority wildlife-dependent recreational uses: hunting, fishing, wildlife observation and photography, and environmental education and interpretation, when determined to be compatible with the mission of the Refuge System and purposes of the refuge. These six priority wildlife-dependent recreational uses, including hunting, “shall receive priority consideration in national wildlife refuge planning and management.” The Secretary of Interior may permit hunting on a refuge if it is determined that the use is compatible, meaning the hunting program would not materially interfere with or detract from the fulfillment of the purposes of the refuge or the mission of the Refuge System. Recreational hunting authorized by the regulations should not interfere with the primary purpose for which Umbagog NWR was established, which is based upon the completion of a compatibility determination (Appendix A).


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Umbagog NWR was established as part of a comprehensive cooperative protection and management effort to conserve wildlife, wildlife habitat, wetlands, and timber resources along the northern New Hampshire-western Maine border. Partners in this conservation effort included the States of New Hampshire (NH) and Maine (ME), conservation organizations, land trusts, and local landowners. The Umbagog area was listed by both the states of ME and NH as a priority protection site under the North American Waterfowl Management Plan. This plan is designed to halt the decline of waterfowl populations, and involves federal and state agencies working alongside waterfowl conservation groups and others to protect and restore waterfowl habitat. The Umbagog area wetland complex has also been listed as a priority wetland for New England by the U.S. Environmental Protection Agency. Prior NEPA Related to the Proposed Action: Lands within the Umbagog NWR acquisition boundary represent a patch-work mosaic of federal, state, conservation organization, and private ownership, together with conservation easements held on privately owned lands. The objective of the refuge’s land acquisition program has been to complement the conservation efforts of these conservation partners. The Environmental Assessment (USFWS 1991) establishing the refuge emphasized the importance of a cooperative partnership to achieve the larger goals of protecting wildlife habitat and preserving existing land uses. This included timber management and traditional public uses, such as hunting. These objectives received considerable support from state agencies, local conservation organizations, landowners, and the public during the initial planning process that established the refuge. Umbagog NWR officially opened to public hunting in 2000 with a Hunting Plan and corresponding EA. An updated Hunting Management Plan and corresponding EA were completed in 2007 to improve the analysis of impacts of public hunting on the refuge. Both of these EAs concluded a Finding of No Significant Impact for public hunting and affirmed this public use on the refuge. The Umbagog NWR CCP was developed in 2009 with an Environmental Impact Statement, and included an expanded acquisition boundary. The CCP states that “land acquired will be open to long-term public access for compatible public uses such as: hunting, fishing, wildlife observation and photography, environmental education and interpretation” (USFWS 2009). Providing opportunities for visitors to hunt will continue to promote stewardship of natural resources, and increase public appreciation and support for Umbagog NWR. This EA evaluates the continuation of the refuge’s public hunting program, opening recently acquired tracts on the refuge to public hunting, opening the refuge to wild turkey hunting, and the revision of refuge-specific regulations to more closely align refuge hunting regulations with those of NH and ME (e.g., adopt state hunter orange requirements). Additionally, the refuge has an active acquisition program. Future acquisitions would be considered a minor change to the hunting program and covered if hunting on newly acquired lands would be conducted in accordance with the existing hunting management plan, and current hunting regulations, policies and procedures (including compatibility). The Refuge Manager will document that all requirements per USFWS policy have been fully satisfied before newly acquired acreage is added to the existing hunting program.


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Purpose and Need for the Proposed Action: Hunting is a healthy, traditional recreational use of renewable natural resources deeply rooted in America’s heritage, and it can also be an important wildlife management tool. Various laws and USFWS policies permit hunting on a national wildlife refuge when it is compatible with the purposes for which the refuge was established and acquired. Umbagog NWR’s CCP identified the goal to “provide high quality wildlife-dependent activities such as hunting …” (USFWS 2009) including specific objectives and strategies regarding turkey hunting and following state regulations. The existing Refuge hunt program has not been modified or updated since the CCP was published. To address the needs stated above, the purpose of the proposed action is to bring the refuge into compliance with management objectives detailed in the CCP, and meet the primary objective of hunting management plan “to provide safe and compatible hunting opportunities on the Umbagog NWR ….” Furthermore, Department of the Interior Secretarial Order 3356 directs the USFWS to enhance and expand public access to lands and waters on national wildlife refuges for hunting, fishing, recreational shooting, and other forms of outdoor recreation. The proposed action will also promote one of the priority public uses of the Refuge System. Providing opportunities for visitors to hunt will promote stewardship of our natural resources, and increase public appreciation and support for the Refuge. Alternatives Considered: There are no unresolved conflicts about the proposed action with respect to the alternative uses of available resources, because the minor changes proposed by this action are not expected to have negative impacts to the ecological, aesthetic, historic, cultural, economic, social, or health aspects of the refuge and surrounding communities. Therefore, the USFWS does not need to consider additional alternatives (43 CFR 46.310(b)). Proposed Action Alternative – Expansion of the Hunting Program to Recently Acquired Lands (since 2007), Addition of Turkey Hunting Throughout the Refuge, and Revision of Refuge-Specific Regulations to More Closely Align with New Hampshire and Maine Regulations This alternative to expand the hunting program to include recently acquired lands since 2007 (11,042 acres in NH and 5,544 acres in ME), addition of wild turkey to the species approved for hunting, and the revision of refuge-specific regulations to more closely align with the States is proposed in accordance with the Hunting Management Plan and Comprehensive Conservation Plan (CCP; USFWS 2009). The refuge has updated the Hunting Management Plan, and is referred to in this EA as the Proposed Action Alternative. Under this alternative, Umbagog NWR would continue to be open to hunting migratory game birds, upland game and big game, as has historically been the case at in the Umbagog area. Prior to the establishment, refuge lands and the surrounding area were hunted for many years when primarily under private timber company ownership. Under this alternative, the refuge hunting program would allow hunters to continue hunting as they have in the past, in accordance with State and Federal regulations. State of Maine hunting seasons and regulations would apply to all refuge lands in ME, and State of


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New Hamphire hunting seasons and regulations would apply to refuge lands in NH. Hunters would also have to comply with additional refuge-specific regulations, including but not limited to those contained in 50 CFR §32.38 and §32.48, which are revised or updated annually as needed. Those proposed under this alternative for the 2018-2019 hunting season include:

Maine A. Migratory Game Bird Hunting. We allow hunting of duck, goose, snipe, coot, crow,

and woodcock in accordance with State regulations subject to the following conditions: 1. Hunters must remove temporary blinds, boats, and decoys from the refuge

following each day's hunt. 2. We prohibit dog training on the refuge. 3. You may possess only approved nontoxic shot when hunting snipe, crow and


porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse in accordance with State regulations, seasons, and bag limits, subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise



C. Big Game Hunting. We allow hunting of bear, white-tailed deer, coyote, wild turkey, and moose in accordance with State regulations subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day. 2. We prohibit dog training on the refuge. 3. Hunters must retrieve all species, including coyotes, harvested on the refuge. 4. We allow temporary blinds and tree stands that are clearly marked with the

owner’s name and address. Temporary blinds and tree stands may be erected no earlier than 14 days prior to the hunting season and must be removed within 14 days after the hunting season.

New Hampshire A. Migratory Game Bird Hunting. We allow hunting of duck, goose, snipe, coot, crow,

and woodcock in accordance with State regulations subject to the following conditions: 1. Hunters must remove temporary blinds, boats, and decoys from the refuge at the

end of each day's hunt. 2. We prohibit dog training on the refuge. 3. You may possess only approved nontoxic shot when hunting snipe, crow and


porcupine, skunk, snowshoe hare, ring-necked pheasant, and ruffed grouse in


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accordance with State regulations, seasons, and bag limits subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise



C. Big Game Hunting. We allow hunting of black bear, coyote, white-tailed deer, wild turkey, and moose in accordance with State regulations, seasons, and bag limits subject to the following conditions: 1. We prohibit night hunting from 1/2 hour after sunset until 1/2 hour before sunrise

the following day. 2. We prohibit dog training on the refuge. 3. Hunters must retrieve all species, including coyotes, harvested on the refuge. 4. We allow temporary blinds and tree stands that are clearly marked with the

owner’s name and address. Temporary blinds and tree stands may be erected no earlier than 14 days prior to the hunting season and must be removed within 14 days after the hunting season.

The Refuge Manager may, upon annual review of the hunting program, impose further restrictions on hunting activity, recommend that the refuge be closed to hunting, consider zoning for different uses, or further liberalize hunting regulations within the limits of State law. Restrictions would occur if hunting becomes inconsistent with other higher priority refuge programs or endangers Refuge resources or public safety.

This alternative offers increased opportunities for public hunting and fulfills the USFWS mandate under the Refuge Improvement Act. The USFWS has determined that public hunting is compatible with the purposes of Umbagog NWR, and the mission of the Refuge System.

Mitigation Measures and Conditions: The refuge-specific regulations detailed above (and in 50 CFR) are measures under the Proposed Action Alternative that will reduce or avoid impacts. Hunting regulations will be enforced by refuge and State law enforcement officers. Providing hunting information through various forums will ensure the public is aware of applicable laws and policies. As detailed in the hunting management plan, additional measures would be taken to avoid conflict with other management objectives. These include, but are not limited to:

1. Restricting use of ATVs, off-road travel, permanent stands and blinds, camping, and fires;

2. Posting signs in prominent places around the refuge and providing other information in various forums to inform visitors that the refuge is open to hunting; and,

3. Conducting an annual review of the hunting program. To ensure that the hunting program on the refuge is compatible with refuge purposes and the mission of the Refuge System, the following stipulations would be adhered to:


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1. We prohibit dog training on the refuge. Other options for dog training on non-refuge lands are available.

2. Hunters may possess only approved nontoxic shot when hunting snipe, crow and woodcock on the refuge, and when hunting upland game on the refuge.

3. Hunters must retrieve all species, including coyotes, harvested on the refuge.

Affected Environment: Umbagog NWR consists of approximately 57 square miles in Oxford County, ME and Coos County, NH. The proposed action is located throughout the 36,957 acre refuge, including 16,586 acres that have been acquired since the Hunting Management Plan was last updated in 2007. Refuge lands include upland deciduous, coniferous, early successional habitat, and mixed forests, as well as open water, wetlands and peatlands. Table 1 provides additional, brief descriptions of affected resources. For more detailed information regarding the affected environment, please see Chapter 3 of the CCP (USFWS 20009), which is available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html Environmental Impacts of the Action: This section analyzes the environmental consequences of the action on each affected resource, including direct and indirect impacts. This EA only includes the written analyses of the environmental consequences on a resource when the impacts on that resource could be more than negligible and therefore considered an “affected resource”. Any resources that will not be more than negligibly impacted by the action have been dismissed from further analyses. The refuge’s Compatibility Determination for public hunting also has a summary of potential impacts associated with hunting, and is available in Appendix A of the Hunting Management Plan. Impact Types Direct impacts are those which are caused by the action and occur at the same time and place. Indirect impacts are those which are caused by the action and are later in time or farther removed in distance, but are still reasonably foreseeable. Impacts includes ecological (such as the impacts on natural resources and on the components, structures, and functioning of affected ecosystems), aesthetic, historic, cultural, economic, social, or health, whether direct, indirect, or cumulative. Impacts may also include those resulting from actions which may have both beneficial and detrimental impacts, even if on balance the agency believes that the impact will be beneficial. Beneficial impacts are those resulting from management actions that maintain or enhance the quality and/or quality of identified refuge resources or recreational opportunities. Adverse impacts are those resulting from management actions that degrade the quality and/or quantity of identified refuge resources or recreational opportunities. Duration of Impacts Short-term impacts affect identified refuge resources or recreational opportunities; they occur during implementation of the management action but last no longer.



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Medium-term impacts affect identified refuge resources or recreational opportunities that occur during implementation of the management action; they are expected to persist for some time into the future though not throughout the life of the Hunting Management Plan. Long-term impacts affect identified refuge resources or recreation opportunities; they occur during implementation of the management action and are expected to persist throughout the life of the Hunting Management Plan and possible longer. Intensity of Impact Negligible impacts result from management actions that cannot be reasonably expected to affect identified refuge resources or recreational opportunities at the identified scale. Minor impacts result from a specified management action that can be reasonably expected to have detectable though limited impact on identified refuge resources or recreation opportunities at the identified scale. Moderate impacts result from a specified management action that can be reasonably expected to have apparent and detectable impacts on identified refuge resources or recreation opportunities at the identified scale. Major impacts result from a specified management action that can be reasonably expected to have readily apparent and substantial impacts on identified refuge resources and recreation opportunities at the identified scale. Table 1 provides:

1. A brief description of the affected resources in the proposed action area; 2. Impacts of the proposed action on those resources, including direct and indirect impacts.

NATURAL RESOURCES

AFFECTED ENVIRONMENT

ANTICIPATED DIRECT AND INDIRECT IMPACTS

Wild Turkey: Wild turkey are a resident wildlife species, whose population is managed by the respective state agencies (NHFGD 2017, NHFGD 2015a, NHFGD 2015b, Sullivan 2017, Walski and Timmins 2017). Wild turkey populations have expanded and become established at the refuge since 2007. In ME, the refuge occurs in State’s Wildlife Management District 7, where turkey hunting has been permitted since 2007 (Sullivan 2017). In NH, the refuge occurs in the State’s Wildlife Management Units A and C2, where turkey hunting has been permitted since 2007 and 2003 respectively (Walski and Timmins 2017).

No Action: No negative impacts to habitat or other wildlife are known to occur from current turkey densities. Remaining closed to wild turkey hunting is not expected to have biological consequences. Proposed Action: Umbagog NWR has been open to hunting since 2000. Hunting pressure is considered moderate for northern NH and western ME (USFWS 2009). Hunting has occurred in the Umbagog area for generations prior to the creation of the refuge with minimal or no discernible adverse impacts to resources. Game populations will be managed at a sustainable population level by the respective state


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agencies (NHFGD 2017, NHFGD 2015a, Sullivan 2017). The expansion of hunting to refuge land acquired since 2007 is not expected to have an increase in adverse impacts. Opening the entire refuge to turkey hunting will align refuge hunting regulations with state regulations. Wild turkey populations will be managed at a sustainable population level by the respective state agencies (NHFGD 2015b, Sullivan 2017, Walski and Timmins 2017). Umbagog NWR will coordinate with the states if any unsustainable impacts to turkey populations on the refuge are observed.

Other Wildlife and Aquatic Species Umbagog NWR includes lands that serve as important breeding and migration habitat for many wetland-dependent wildlife species of Federal and State concern, including: bald eagle, American black duck, osprey, common loon, pied-billed grebe, and northern harrier. Both ME and NH have listed Umbagog Lake as a priority site in the North American Waterfowl Management Plan. The Umbagog wetland complex was also included on the U.S. Environmental Protection Agency's list of Priority Wetlands in New England.

No Action: Umbagog NWR is open to public access for a variety of activities, including hunting. Some minor, short-term negative impacts on small mammals, birds, and other wildlife due to disturbance associated with these public use activities occurs. Proposed Action: Since hunting and other public use activities already occur on Umbagog NWR, adding wild turkey to the species open for hunting on the refuge is not anticipated to increase disturbance to other wildlife and aquatic species related to a slight increase in human presence and noise. Spring turkey season occurs during the month of May, whereas most migratory birds nest in June in the Umbagog area. For those resident bird species, most are associated with wetlands or lakeshore habitat, both of which are not habitat types preferred by wild turkey. Disturbance associated with turkey hunting is not anticipated to increase beyond disturbances associated with access for current public use activities permitted on Umbagog NWR during the season(s): fishing, shed antler hunting, fiddle head picking, wildlife observation (e.g., trail hiking and bird watching), etc. Expanding hunting to include newly acquired lands is expected to result in hunting activity levels comparable to those associated with hunting activity prior to refuge acquisition, which were minimal or had no discernible adverse impacts to resources. Continuation of hunting will allow for the management of game species to be kept in balance with carrying capacity and maintenance of healthy habitat conditions for game and non-game wildlife species. Game populations will be managed at a sustainable population level by the respective state agencies (NHFGD 2017, NHFGD 2015a, Sullivan 2017).

Threatened and Endangered Species and Other Special Status Species Federal: The Canada lynx (Lynx canadensis) is listed as threatened under the Endangered Species Act of 1973, as amended. Canada lynx have been reported from areas near Umbagog NWR and some

No Action: Current refuge hunting regulations have few, if any, negative implications for species of special management concern, due largely to the seasonality of current approved hunting opportunities. Current approved hunting opportunities are confined to fall seasons (as


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suitable habitat for this species occurs on the refuge; however, the refuge is not located in designated critical habitat for Canada lynx. There are 4 confirmed historical (1880s) records of Canada lynx from Upton, ME, an area which includes the eastern shore of Umbagog Lake. Modern records for Canada lynx include two reliable reports from Wilson’s Mills, ME in 1995 and 1998. Wilson’s Mills is located about 10 miles from the refuge boundary. State monitoring efforts within the past five years have detected Canada lynx, most notably in Success, Cambridge (10 miles south) and Pittsburg, NH (20 miles north). It is therefore possible that Canada lynx may be present on, or occasionally use refuge lands. Maine and New Hampshire: The following species are confirmed to occur on the refuge and have been listed by the states of NH and ME as threatened or endangered: American pipit (ME), American three-toed woodpecker (NH), black tern (ME), pied-billed grebe (NH), common loon (NH), northern harrier (NH), osprey (NH), and little brown bat (ME, NH). State listed species suspected to occur on the refuge, but have not been documented include: northern bog lemming (ME) and peregrine falcon (ME, NH). The refuge acquisition boundary is adjacent to an active peregrine falcon nest near C Pond, ME. Peregrines nesting at nearby Diamond Peaks, NH occasionally forage on the refuge. Additionally, there are records for golden eagle (ME, NH), common tern (NH), Cooper’s hawk (NH), and common nighthawk (NH) from the Umbagog area. C Pond on the refuge is also a historic golden eagle nest site. Golden eagles have also been reported foraging within 15 miles of the refuge boundary, in Wilson's Mills, ME. Species considered rare in northern NH that occur on the refuge include: gray jay, spruce grouse, black-backed woodpecker, merlin, rusty blackbird, Canada warbler, and palm warbler and wood turtle (USFWS 2008).

established by the states), subsequently by default, they do not interfere with nesting or rearing of young for most special status species. Proposed Action: The addition of turkey hunting to refuge hunting regulations introduces a spring hunting season. Spring turkey season occurs during the month of May, whereas most migratory birds nest in June in the Umbagog area including those state listed bird species. For those resident bird species of special management concern, most are associated with wetlands or lakeshore habitat, both of which are not habitat types preferred by wild turkey. Canada lynx utilize denning sites in dense conifer regeneration, a habitat type not typically associated with wild turkey use. For federally listed species such as the Canada lynx, an Endangered Species Act section 7 evaluation was conducted (see Appendix D in Hunting Management Plan). The evaluation determined that the activities proposed in the CCP, including hunting, may affect, but are not likely to adversely affect listed species – meaning effects would be negligible (not reaching the level of ‘take’ of the species as defined under the Endangered Species Act). Overall, timing of the spring turkey season and habitat utilization by wild turkey is likely to avoid disturbance associated with expanded hunting and the addition of turkey hunting activities to species of management concern.

Vegetation (including vegetation of special management concern) There are many habitat types on Umbagog NWR, and the refuge is predominantly forested. While spruce fir associations occur in low lying and ridgetop areas and northern hardwood forest species occur on rich slopes, the refuge’s forest is not dominated by any one type. The forest is a mosaic of types often referred to as a mixed spruce/fir-northern hardwood forest. Wetlands are also prevalent on Umbagog NWR, and the area forms one of the largest freshwater wetland systems in the northeast. General habitat types include: fen and flooded meadow, open water and submerged aquatic vegetation, wooded floodplain, lakeshore pine

No Action: Minor to negligible adverse impacts on vegetation associated with Umbagog NWR’s current hunting program have been observed during the 17 years that the refuge has been open to hunting. Current hunting seasons occur during the dormant season when vegetation is least vulnerable. In addition, current refuge hunting regulations minimize impacts to vegetation including: the prohibition of cutting vegetation for blinds and tree stands, the authorization of temporary (versus permanent) blinds and tree stands, and the limitation of access to foot travel beyond maintained roads. The refuge’s current hunting program also helps minimize over browsing of native vegetation by game species.


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hemlock, spruce-fir, mixed woods and northern hardwoods. More specific information can be obtained in the Umbagog NWR CCP (USFWS 2009).

Proposed Action: Opening Umbagog NWR hunting program to turkey hunting will introduce a spring season that could result in minor to negligible, short-term adverse impacts to native vegetation during the growing season. Hunting pressure during the spring turkey hunting season (May) is expected to be low; thus, no increased impacts are expected beyond those already taking place from other approved public use activities occurring during the same time frame: access for fishing, wildlife observation (e.g., bird watching and trail hiking), fiddlehead harvesting, antler shed hunting, etc. In addition, refuge hunting regulations minimize impacts to vegetation including: the prohibition of cutting vegetation for blinds, the authorization of temporary (versus permanent) blinds, and the limitation of access to foot travel beyond maintained roads. Expanding the current hunting program to included recently acquired lands is expected to result in the same negligible impact to native vegetation as described above for the current hunt program under “no action”. The refuge’s current hunting program helps minimize over browsing of native vegetation by game species, the same is anticipated for newly acquired lands proposed under the preferred action.

Geology and Soils Umbagog NWR lies in the Upper Androscoggin River watershed, in a broad valley formed by the last ice age. Lakes, rivers, and ponds lie in the broad valley and range greatly in size and depth. Their soils are glacially derived deposits of sand, silt, clay, and gravel deposited by the glaciers and influenced by ecological processes (Sperduto and Nichols 2004). Deep alluvial soils exist near rivers and the prevalence of oxbows and river meanders record a history of dynamic river systems. Soils are deepest on lower slopes and thin to absent on mountaintops and ridges. Soils in these areas are derived from granite and gneiss bedrock.

Environmental Consequences Common to All Alternatives: No influence expected.

Air Quality The Environmental Protection Agency (EPA) regulates six criteria pollutants under the Clean Air Act of 1990, as amended (CAA): ozone, carbon monoxide, nitrogen dioxide, particulate matter, sulfur dioxide and lead as well as hazardous and other toxic air pollutants, including mercury, under the CAA Amendments of 1990. For each criteria pollutant, the EPA has established a maximum concentration above which adverse effects on human health may occur. These threshold concentrations are called National Ambient Air Quality Standards (NAAQS). Areas of the country where air pollution



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levels persistently exceed the NAAQS may be designated “nonattainment” (USFWS 2009). October 2017 data indicate that Coos County, NH and Oxford County, ME (Umbagog NWR is located in these counties) are in attainment for all criteria pollutants (https://www.epa.gov/green-book).

Water Resources The Upper Androscoggin River watershed drains into the Gulf of Maine. Precipitation gathers into small tributaries that feed into the larger ponds, lakes and rivers of the area. Umbagog Lake is the lowest of the Rangeley Lakes passing water from a larger area to the Northeast via the Rapid River. The Magalloway, Diamond, and Cambridge river systems also feed into Umbagog Lake which outlets through the Androscoggin River. Water quality is considered good, degraded only slightly by development, acid rain, and depositional mercury. The area’s numerous rivers, lakes, streams and ponds support wild brook trout and other species considered sensitive to pollution.


Wetlands A rich variety of wetland communities on the refuge supports an array of habitats benefiting widely diverse species of animals and plants. The Magalloway River, Whaleback Ponds, Greater Floating Island, Mountain Pond, Tidswell Point, and Dead Cambridge areas all contain extensive wetlands, some with such rare species as heart-leaved twayblade or bog sedge. The refuge peatlands are among the largest and most diverse in the state (Sperduto et al. 2000).


Floodplains Floodplain and lakeshore forests on Umbagog NWR lie next to water bodies and non-forested wetlands, and typically have high species richness with dynamic and complex biophysical processes. These habitats are important for nesting and foraging waterfowl, bald eagles, ospreys, and many migratory songbirds. They provide important structural components, including large nest trees for eagles and ospreys and cavity trees for nesting common goldeneye, wood duck, and certain songbirds. These habitats also help control erosion and sediment loading into the lake and its tributaries. Without forested shorelines, stream banks in this area are more susceptible to erosion. The New Hampshire Natural Heritage Bureau (NHNHB) has defined an area along the Magalloway River as a rare type of silver maple floodplain forest community of conservation concern (USFWS 2009).



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Wilderness Umbagog NWR contains no designated wilderness.


VISITOR USE AND EXPERIENCE



Umbagog NWR is a popular destination for hunting, fishing, wildlife observation, photography, paddling, motor-boating, camping, and snowmobiling among other uses. Visitation numbers are often difficult to obtain due to the complexity and number of access points, but annual visitation for all uses is estimated at approximately 73,540 from October 2016 to September 2017. The two most popular consumptive uses are hunting and fishing, which are estimated at 7,460 and 12,000 visits respectively from October 2016 to September 2017. The majority of visitation occurs between Memorial Day and Columbus Day, with a secondary peak during the winter snowmobiling season. The refuge has unrestricted foot access, and is largely undeveloped for this purpose.

No Action: Current hunting seasons established by the states are unlikely to conflict with other public uses due to the differences in seasonality. Most hunting associated with the refuge’s current hunting program occur between October 1 and December 31 of a given year. Most other public uses on the refuge occur between Memorial Day (May) and Columbus Day (October) weekends, resulting in minimal overlap. In addition, most of the hunting activity occurs in a dispersed manner, where other public uses are primarily associated with developed trails, observation sites, or waterways. Proposed Action: The opening of lands acquired since 2007 to hunting is unlikely to conflict with other public uses due to the differences in seasonality. Most hunting associated with the refuge’s current hunting program occur between October 1 and December 31 of a given year. While spring turkey hunting occurs in May in both ME and NH, it largely takes place prior to the Memorial Day weekend when most other public use activity begins to increase for the summer season. Similar to other hunting seasons, turkey hunting activity occurs in a dispersed manner, where other public uses are primarily associated with developed trails, observation sites, or waterways.

CULTURAL RESOURCES



Five historic and pre-historic sites are known to occur on Umbagog NWR. A detailed, systematic survey of the refuge would likely reveal many more sites that are prehistoric. Many of these potentially may occur on flooded lands since Errol Dam raised the water level and submerged former shorelines.

Environmental Consequences Common to All Alternatives: Umbagog NWR has no plans for any construction or ground disturbance in either version (current or proposed) of the hunt program, therefore, consultation with the pertinent State Historic Preservation Office and Federally recognized Tribes is not required. The USFWS policy is to preserve all cultural, historic, and archaeological


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resources in the public trust, and avoid any adverse effects wherever possible. There are no anticipated direct or indirect impacts to refuge cultural and historical resources anticipated following the guidance of these actions.

REFUGE MANAGEMENT AND OPERATIONS



Land Use Despite Umbagog NWR’s proximity to urban centers in southern New England, population density in the Upper Androscoggin Watershed continues to be relatively low. The region’s economy relies heavily on natural resource utilization, specifically recreation based tourism and the timber industry. The majority of the region’s land cover consists of forest. Active forest management is utilized across the region for timber production, and is applied on the forests at Umbagog NWR for wildlife habitat rehabilitation, maintenance, and enhancement.

No Action: For the current hunting program, observing state hunting seasons and bag limits allows the responsible state agencies to better manage game populations and the impacts these species have on private land near the Umbagog NWR and other issues (e.g., vehicle collisions on roadways in the vicinity of the refuge). Proposed Action: Opening to turkey hunting would observe state hunting regulations as described above under “No Action” as applied to the refuge’s current hunting program, and expand this scenario to include wild turkey. Opening Umbagog NWR to turkey hunting provides an opportunity for the responsible state agencies to better manage wild turkey populations throughout the states on private and public lands.

Administration As of 2017, refuge staff presently consists of five full-time employees consisting of: Refuge Manager, Deputy Refuge Manager, Biologist, two Maintenance Workers, a part-time Administrative Assistant, and a half-time Forester. The 2017 budget is approximately $850,000. The cost to administer Umbagog NWR’s existing hunting program in fiscal year 2017 totaled $4,500. This included printing costs and approximately 120 staff hours to administer the program, consisting of: hunt regulation updates, coordination with a vendor for printing of refuge hunt regulation flyers, distribution of hunt flyers, and facilitation of the refuge’s waterfowl blind reservation system.

No Action: If no changes occur to the hunt program, anticipated staff time and costs for implementing the hunt program at Umbabog NWR is expected to be minimal and similar to recent fiscal year 2017 costs into the future. Proposed Action: Umbagog NWR staff time and expense is not expected to increase beyond that of the current hunting program (No Action described above) to implement the changes in the proposed action. These proposed changes are expected to be easily integrated into the administration of the refuge’s current hunting program with little to no additional increases in staff time or costs. Fiscal resources to conduct the hunting program would continue to be minimal as the refuge has been open to hunting since 2000 and has relatively few refuge-specific regulations beyond State regulations. No administrative or recreation fees will be collected from participants, and no permits would be issued to hunters – all of which avoid or reduce increased costs.


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SOCIOECONOMICS



Local and Regional Economies Umbagog NWR is located in the Towns of Errol, Wentworth Location, and Cambridge, NH, as well as Upton and Magalloway Plantation, ME. These towns combined have a total population of 458. Several other small towns are within thirty to ninety miles from the refuge. The predominant land use in the vicinity of the refuge is forest. The Umbagog Area Chamber of Commerce lists the refuge as one of the area’s main attractions. Umbagog NWR averages about 73,540 visitors per year. Many people come to the area for the outdoor recreation opportunities from hunting, fishing, snowmobiling, boating, hiking, camping, paddling, and more. Total estimated expenditures from visitors were $1,900,000. Expenditures on hunting activities accounted for 11% of all expenditures, fishing accounted for 15.8%, and all non-consumptive activities at 73.2% (Carver and Caudhill 2006).

No Action: Umbagog NWR’s current hunting program accounts for $209,000 contributed to the economies of Coos County, NH, and Oxford County, ME. Proposed Action: Wild turkey hunting visitation is estimated to result in 50 additional visits to Umbagog NWR with each visit estimated at $46.19 in expenditures (Koontz et. al. 2008). Total expenditures associated with 50 visits from wild turkey hunting would total approximately $2,309.50. These revenues represent a negligible to minor impact, in the context of the economies of Coos and Oxford Counties. This is in addition to the $209,000 estimated expenditure stated above associated with the refuge’s current hunt program.

Forest Products Industry Browse of tree species desirable to the timber industry by game species, most notably moose and deer, has been a legitimate concern of natural resource managers in the industrial forest landscape of the northern forest. Hunting has been used as an effective method of population control when over browsing has exceeded acceptable levels of loss of forest regeneration.

No Action: For the current hunting program, observing state hunting seasons and bag limits allows the responsible state agencies to better manage game populations and the impacts these species have on private land near Umbagog NWR. Proposed Action: For the proposed changes to Umbagog NWR’s hunting program, observing state hunting season and bag limits allows the responsible state agencies to better manage game populations and the impacts these species have on private land near the refuge. The expansion of hunting to the recently acquired lands would likely result in a minor benefit of more effective management of game species by the responsible state agencies.


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ENVIRONMENTAL JUSTICE



Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, requires all Federal agencies to incorporate environmental justice into their missions by identifying and addressing disproportionately high or adverse human health or environmental effects of their programs and policies on minorities and low-income populations and communities. There are no known minority or low income communities within the affected environment.


INDIAN TRUST RESOURCES



DOI Environmental Compliance Memorandum 97-2 requires that all agency environmental assessments must address explicitly whether there are or not any Indian Trust Resources that may be impacted by the action. There are no known Indian Trust Resources on Umbagog NWR or the nearby area.


Cumulative Impact Analysis: Cumulative impacts are defined as “the impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (Federal or non-Federal) or person undertakes such other actions”.

Past, Present, and Reasonably Foreseeable Activity in Area of

Analysis Descriptions of Anticipated Cumulative Impacts

Hunting/Fishing The “great north woods” region that Umbagog NWR is located in has had a long standing hunting history. For over 150 years, this area has been dominated by the industrial forest product industry and has been subjected to moderate to intense

Migratory Birds – Waterfowl populations throughout the United States are managed through an administrative process known as flyways. Umbagog NWR is located in the Eastern Flyway. In North America, the process for establishing waterfowl hunting regulations is conducted annually. In the United States, the process involves a number of scheduled meetings (Flyway Study Committees, Flyway Councils, Service Regulations Committee, etc.) in which information regarding the status of waterfowl populations and their habitats is presented to


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habitat manipulation to produce merchantable forest products primarily for the paper industry. Large tracts of land have been owned by private companies who have historically allowed various forms of traditional uses to occur, especially hunting and fishing. This ownership and use pattern is a long standing part of the culture of the area and has provided economic benefit (both timber and recreation based) to the communities located in the region. When Umbagog NWR was established in 1992, the USFWS intended to allow “traditional uses” to continue as indicated in the initial EA. One traditional use mentioned is hunting. The refuge published a Hunting Management Plan in 2000, officially opening to hunting. Game species on lands were managed by both States prior to establishment of Umbagog NWR. Currently, the States are responsible for managing these populations on a state-wide, regional and management unit level. The refuge works in close coordination with the States to provide and share technical information and planning assistance. Game species are typically limited by habitat availability and suitability. Small game populations tend to be influenced by food resources (habitat), rather than hunting. Some game species can also be limited through the use of hunting as a management tool. For example, the Umbagog area is regionally important for deer wintering areas and habitat damage could occur if populations of big game were allowed to exceed carrying capacity. This habitat damage would affect populations of all resident wildlife (game and non-game).

individuals within the agencies responsible for setting hunting regulations. In addition, public hearings are held and the proposed regulations are published in the Federal Register to allow public comment. Annual waterfowl assessments are based upon the distribution, abundance, and flight corridors of migratory birds. An Annual Waterfowl Population Status Report is produced each year and includes the most current breeding population and production information available for waterfowl in North America (USFWS 2017a). The Report is a cooperative effort by the USFWS, the Canadian Wildlife Service, various state and provincial conservation agencies, and private conservation organizations. An Annual Adaptive Harvest Management Report (AHM) provides the most current data, analyses, and decision making protocols (USFWS 2017b). These reports are intended to aid the development of waterfowl harvest regulations in the United States for each hunting season. A refuge can select season dates, bag limits, shooting hours, and other options using guidance in these reports. A refuge can be more restrictive, but cannot be more liberal than the AHM allows. The USFWS believes that hunting on Umbagog NWR will not add significantly to the cumulative impacts of migratory waterfowl management on local, regional, or Eastern Flyway waterfowl populations because the percentage likely to be taken on the refuge, though possibly additive to existing hunting takes, would be a tiny fraction of the estimated populations. In addition, overall populations will continue to be monitored and future harvests will be adjusted as needed under the existing flyway and state regulatory processes. Several points support this conclusion: 1) the proportion of the national waterfowl harvest that occurs on National Wildlife Refuges is only 6 percent (USFWS 2013); 2) there are no waterfowl populations that exist wholly and exclusively on national wildlife refuges; 3) annual hunting regulations within the United States are established at levels consistent with the current population status; 4) refuges cannot permit more liberal seasons than provided for in Federal frameworks; and 5) refuges purchased with funds derived from the Federal Duck Stamp must limit hunting to 40 percent of the available area. Resident Wildlife – Refuges, including Umbagog NWR, conduct hunting programs within the framework of State and Federal regulations. Population estimates of huntable species are developed at a regional, state, flyway, and continental scale. Hunting frameworks and take limits are set based upon these estimates. The proposed refuge hunting program rules will be the same as, or more restrictive than, hunting regulations throughout the States of Maine and New Hampshire. By maintaining hunting regulations that are the same as or more restrictive than the States, individual refuges ensure that they are maintaining seasons which are supportive of management on a more regional basis. Such an approach also provides consistency with large scale population status and objectives. Umbagog NWR consistently coordinates with the States about the hunting program. Thus, even at the local level, the refuge only adds slightly to cumulative impacts on the resident wildlife, and a negligible amount to regional and statewide populations. Wildlife management of populations is important to ensure the health of the ecosystem, and the refuge’s hunt program provides minor, additional beneficial impacts to the cumulative impacts of wildlife management in the States of NH and ME.


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As a result, changes or additions to hunting on Umbagog NWR will have minor impacts on wildlife species in ME and NH. Although the Proposed Action will increase hunting opportunities slightly compared to the No Action Alternative, the slight increase in hunter activity will not rise to a significant cumulative impact locally, regionally, or nationally.

Other wildlife-dependent recreation (i.e. road and trail development and use) Most of the public use at Umbagog NWR is in the form of hunting and fishing, and occurs in a dispersed manner throughout the refuge. The refuge does maintain a limited number of developed access sites for facilitated non-consumptive uses. Natural resource based tourism is an important component of the economies in Coos County, NH and Oxford County, ME.

Developed access sites (trails-2, boat launches-3, and camp sites-18) to facilitate non-consumptive public uses (wildlife observation, wildlife photography, camping, paddling and boating) occupy a small percentage of the lands at Umbagog NWR. While the entire refuge is open to these non-consumptive, wildlife-dependent activities, these user groups generally do not partake in these activities at locations on the refuge other than at developed access sites. The most popular form of access at Umbagog is by boat. Disturbance to waterfowl during the nesting and brood rearing season by water based recreationalists (motorize boating, paddling, fishing, camping, wildlife observation, and wildlife photography) could potentially impact waterfowl production. These same water based recreational activities could have a cumulative impact during the hunting season by creating additional disturbance, but predominant use associated with these non-hunting activities occurs between Memorial Day (May) and Columbus Day (October) weekends, resulting in little overlap with the waterfowl hunting season. Plymouth State estimates average daily expenditures of visitors to Coos County at $86 per person per day. Many visitors to Umbagog NWR are camping and likely do not spend as much since campsites are generally not as expensive as motel accommodations. Even applying an estimate of half of Plymouth State estimate, to the estimated 27,000 visitors to Umbagog NWR, the non-consumptive contribution to the local economy is calculated to be $1,161,000.

Development and Population Increase The United States Census Bureau indicates a decline in population for both counties in which Umbagog NWR is located. Coos County, NH experienced a population loss of 1,016 from 2010 (census population of 33,055) to 2016 (population estimate of 32,039). Oxford County, ME experienced a population loss of 616 from 2010 (census population of 57,833) to 2016 (population estimate of 57, 217) (https://www.census.gov/).

A decreasing local human population can be expected to have negligible contributions to the cumulative impacts of wildlife populations, both game and non-game species. Arguably, a decreasing local human population could have benefits for wildlife populations. Public use and visitation numbers are slowly increasing however, and likely negate the potential positive impacts.

Agricultural Land Uses Agricultural land use in the form of farming practices associated with food production is sparse on landscape in the vicinity of Umbagog NWR. Forestry, however, is a land use that is

Staff at Umbagog NWR utilize Strategic Habitat Conservation (SHC) to determine the most appropriate locations on the refuge to provide a given habitat condition. By taking an SHC approach, habitat is sited to provide the most beneficial habitat conditions for the location. Habitat diversity and delivery is maximized by doing the right thing in the right place, as determined through site suitability. For wildlife this translates to

https://www.census.gov/


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utilized extensively in this area. Umbagog NWR has an active forest management program that utilizes a strategic habitat management framework in the application of forest management planning and implementation.

optimizing the availability and juxtaposition of habitat. The surrounding landscape in the Umbagog area, and Umbagog NWR lands prior to refuge ownership, have largely been managed for timber. Timber focused forest management, while creating habitat condition beneficial to some wildlife, does not by default provide an ideal habitat condition for a given site. Habitat conditions on the larger landscape may not be ideal for some species, limiting their habitat quality and quantity. Umbagog NWR’s forest management program supplies habitat conditions that are under represented on the larger landscape. The habitat focused forest management program at Umbagog NWR provides improved habitat conditions that support upland forest wildlife populations capable of sustaining a professionally managed hunting program.

Use of lead ammunition/tackle Umbagog NWR’s current hunting program prohibits the possession of lead shot while hunting upland small game; this is in addition to the federal prohibition of the use of lead shot for hunting waterfowl. The States of ME and NH have fishing regulations in place making the use of lead sinkers and jigs, one ounce or less in size, illegal for use.

Umbagog NWR has a restriction on the use of lead shot due to the distribution of wetlands though out the refuge. Deposition of lead shot in these wetlands poses the risk of lead poisoning for waterfowl and other bird species (e.g., eagles). While these refuge regulations have negligible impact on lead deposition at the landscape level, these regulations are important at the refuge scale due to the refuge containing one of the largest freshwater wetland systems in the northeast.

Climate Change Warming, whether it results from anthropogenic or natural sources, is expected to affect a variety of natural processes and associated resources. However, the complexity of ecological systems means that there is a tremendous amount of uncertainty about the impact climate change will actually have at the local level. That said, species at Umbagog NWR associated with boreal habitats to the north are likely to suffer consequences as their range retracts north as a result of a warming climate, whereas species associated with temperate habitats to the south are likely to benefit from a warming climate and expand their ranges north.

Species in Umbagog NWR’s current hunt program, such as moose and snowshoe hare, are likely to be adversely impacted by a warming climate. Moose populations in NH and ME are currently being negatively impacted by winter tick (Dermacentor albipictus) which is associated with a warmer climate. Wild turkey are a species proposed for opening under the proposed action, and are experiencing range expansions in ME and NH due in part to a warmer climate. White-tailed deer populations may also benefit from a warmer climate.

Summary of Findings: This EA provides evidence and analysis for determining whether to prepare an environmental impact statement (EIS) or a Finding of No Significant Impact (FONSI). The term “significantly” as used in NEPA requires consideration of both the context of the action and the intensity of effects.


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No Action Alternative There would be no additional cost to the refuge for maintaining the current hunt program in its current form, as reflected in the 2007 Hunting Management Plan. Not expanding the hunting program could adversely impact the credibility with local communities and state partners, and can be expected to be viewed by these groups as an inability of the USFWS to fulfill the commitments for the continuation of public access and traditional uses (including hunting) that the agency made upon refuge establishment and during the development of Umbagog NWR’s CCP. Minor, long-term impacts to habitat, especially vegetation browsed by game species, can be expected to occur on the 16,586 acres if the hunting program cannot be expanded to those lands. In addition, not allowing hunting on these recently acquired lands does not fulfill our mandates under the NWRSAA.

Proposed Action Alternative This alternative is the preferred action because it offers the best opportunity for a public hunt that would result in a minimal impact on physical and biological resources, while meeting USFWS mandates under the NWRSAA. The USFWS believes that expanding the hunting program on Umbagog NWR is not expected to have a significant impact to wildlife, other uses, or refuge administration. The proposed action would benefit the refuge’s forest management program by managing browse pressure at an acceptable level. The hunting program at Umbagog NWR is complimentary to the strategic habitat conservation approach to forestry that is being utilized to achieve forest habitat management goals; the proposed action will contribute to these habitat goals.

The USFWS proposes to: • open to wild turkey hunting throughout the refuge; • expand hunting opportunities on recently acquired lands, which includes 16,586 acres

(11,042 acres in NH and 5,544 acres in ME) since the last Hunting Management Plan update in 2007; and

• revise refuge-specific regulations to more closely align with NH and ME regulations. As analyzed above under the Proposed Action Alternative, the USFWS had determined that these proposed activities will not have any significant impacts on the human environment. List of Sources, Agencies and Persons Consulted: Maine Inland Fisheries and Wildlife: Kelsey Sullivan New Hampshire Fish and Game: Andrew Timmins and Ted Walski


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References: Carver, E., and J. Caudhill. 2006. Banking on Nature 2006: The Economic Benefits to Local Communities of National Wildlife Refuge Visitation. U.S. Fish and Wildlife Service. Washington, D.C. New Hampshire Fish and Game Department (NHFGD). 2017. 2017 New Hampshire Wild Harvest Summary. Available online at: http://www.wildlife.state.nh.us/hunting/documents/2017-harvest-summary.pdf New Hampshire Fish and Game Department (NHFGD). 2015a. New Hampshire Game Management Report 2016-2025. Available online at: http://www.wildlife.state.nh.us/hunting/documents/game-mgt-plan.pdf New Hampshire Fish and Game Department (NHFGD). 2015b. New Hampshire Wild Turkey Assessment 2015. Available online at: http://www.wildlife.state.nh.us/hunting/documents/nh-wildturkey-assessment-2015.pdf Sperduto, D.D., W.F. Nichols, and N. Cleavitt. 2000. Bogs and Fens of New Hampshire. New Hampshire Natural Heritage Program (NHNHB) Concord NH. Sperduto, D.D. and W.F. Nichols. 2004. Natural communities of New Hampshire. The New Hampshire Natural Heritage Bureau (NHNHB) and The Nature Conservancy (TNC), Concord, NH. Sullivan, K. 2017. Personal communication. Maine Department of Inland Fisheries and Wildlife. U.S. Fish and Wildlife Service (USFWS). 2008. Lake Umbagog National Wildlife Refuge Final Comprehensive Conservation Plan and Environmental Impact Statement. U.S. Fish and Wildlife Service, Umbagog National Wildlife Refuge, Errol, NH. Available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html U.S. Fish and Wildlife Service (USFWS). 2009. Umbagog National Wildlife Refuge Comprehensive Conservation Plan. January 2009. USFWS, Division of Planning, Hadley, MA. Available online at: https://www.fws.gov/refuge/Umbagog/what_we_do/conservation.html U.S. Fish and Wildlife Service. 2013. Issuance of Annual Hunting Regulations Permitting the Hunting of Migratory Birds. Final Supplemental Environmental Impact Statement. U.S. Department of Interior, Washington, D.C. 418 pp. Available online at: https://www.fws.gov/migratorybirds/pdf/policies-and-regulations/FSEISIssuanceofAnnualRegulations.pdf U.S. Fish and Wildlife Service. 2017a. Waterfowl population status, 2017. U.S. Department of the Interior, Washington, D.C. USA. Available online at: https://www.fws.gov/migratorybirds/pdf/surveys-and-data/Population-status/Waterfowl/WaterfowlPopulationStatusReport17.pdf




http://www.wildlife.state.nh.us/hunting/documents/nh-wildturkey-assessment-2015.pdf

http://www.wildlife.state.nh.us/hunting/documents/nh-wildturkey-assessment-2015.pdf



https://www.fws.gov/migratorybirds/pdf/policies-and-regulations/FSEISIssuanceofAnnualRegulations.pdf

https://www.fws.gov/migratorybirds/pdf/policies-and-regulations/FSEISIssuanceofAnnualRegulations.pdf

https://www.fws.gov/migratorybirds/pdf/surveys-and-data/Population-status/Waterfowl/WaterfowlPopulationStatusReport17.pdf

https://www.fws.gov/migratorybirds/pdf/surveys-and-data/Population-status/Waterfowl/WaterfowlPopulationStatusReport17.pdf


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U.S. Fish and Wildlife Service. 2017b. Adaptive Harvest Management: 2018 Hunting Season. U.S. Department of Interior, Washington, D.C. 69 pp. Available online at: https://www.fws.gov/migratorybirds/pdf/management/AHM/AHMReport2018.pdf Walski, T.W., and A. Timmins. 2017. Personal communication. New Hampshire Fish and Game Department. List of Preparers: Sean Flint, Biologist – Umbagog NWR Ian Drew, Deputy Refuge Manager – Umbagog NWR Paul Casey, Refuge Manager – Umbagog NWR State Coordination: The expansion of Umbagog NWR’s hunting program to include the changes as reflected in this EA and the associated draft Hunting Management Plan are identified as approved objectives and strategies in the 2009 Umbagog NWR CCP. State representatives were engaged in the development of these CCP strategies, and provided their review and recommendations of this hunt program expansion during their participation in the preparation of the CCP. Refuge staff contacted New Hampshire Fish and Game and Maine Inland Fisheries and Wildlife staff representatives during the fall of 2017 to acquire information that was used in preparation of this EA and the associated draft Hunting Management Plan. Public Outreach: Public notifications of the EA, Hunting Management Plan, and Compatibility Determination will be made available to the public through local venues, the refuge website, and social media notices, as well as notification in the Federal Register (as part of other expansions and openings on national wildlife refuges. Determination: This section will be filled out upon completion of any public comment period and at the time of finalization of the Environmental Assessment.

The USFWS action will not result in a significant impact on the quality of the human environment. See the attached “Finding of No Significant Impact”.

The USFWS action on this permit application may significantly affect the quality of the human

environment and the Service will prepare an Environmental Impact Statement. Preparer Signature: __________________________________________Date:________ Name/Title/Organization: __________________________________________________ ________________________________________________________________________ Certifying Officer Signature: ___________________________________Date:________ Name/Title: ______________________________________________________________

https://www.fws.gov/migratorybirds/pdf/management/AHM/AHMReport2018.pdf

Appendix C: Draft Finding of No Significant Impact


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DRAFT FINDING OF NO SIGNIFICANT IMPACT

ENVIRONMENTAL ASSESSMENT for PUBLIC HUNTING EXPANSION

UMBAGOG NATIONAL WILDLIFE REFUGE COOS COUNTY, NEW HAMPSHIRE

OXFORD COUNTY, MAINE

The U.S. Fish and Wildlife Service (USFWS) is proposing to expand hunting opportunities at Umbagog National Wildlife Refuge (NWR, refuge) in accordance with the refuge’s Hunting Management Plan and Comprehensive Conservation Plan (CCP). This expansion seeks to: 1) add wild turkey to the species approved for hunting at Umbagog NWR; 2) expand hunting opportunities to recently acquired lands, which includes 16,586 acres (11,042 acres in New Hampshire and 5,544 acres in Maine) since the last Hunting Management Plan update in 2007; and 3) revise refuge-specific regulations to more closely align with New Hampshire and Maine regulations. An Environmental Assessment (EA) was prepared in compliance with the National Environmental Policy Act of 1969, as amended (NEPA) to provide the decision-making framework that: 1) explores a reasonable range of alternatives to meet project objectives; 2) evaluates potential issues and impacts to the refuge, resources and values; and 3) identifies mitigation measures to lessen the degree or extent of these impacts. Selected Action Proposed Action Alternative: Under this alternative, Umbagog NWR would be open to hunting migratory game birds, upland game and big game, as has historically been the case in the Umbagog area. Prior to the establishment, refuge lands and the surrounding area were hunted for many years when primarily under private timber company ownership. Under this alternative, the refuge hunting program would allow hunters to continue hunting as they have in the past, in accordance with State and Federal regulations. Maine hunting seasons and regulations would apply to all refuge lands in Maine, and New Hampshire hunting seasons and regulations would apply to refuge lands in New Hampshire. Hunters would also have to comply with additional refuge-specific regulations, including but not limited to those contained in 50 CFR §32.38 and §32.48, which are revised or updated annually as needed.

The proposed action is intended to better align the hunting program and regulations at Umbagog NWR with those of each respective State. In accordance with the Hunting Management Plan and Comprehensive Conservation Plan (USFWS 2009) the proposed action would: 1) open for wild turkey hunting throughout the refuge; 2) expand hunting opportunities to recently acquired lands, which includes 16,586 acres (11,042 acres in New Hampshire and 5,544 acres in Maine) since the last Hunt Management Plan update in 2007; and 3) revise refuge-specific regulations to more closely align with New Hampshire and Maine regulations.

There are no unresolved conflicts about the proposed action with respect to the alternative uses of available resources, because the minor changes proposed by this action are not expected to


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have negative impacts to the ecological, aesthetic, historic, cultural, economic, social, or health aspects of the refuge and surrounding communities. Therefore, the USFWS does not need to consider additional alternatives (43 CFR 46.310(b)). Other Alternatives Considered and Analyzed No Action Alternative: There would be no additional cost to the refuge for maintaining the current hunt program in its current form, as reflected in the 2007 Hunting Management Plan. Not expanding the hunting program could adversely impact the credibility with local communities and state partners, and can be expected to be viewed by these groups as an inability of the USFWS to fulfill the commitments for the continuation of public access and traditional uses (including hunting) that the agency made upon refuge establishment and during the development of Umbagog NWR’s CCP. Minor, long-term impacts to habitat, especially vegetation browsed by game species, can be expected to occur on the 16,586 acres if the hunting program cannot be expanded to those lands. In addition, not allowing hunting on these recently acquired lands does not fulfill our mandates under the NWRSAA. Summary of Impacts Implementation of the No Action alternative and the Proposed Action (USFWS decision) would be expected to result in the following environmental, social, and economic impacts:

Affected Environment No Action: Proposed Action:

Hunted/Fished Species Minor, long-term adverse impacts to species hunted

Minor, long-term adverse impacts to species hunted

Other Wildlife and Aquatic Species

Minor, short-term adverse impacts to non-hunted species

Minor, long-term benefits to non-hunted species

Minor, short-term adverse impacts to non-hunted species

Minor, long-term benefits to non-hunted species

Threatened and Endangered Species

Not likely to adversely affect threatened and endangered species

Minor, short-term adverse impacts to State species of management concern

Not likely to adversely affect threatened and endangered species

Minor, short-term adverse impacts to State species of management concern

Vegetation Minor, short-term impacts to vegetation Minor long-term benefits to vegetation

Minor, short-term impacts to vegetation Minor long-term benefits to vegetation

Geology and Soils No impacts No impacts Air Quality No impacts No impacts Water Resources No impacts No impacts Wetlands No impacts No impacts Floodplains No impacts No impacts Wilderness Values N/A N/A Cultural Resources No impacts No impacts Visitor Use and Experience

Minor, short-term adverse impacts to other public uses

Minor, short-term adverse impacts to other public uses

Socioeconomics Minor, short-term and minor, long-term benefits

Minor, short-term and minor, long-term benefits

Refuge Management & Operations

Minor, short-term and minor, long-term impacts to refuge management and

operations

Minor, short-term and minor, long-term impacts to refuge management and

operations


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While refuges, by their nature, are unique areas protected for conservation of fish, wildlife and habitat, the proposed action will not have a significant impact on refuge resources and uses for several reasons. Measures to mitigate and/or minimize adverse impacts have been incorporated into the proposal:

1. The National Wildlife Refuge System uses an adaptive management approach to all wildlife management on refuges. This approach involves monitoring and re-evaluating the hunting and fishing opportunities on the refuge on a regular basis to ensure that the hunting and fishing programs continue to contribute to the biodiversity and ecosystem health of the refuge and these opportunities do not contribute to any cumulative impacts to habitat or wildlife.

2. The refuge-specific regulations detailed in 50 CFR are measures under action that will reduce or avoid impacts. Hunting regulations will be enforced by refuge and State law enforcement officers. Providing hunting information through various forums will ensure the public is aware of applicable laws and policies.

3. The action, along with proposed mitigation measures, will ensure the health and safety of refuge staff, visitors, and the hunters themselves.

4. The action is not in an ecologically sensitive area.

5. The action is not likely to adversely affect any threatened or endangered species; and will have no effect to Federally-designated critical habitat.

The proposal is compatible with the purpose of the refuge and the mission of the National Wildlife Refuge System (see the Compatibility Determination, Appendix A, in the Hunting Management Plan). Furthermore, the action is consistent with applicable laws and policies regarding the establishment of hunting on National Wildlife Refuges. Public Review The proposal has been thoroughly coordinated with all interested and/or affected parties. Parties contacted include: <to be summarized once comments are received and issues identified> Determination Based upon a review and evaluation of the information contained in the EA, as well as other documents and actions of record affiliated with this proposal, the USFWS has determined that the proposal to implement Public Hunting Expansion on Umbagog NWR does not constitute a major Federal action significantly affecting the quality of the human environment under the meaning of section 102(2)(c) of NEPA. As such, an EIS is not required. An EA has been prepared in support of this finding and is available upon request to Umbagog NWR.


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__________________________________ ____________ Regional Chief Date

Appendix D: Intra-Service Section 7 Biological Evaluation Form

Intra-Service Section 7 Biological Evaluation Form

Appendix H: Intra-Service Section 7 Biological Evaluation Form P-1

Appendix H: Intra-Service Section 7 Biological Evaluation Form


P-2



P-4



P-6

X

Lake Umbagog National Wildlife RefugeP.O. Box 240Route 16 NorthErrol, NH 03579-0240E-Mail: [email protected]: 603/482-3415

http://lakeumbagog.fws.gov

Federal Relay Servicefor the deaf or hard of hearing1800/877 8339

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

For National Wildlife Refuge System Information:1800/344 WILD

November 2008

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