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I. PHYSICAL CHARACTERISTICS

PART I

BACKGROUND STATEMENT NATIONAL ELK REFUGE

6/28/89

The National Elk Refuge consists of 24,700 acres of intermountain valley in the Jackson Hole area of northwestern Wyoming. The refuge is within Teton County and is bounded on the south by .the town of Jackson, on the east by Bridger-Teton National Forest (Gros Ventre Wilderness Areal and on the north by Grand Teton National Park. The refuge is six miles wide at its widest point an~ ten miles long from southwest to northeast. The elevation varies from 6,200 feet to 7,200 feet. The Tetons, visible to the west, rise to 13,766 feet at the summit of Grand Teton. The valley and surrounding mountains show classic examples of glaciation.

Soils at the lower elevations are alluvial, generally sandy loam or loam, and are shallow and permeable. The soils at the higher elevations are also loamy but there are considerable areas of gravelly soils and cobblestone on the south slopes and ridges. The northern half of the refuge consists of steep rolling hills. The southern half is glacial out wash material, with one resistant formation (Miller Buttel rising approximately 500 feet above the valley floor.

There are two major streams flowing through the refuge. The Gros Ventre River forms much of the northern boundary and Flat Creek, flowing east to west, nearly bisetts the refuge. As Flat Creek approaches the western boundary, it turns south and leaves the refuge in the southwest corner.

The climate is typical of high valleys in the northern Rocky Mountains, summers are cool and winters are long. Snowfall patterns form a gradient from 6 to 18 inches on the lower half of the refuge up to 4 feet on the north end •. Annual precipitation is 15.2 inches with about half received as snowfall. Temperature extremes vary from a summer high of 92-94 degrees Fahrenheit to winter lows of 35-40 degrees below zero. Record high i.s 101 degrees Fahrenheit and record low is 52 degrees below zero.

Huch of the refuge consists of grassy meadows and marshes on the valley floor with sedges, bluegrass, and brome grass being important components of the communities. The flood plain forest along the Gros Ventre River contains blue spruce, narrowleaf cottonwood, red osier dogwood and willow as major species. There are extensive areas of big sagebrush and rock outcroppings. The forested areas of lodgep~le pine, Douglas fir, and aspen are mostly on the northern slopes of the Gros Ventre hills.

Habitat: Open water (ponds/streams) Harsh lands Grasslands Shrub lands Wood lands Cultivated fields

TOTAL

Hajor Wildlife:

Acres: 326

1, 260 8, 144 9,416 3,097 2,457

24 ,700

\../hi le el k are the primary reason for the refuge and the habitat is managed primari Ly for elk, other highly visible and important species exist on and use the variety of upland, ripa r ian and wetland habitats. Many of these could be referred to as . "special recogniti-0n species." Forty-seven different mammals have been identified on the refuge.

Usually 30 to 40 Shiras moose use the riparian habitat along the Gros Ventre River during the winter and incidentals occur in the summer. Nearly 100 mule deer may winter on open slopes of and east of Hiller Butte. About 30 to 50 bighorn sheep winter near the east boundary of the refuge . Pronghorn antelope numbers vary from a few to 30+ animals. Coyotes e x ist as a summer population of several family groups and increase to nearly 100 as "transients" f ollow the elk herds to the refuge .

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Tract No. Tract Name

!22b Teton Valley q,,nch 122c Teton Valley Ranch 125 Hugh ~. Soest 126 Robert 8 . Ranck 127 Or1n H. Soest

130 Ronald 0. Oeleva 131 •h11 Ip H. Geier 134 Ellen Wilson Dornan !JS Philip w. Wilson IJSa Philip W. Wilson 136 Mendell s. Wilson !JS. Wil 1 hm S. Knowles

and Lesley C. Knowles 139 David D. Hunt1~~. Jr. 140 John D. Rennick

Acres

343.19 146.36 379. 22

4.92 ,~.856

S.001 S.016

12.645 JO. !JI 10.90

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NATIONAL ELK REFUGE TETON COUNTY, WYOMING

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Wil 1 hm A. Chittenden Sara H. Haubert Robert Budd Setts Charles D. Dickey, Jr. Donald V. Mahony and

Margaret L. Mahony Carolyn Scott Dejan1kus Corrmon Area, Teton Valley

Highlands Sobd1vh1on

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Nearly 175 species of birds have been observed on the refuge while 280 species of birds have been observed in Jackson Hole valley. Large numbers of ravens and black­billed magpies and up to 30 bald eagles and several golden eagles are scavengers. Kestrels. great-horned owls. red-tailed hawks and prairie falcons nest on the refuge. Osprey frequently hunt on the refuge and eagles nest near the refuge.

The refuge hosts a peregrine falcon hacking program. The greater sandhill crane nests in small numbers and fall concentrations of over 150 birds have been observed. An occasion~( whooping crane, usually Gray's Lake National Wil dlife Refuge birds, have been sighted. Trumpeter swans nest successfully and wintering populations number near 100, including tundra swans. Long-billed curlews grace the grasslands with their nests and young and sage grouse occur year round.

Rocky Mountain Canada geese nest on the wetlands and fall populations number 300-500 with 100 or so wintering. Duck populations range from 200-500 annually with gadwall. mallard, ring-necked duck, green-winged teal, cinnamon teal, and Barrows goldeneye the largest contributors. Fall peak populations number near 3,000 and about 200-300 _birds over-winter.

II. LEGAL RESPONSIBILITIES

A. Establishing Authority

The National Elk Refuge was established by various Acts of Congress, executive orders, and other documents to provide, preserve, restore, and manage lands for wintering elk; birds, and other big game animals. Public recreational use is permitted when compatible and when it will not interfere with the primary purposes for which the refuge was established.

The main Act of Congress on August 10, 1912, set aside lands "for the establishment of a winter game (elk) reserve in the State of Wyoming, lying south of the Yellowstone Park, " A subsequent Act of Congress on March 4, 1913, began with the following words : "For the establishment and maintenance of a winter elk refuge in the State of Wyoming, It was further established by Executive Order on December 22, 1921, that "all the lands that now are or may hereafter be included with the boundaries of the

Elk Refuge, Wyoming, be and the same are hereby further reserved and set apart for the use of the Department ... as refuges and ' breeding groun.ds for birds."

An addition to the National Elk Refuge author iz ed by Act of Congress on February 25, 1927, stated, "the Secretary of the Interior is authorized to accept, on behalf of, and without expense to, the United States, from the Izaak Walton League of America, a g ift of certain lands in Teton County, Wyoming, for the grazing of, and as a refuge for, American elk and other big game animals . . .. "

Lands within the administrative boundaries of the refuge have been acquired over the years through fee acqu isition, public domain additions, pr i vate donations and trade and transfer of Federal l ands.

Documents authori zing the National Elk Refuge are codified in Title 16, USC, 673, 673a, and 673b. Documents and references for establishing authority and administration of the National Elk Refuge include:

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Documents and Dates

Aug.10,1912 ACT, Ch.284, 37 Stat.293

Mar.4, 1913 ACT, Ch.145, 37 Stat.847

Aug. 25, 1913 EXEC. ORDER 1814

Sept. 15, 1914 EXEC. ORDER 2047

Apr. 21, 1915 EXEC. ORDER 2177

Jul. 8, 1916 EXEC. ORDER 2417

Dec. 22, 1921 EXEC. ORDER 3596

Sept. 29, 1922 EXEC. ORDER 3741

Feb. 25, 1927 ACT, Ch. 205, 44 1246 (Public Resolution 56)

Apr. 1 5, 1927 EXEC. ORDER 4631

Jul. 7, 1927 EXEC. ORDER 4685

Apr. 16, 1928 EXEC. ORDER 4857

Feb. 4, 1929 EXEC. ORDER 5040

Nov. 13, 1930 EXEC. ORDER 5480

Nov. 14, 1936 EXEC. ORDER 7489

Jul. 30, 1937 EX EC. ORDER 7680

Stat.

Jul. 1, 1939 ACT 4 F.R. 2731, 53 Stat. 1433 (1939 Reorg. Plan No. II, 4(f)J

Jul. 25, 1940 PRES. PROC. 2416

Sept. 14, 1950 ACT, 64 Stat. 849

Sept.28, 1962 PUB.LA\.J 87-714, 76 Stat. 653,(Refuge Recreation Act; 16 USC 460K; 460K 1-4)

Oct.15, 1966 PUB.LA\.J 89-669; 80 Stat. 927,(National \./ildlife Refuge System Adm. Act; 16 USC 668dd)

Feb. 25, 1977 PUB. LAND ORDER 1077

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Purpose

Establishment of winter elk reserve

Establishment and .maintenance of winter elk refuge

Withdraws land for refuge

Partial revocation of Exec. Order 1814

Enlarges refuge

Enlarges refuge

Set apart as refuge and breeding ground for birds

Section of elk refuge to be called Flat Creek Reservation as refuge and breeding ground for birds

Izaak Walton League addition to refuge

Withdraws land for possible refuge use

Wii~dra~s land for possible refuge use . :··1 , ·· .. . :,

. 1Releas~s} and · withdraws land for possible . refuge use

En larges _refuge

Withdraws land for settlement/entry ; __ "". ,:;::-·-:-:-:--!.":; ·.:!··-.. : - . '?-~;:;- ~.i..'.;....,,; _ :--__:

.,,: En_l a rg es refuge . ,;··_;.,,

Revoked Flat Creek Reservation; added lands back to elk refuge

Transfers functions of Secretary of Acri culture - to Secretary of Interior

Changed name from Elk Refuge to National Elk Refuge

Enlarges refuge

Recreational uses of refuge will be compatible and will not interfere with primary purposes for which established

Creates National \./ildlife Refuge System and establishes uses and administration, prohibited and permitted activities and enforcement authority

Partial revocation of Executive Orders 4857, 5040, and 5480

( B. Other Legislative Mandates

The refuge contains the Miller House which is on the National Register of Historic Places. The Miller House has been rehabilitated for adaptive use as a living quarters thus preserving and stabilizing the building.

C. Special Regulatory or Administrative Requirements

The National Elk Refuge does not contain special regulatory or administrative requirement areas.

D. Other Long-term Commitments

In 1958, the Jackson Hole Cooperative Elk Studies Group was formed-­composed of the Wyoming Game and Fish Department, US Fish and Wildlife Service, US Forest Service, and National Park Service. The principal purpose of this committee is to coordinate plans, programs, and findings of studies, and to provide an exchange of ideas, information, and personnel to study the Jackson elk herd and its habitat. All four agencies have legal responsibilities for management of the elk herd and its habitat.

In 1974, a cooperative agreement for elk management on the National Elk Refuge was signed by the USFWS and WGFD. This agreement is· still valid and covers such aspects as elk feeding, elk numbers, elk hunting, habitat and research and studies.

The Jackson National Fish Hatchery occupies a site of approximately 40 acres, 3 miles north of Jackson and adjacent to US Highway 26, 187. The hatchery obtains water from refuge springs and wells.

The Town of Jackson has three water wells and a large closed storage reservoir for the main town water supply on the refuge. These facilities are near the south boundary next to Jackson.

North Park, a picnic park, has been developed in cooperation with the Town of Jackson and Teton County under .3-memorandum of understanding. It is located just south of Flat Creek and adjacent to . the main highway on the west boundary of the refuge.

The Wyoming Highway Department has a right-of-way easement for refuge land adjacent to North Park, for the purpose of operating a State of Wyoming Information Center. -...A_m..e.morandum of understanding for operations and exhibits exists between the USFWS and State of Wyoming.

The South Park Water Users Association conveys water from the Gros Ventre River drainage to the Flat Creek drainage via an open ditch and a pipeline . The pipeline was constructed by the government and the water users are responsible for its use and maintenance. The pipeline is part of a conveyance system associated with valid water rights.

There are ditches from the Gros Ventre River and from Flat Creek that cross the refuge that are part of valid water rights .

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The main road in the refuge has been designated a public use road. It provides access to private properties at Twin Creek Ranch and public access seasonally to the National Forest at Curtis Canyon and Flat Creek. An easement for right-of-way for maintenance of the refuge road was signed in 1979 by the FWS and Teton County. The Forest Service operates and maintains, under a special use permit, about one mile of timber access road through the refuge into the Sheep Creek area.

Radio Station KSGT has an AH transmitting tower approximately one mile north of town. Their lease expires in 1992.

Lower Valley Power and Light · Company has a right-of-way for an overhead high voltage transmission line to Kelly, Wyoming, and for a power line to the Twin Creek Ranch properties.

US West Communication has rights-of-way for telephone lines to Twin Creek Ranch properties and along the west boundary of the refuge.

SUBMITTED BY REVIE\.lED BY

~~l-"a.~ --- . oO ~e Hanag iohVR9

(date) .... _. ,, .. _

:. -~ APPROVED .BY

.· . . A- .d-~ /~ '-

ARD,efuges & \.lildlife 1«~ (date)

5

( PART II

OPERATING STATEMENT NATIONAL ELK REFUGE

06/28/89

MISSION

THE HISSION OF THE NATIONAL ELK REFUGE IS TO PROVIDE, PRESERVE, RESTORE, AND HANAGE WINTER HABITAT FOR THE NATIONALLY SIGNIFICANT JACKSON ELK HERD AND HABITAT FOR ENDANGERED SPECIES, BIRDS AND OTHER BIG GAHE ANIHALS, AND PROVIDE COHPATIBLE HUHAN BENEFITS ASSOCIATED WITH ITS WILDLIFE AND WILDLANDS.

GOAL I

GOAL II

GOAL III

GOAL IV

Preserve, restore, and enhance in their natural ecosystems, all species of animals and plants that are endangered or threatened with becoming endangered.

OBJECTIVES Preserve and enhance federally listed endangered and threatened species and their habitats, and monitor their populations. Species include bald eagles , peregrine falcons, and whooping cranes.

Preserve and protect archaeological and historical sites.

OBJECTIVES Preserve and maintain the Miller House and integrity of the site which is listed on the National Register of Historic Places and is protected by the National Historic Preservation Act. Maintain the structure through adaptive use as a living quarters, thus preserving and stabilizing the building.

Protect and preserve refuge archaeological sites such as the Goetz site and other sites identified presently, or in the future, under the Archaeological Resources Protection Act of 1979 and the Antiquities Act of 1906.

Perpetuate the migratory bird resource .

OBJECTIVES Manage wetlands including development and maintenance of migratory and nesting habitat for swans, ducks, and Canada geese. A species of high concern is the trumpeter swan where emphasis is placed on nesting requirements and brood rearing, as well as on winter habitat protection.

Preserve and enhance habitat for all other migratory birds including shorebirds, marsh birds, raptors, passerines, etc .

Manage elk and elk winter range Manage the refuge, consisting of 24,700 acres, as elk winter range by providing an adequate natural and supp lemental winter food supply for a maximum of 7,500 e lk for a six-month period, generally November to May. Supplemental feed is provided when natural forage is not sufficient .

OBJECTIVES:

1 - Land Acquisition Acquire pr i vate lands within the Executive Order boundaries of the refuge identified for acquisition to prevent development of these lands and provide additional elk winter range .

2 - Range Management and Forage Production Produce as much standing forage as possible thus enhancing refuge carrying capacity and reducing need for supplemental feeding. Accomplished through irrigation, seeding, prescribed burning, and water development.

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GOAL V

GOAL VI

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3 - Supplemental Feeding Supplementally feed elk when necessary to maintain elk numbers and prevent excessive mortality. Reasons for supplemental feeding:

a. Forage unavailable by utilization or severe weather conditions.

b. Excessive elk numbers for Limited range and carrying capacity.

c. Get better elk distribution on range to utilize more natural forage and reduce disease potential.

d. Protect winter range from over use and destruction.

e. Political/social considerations.

4 - Honitoring Elk Numbers Winter "a maximum of 7,500" elk on the refuge. This objective is a result of a 1974 Cooperative Agreement between the USFWS/National Elk Refuge and the Wyoming Game and Fish Department (WGFD). This objective is a.rrived at as a result of a combination of factors:

a. NHistoric" average population levels since the refuge began in 191 2.

b. Winter range carrying capacity and disease transmission potential.

c. Cost of supplemental feeding.

d. WGFD objective levels for the Jackson elk herd unit.

5 - Control of Elk Numbers Control elk numbers through planned harvest Levels in cooperation with the WGFD on all herd segments, including a hunting program on the refuge.

6 - Research Studies Conduct scientific work to Learn more about elk, their summer and winter ranges, migrations, habitat, controls, needs, etc.

7 - Cooperative Elk Hanagement Conduct management and research efforts with other agencies, i.e., National Park Service, Wyoming Game and Fish Department, US Forest Service, etc.

Preserve a natural diversity and fauna and flora on refuge Lands. diverse habitat for a variety of species of animals and plants.

abundance of local and residential The refuge manages and protects

other highly visible and important

OBJECTIVES:

1. Provide a safe, healthy habitat for a variety of wildlife including species of spec i al recognition. Species include moose, mule deer, bighorn sheep, antelope, bison, coyotes, ravens, prairie falcons, sandhill cranes, long-billed curlews, sage grouse, golden eagles, and osprey .

.f....:_ Manage and maintain a variety and diversity of vegetative habitat types from forested land to riparian and marsh areas. important objective, for example, is to maintain aspen stands promote aspen regeneration.

One and

Provide opportunities for scientific and professional services.

OBJECTIVES Provide a site for scientific study and research of an imal and plant species and their ecological relationships .

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GOAL VII

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Public Use - Education. Interpreta tion. and Recreation Provide an understanding and appreciation of fish and wildlife . ecology and role in his environment, and provide refuge visitors with high quality, safe, wholesome, and enjoyable interpretive and recreational experiences orientated toward wildlife to the extent these activities are compatible with the primary · purposes for which the refuge was established.

OBJECTIVES:

1..:.. Provide wayside information kiosks and exhibits and wildlife viewing areas from public roads. The greatest total visitation occurs as wildllfe/wildlands observation from public roads through and adjacent to the refuge.

L Provide interpretive talks, tours, and programs on and off the refuge to a variety of groups and schools.

~ Conduct concession sleigh rides, cooperating association sales outlet, and interim Sleigh Ride Visitor Center is a significant interpretive, educational and entertaining public activity. A slide show, exhibits, and information personnel aid visitors in understanding and appreciating the refuge and FWS.

~ Conduct the annual ~ntler pick-up on the refuge in cooperation with local Boy Scouts. This provides recreation, aids the Scouts, and contributes feed for the elk from antler auction earnings .

2..:.. Continue planning for and construction of a major USFWS year­around visitor center and administrative offices which would serve the potential audience of two to three million visitors annually which drive by the refuge .

.§..,__ Provide hunting opportunities for the public which is an elk management "tool" as well as public recreation. ·

7. Provide fishing opportunities for spring, summer, and early fall fishing occurring on two areas of the refuge; Flat Creek and the Gros Ventre River. Manage Flat Creek as a natural fishery.

SUBMITTED BY REV! E\JED BY

~1:iJ;J ~ 10[ .. /r~ soc. Hgr, District I (date) Refuges & Wildlife

APPROVED BY

qLJµ ARD, Refuges & Wildlife