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Final Environmental
Impact Statement

Hudson River
Estuarine Sanctuary

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United States
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Final Environmental Impact Statement

PROPOSED
ESTUARINE SANCTUARY GRANT AWARD
TO THE STATE OF NEW YORK
FOR
A HUDSON RIVER ESTUARINE SANCTUARY

August 1982

Prepared by:

U.S. Department of Commerce
National Oceanic and Atmospheric

Admini strati on
Office of Coastal Zone Management
3300 Whitehaven Street, N.W.
Washington, D.C. 20235

and

State of New York
Department of Environmental

2 Conservation

50 Wolf Road
</> Albany, New York 12205

Digitized by the Internet Archive

in 2012 with funding from

LYRASIS Members and Sloan Foundation

http://www.archive.org/details/finalenvironmOOnati

DESIGNATION:
TITLE:

ABSTRACT:

APPLICANT:
LEAD AGENCY

CONTACT:

Final Environmental Impact Statement

Proposed Estuarine Sanctuary Grant Award to the State of
New York for a Hudson River Estuarine Sanctuary

The State of New York has submitted an application for a grant
from the Office of Coastal Zone Management to establish an
estuarine sanctuary on the Hudson River, New York.

For the purposes of research and education, sites representative
of the Hudson's estuarine gradient are appropriate. Four natural
areas, the Hudson's highest quality tidal wetland complexes,
are proposed for inclusion in the Sanctuary: Stockport Flats
(1,184 acres), Tivoli Bays (1,481), Iona Island (556 acres),
and Piermont Marsh (943 acres), for a total of 4,165 acres of
land and water. The acquisition grant request to NOAA for
$375,000, matched by an equivalent amount of State funds
and services would be used for fee simple acquisition of
wetlands, waters and shoreline at Stockport Flats (maximum
299 acres), Tivoli Bays (45 acres), and Piermont Marsh (73 acres),
and to develop or renovate facilities at two or more of the
four Hudson River sites. These facilities (buildings, roads,
parking lots, trails, and boardwalk) will be used to accommodate
research activities, educational programs, and visitors.
All other land at the four sites is in public ownership.

Approval of this grant application would permit the establishment
of an estuarine sanctuary representing a subcategory of the
Virginian biogeographic region. The proposed sanctuary would
be used primarily for research and education purposes, especially
to provide information useful for coastal zone management
decisionmaking. Multiple use would be encouraged to the extent
that it is compatible with the proposed sanctuary's research and
educational programs.

Research and monitoring in and near the proposed sanctuary would
provide baseline information against which the impacts of
human activities elsewhere in the Hudson River and the Virginian
biogeographic region could be assessed.

New York Department of Environmental Conservation

U.S. Department of Commerce

National Oceanic and Atmospheric Administration

Office of Coastal Zone Management

Dr. Richard J. Podgorny

Sanctuary Projects Manager

Office of Coastal Zone Management

3300 Whitehaven Street, N.W.

Washington, D.C. 20235 (202) 634-4236

TABLE OF CONTENTS
SECTION PAGE

SUMMARY i

PART I: PURPOSE OF AND NEED FOR ACTION 1

PART II: ALTERNATIVES (Including Proposed Action) 5

A. Preferred Alternative 5

1. Boundaries and Acquisition of Sanctuary Lands 6

2. Public and Private Access 6

3. Management 14

a. Management Plan 14

b. Management Structure 14

c. Sanctuary Staff 19

d. General and Specific Management Requi rements. . ..19

e. Enforcement of Existing Laws 20

f. Research Program: Hudson River Estuarine

Sanctuary 21

g. Existing Monitoring 24

h. Education and Public Awareness Program 25

B. Other Alternatives Considered 26

1. No Action 26

2. Alternative Sites and the Site Selection

Process for New York State 27

3. Alternative Boundaries 31

a. Inclusion of Primary Resources 31

b. Adequate Protection and Manageability 31

c. Terrestrial Buffer Zones and Access 31

4. Alternative Management Scheme 32

5. Funding 32

PART III: AFFECTED ENVIRONMENT 33

A. Hudson River - General Description 33

1. Natural Environment 40

a. Geology 40

b. Hydrology 43

c. CI imate 46

d. Biology 46

e. Estuarine Escosystem 61

2. Current Uses of the Sites 61

a. Commercial and Recreational Ff shi ng 61

b. Fur Trapping 64

c. Hunting 65

d. Forestry 67

e. Agriculture 67

SECTION PAGE

f . Industry 67

g. Transportation 68

h. Recreation 70

i. Archaeologic Resources 71

j. Plant Resources 72

k. Esthetic Use 73

1. Research and Education 73

PART IV: ENVIRONMENTAL CONSEQUENCES 81

A. General Impacts 81

B. Specific Impacts 82

1. Natural Environment 82

a. Fish and Wildlife Habitat 82

b. Soils and Vegetation 82

c . Water Qual i ty 83

2. Human Environment 83

a. Residents of the Towns and Counties 83

b. Scientific and Educational 84

c. State and Federal 84

C. Unavoidable Adverse Environmental

or Socioeconomic Effects 85

D. Relationship Between the Proposed Action on the

Environment and the Maintenance and Enhancement of
Long-term Productivity 85

E. Irreversible or Irretrievable Commitment of

Resources 86

F. Possible Conflicts Between the Proposed Action and

the Objectives of Federal , State, Regional and

Local Land Use Plans, Policies, and Controls for

the Areas Concerned 86

1. Federal and Regional Plans 86

2 . State Plans 87

3. Local Plans 88

PART V: LIST OF PREPARERS 89

PART VI: LIST OF AGENCIES, ORGANIZATIONS AND PERSONS

RECEIVING COPIES OF THE DEIS 93

SECTION

PAGE

PART VII: WRITTEN AND VERBAL COMMENTS RECEIVED ON THE DEIS,

AND NOAA' s RESPONSES 101

PART VIII: Appendices 275

Appendix 1: Bibliography and Literature Cited 276

Appendix 2: Existing Jurisdiction Involving the Proposed

Hudson River Estuarine Sanctuary 285

Appendix 3: List of Fishes Reported from the Proposed
Estuarine Sanctuary Sites on the Hudson
Ri ver 290

Appendix 4: Birds Reported In or Close to Proposed

Sanctuary Sites 295

Appendix 5: Selected Data From New York Mid-Winter

Area Water Fowl Survey 303

Appendix 6: Tidal Vascular Plants of the Proposed

Sanctuary Sites 305

Appendix 7: Estuarine Sanctuary Guidelines,

1974 and 1977 317

Appendix 8: Memorandum of Understanding Among Five

New York State Agencies 328

Appendix 9: Summary of Workshop to Generate Ideas on
Research and Education Programs in the
Sanctuary 337

LIST OF FIGURES

PAGE

Figure 1. Stockport Flats Area: Approximate Property Ownerships

and Proposed Sanctuary Boundaries 7

Figure 2. Ti vol i Bays Area: Approximate Property Ownerships

and Proposed Sanctuary Boundaries 8

Figure 3. Iona Island Marsh Area: Proposed Sanctuary

Boundaries 9

Figure 4. Piermont Marsh Area: Approximate Property Ownerships

and Proposed Sanctuary Boundaries 10

Figure 5. Hudson River Estuary 34

Figure 6. Stockport Flats Area 36

Figure 7. Ti vol i Bays Area 37

Figure 8. Iona Island Marsh Area 38

Figure 9. Piermont Marsh Area 39

Figure 10. Generalized Energy Pathways 62

LIST OF TABLES

PAGE

Table 1. Ownership of Parcels within the Proposed Estuarine

Sanctuary Boundaries 11

Table 2. Parcels Proposed for Acquisition 12

Table 3. Sanctuary Advisory Committee (Tentative Composition) 16

Table 4. Environmental Characteristics of the Four Proposed

Estuarine Sanctuary Sites 45

Table 5. Plants of the Proposed Sanctuary Sites Listed in Rare and

Endangered Vascular Plant Species in New York State 50

Table 6. Animals Recorded at the Proposed Sanctuary Sites Either
Currently Listed as Endangered by the State or Federal
Government, or Included in the December 1981 "Tentative
New York State Species List." 52

Table 7. Some Institutions and Agencies That Have Used the Hudson

River for Research and Education 76

Table 8. Some Current Research Projects Involving the Proposed

Sanctuary Sites 79

SUMMARY

BACKGROUND

Section 315 of the Coastal Zone Management Act of 1972 (P.L. 92-583),
as amended, established the National Estuarine Sanctuary Program, which
provides grants on a matching basis to States to acquire, develop, and
operate estuarine areas to be set aside as natural field laboratories.
These areas are to be used primarily for long-term scientific and educational
programs that will provide information essential to coastal management
decisionmaking.

Uses of estuarine sanctuaries are intended to serve objectives
such as the following:

-- To gain a more thorough understanding of ecological
relationships within the estuarine environment;

— To make baseline ecological measurements;

-- To serve as a natural control in order to monitor
changes and assess the impacts of human stresses on
the ecosystem;

-- To provide a vehicle for increasing public knowledge
and awareness of the complex nature of estuarine
ecosystems, their values and benefits to man and
nature, and the problems confronting them; and

-- To encourage multiple use of the estuarine sanctuaries
to the extent that such usage is compatible with the
primary sanctuary purposes of research and education.

To ensure that the Estuarine Sanctuary Program includes sites that
adequately represent regional and ecological differences, the program
regulations established a biogeographical classification scheme that
reflects geographic, hydrographic, and biological characteristics.
Eleven (11) biogeographic categories are defined in the program regulations.
Subcategories of this basic system are developed and utilized as appropriate
to distinguish different subclasses of each category. The total number of
sanctuaries that will be needed to provide adequate representation of
the various estuarine ecosystems occurring within the United States is
currently under study. The proposed sanctuary is representative of the
Virginian biogeographic region.

The State of New York is committed to maintaining the resource
productivity of its coastal zone. The Hudson River Estuary, a part of
New York's coastal zone, supports an extremely valuable fishery resource
and is a biological and esthetic treasure used and enjoyed by millions
of people. In order to effectively protect and manage the Hudson River
Estuary ecosystem, an understanding of estuarine ecology is essential.
For this reason, establishment of an estuarine sanctuary in New York on
the Hudson River would provide a valuable tool for enhancing the management
of the Hudson River and associated coastal zone areas.

1 1

The Estuarine Sanctuary Program regulations, first published in
1974, and amended in 1977, authorize three kinds of 50 percent matching
grants: (1) an optional, initial planning grant for such preliminary
purposes as assessing the lands to be acquired, preparing an environmental
impact statement, and developing management, research and education plans;

(2) grants for acquisition of the real property within the sanctuary
boundaries and development of interpretive/research facilities; and

(3) operations grants for managing the established sanctuary's research
and education programs.

New York's involvement in the Estuarine Sanctuary Program is not new,
but has spanned a period of approximately three years (see summary of site
selection process in the Alternatives section). An initial proposal for a
sanctuary on Long Island was impracticable, and New York was encouraged by
the U.S. Office of Coastal Zone Management to propose a sanctuary on the
Hudson River Estuary, the State's alternate choice. Representatives of
involved State agencies met to select sites on the Hudson; the New York
Department of Environmental Conservation (DEC) took the role of Lead
Agency, with cooperation from the Palisades Interstate Park Commission,
the Office of Parks, Recreation and Historic Preservation, the Department
of State, and the Office of General Services.

For the purposes of research and education, sites representative
of the Hudson's estuarine gradient are appropriate. Four natural areas,
the Hudson's highest quality tidal wetland complexes, are proposed for
inclusion in the Sanctuary: Stockport Flats in the Town of Stockport,
Columbia County; Tivoli Bays in the Town of Red Hook, Dutchess County;
Iona Island Marsh in the Town of Stony Point, Rockland County; and Pier-
mont Marsh in the Town of Orangetown, Rockland County. All four of these
sites contain extensive high quality tidal marshes with comparable
vegetation types, as well as adjoining tidal shallows and forested upland
margins. The sites also contain typical plants and animals of tidal river
wetlands of the Estuarine Sanctuary System's Virginian Biogeographic Region
(Cape Cod to Cape Hatteras), and productive ecological communities that are
representative of the region. These areas also have a history of observation
and research that provides basic information valuable to the initiation of a
research and education program.

On behalf of the State, DEC submitted a grant application to the National
Oceanic and Atmospheric Administration's (NOAA) Office of Coastal Zone Management
(OCZM) in May 1981 to gather information and plan the proposed Hudson River
Estuarine Sanctuary at the above-named sites. In September 1981 , a
pre-acqui sition grant of $50,000 was awarded by NOAA to DEC, to be matched
by DEC funds and services. Work on the planning of the sanctuary began
in earnest in January 1982 when the Federal money was received.

PROPOSED ACTION

The acquisition grant request to NOAA for $375,000, matched by an equivalent
amount of State funds and services, would be used for establishment of a
4,165 acre sanctuary of which potentially 417 acres of wetlands, waters and
shoreline would be purchased and to develop or renovate facilities at two
or more of the four Hudson River sites. These facilities (i.e., buildings,

i ii

roads, parking lots, trails, and boardwalk) will be used to accommodate
research activities, educational programs, and visitors. The great
majority of land within the proposed sanctuary boundaries (see page 11)
is already publicly owned or under negotiation for public acquisition
under pre-existing programs. The chief importance of establishing the
proposed sanctuary would be the development of a coordinated program of
research and education that would not be otherwise realized.

The composition of real property within the proposed sanctuary is
as follows (acreages are approximate):

Stockport

Currently publicly owned
Proposed for acquisition

Tivol i

Currently publicly owned
Under negotiation

Iona Island

Total area - 1,184 acres

692-804 acres (see Table 2, parcel 6)
187-299 acres (see Table 2, Parcel 6)

Total area - 1 ,516 acres

1,436 acres
45 acres

Total area - 556 acres

Currently publicly owned
Proposed for acquisition

Piermont Marsh

556 acres
0 acres

Total area - 934 acres

Currently publicly owned
Under negotiation

The total area of al 1
are wetlands and shallows,
total area of wetlands and

MANAGEMENT

871 acres
73 acres

four sites is 4,165 acres. Of this, 2,860 acres
comprising 13% of the Hudson River Estuary's
shallows (less than 6 feet deep at low tide).

The DEC will administer the proposed sanctuary and will be directly
responsible for the content and structure of the sanctuary's management plan,
the expenditure of program funds, and the formulation and implementation of
general program elements (such as research programs and educational programs)
A sanctuary Steering Committee comprised of the five State agencies involved
in the sanctuary (Department of Environmental Conservation (DEC), Palisades
Interstate Park Commission (PIPC), the Office of Parks, Recreation and
Historic Preservation (OPRHP), the Department of State (DOS), and the
Office of General Services (OGS)) has been formed. DEC will chair this
Steering Committee. The Committee is advisory to DEC on issues related to
the formulation and implementation of the sanctuary's management plan,
the expenditure of program funds, and formulation and implementation of
general program elements. Consistent with' the management plan, the State
agencies will exercise prerogatives and make decisions regarding use of
lands to which they hold title.

IV

A Memorandum of Understanding, signed by the agencies represented on the
Steering Committee, outlines interagency arrangements for the administration
and management of the sanctuary, and expresses the agencies agreement to
carry out the management plan (see Appendix 8).

Three citizens' advisory groups (Columbia, Dutchess, and Rockland Counties),
representing local government and sanctuary user groups, will act as a Sanctuary
Advisory Committee and make recommendations to the Steering Committee. The
Advisory Committee will channel public support and criticism to the Steering
Committee.

Estuarine sanctuary programs would be closely coordinated with related
programs on the Hudson River, particularly the DEC'S Hudson River Fisheries
Unit and Fisheries Advisory Committee, and the Hudson River Foundation for
Science and Environmental Research. Sanctuary programs would also be coordi-
nated with and would serve to enhance existing programs of research and
education including those of Hudson River Sloop Clearwater and the Hudson
Valley's colleges and universities.

RESEARCH

Estuarine sanctuary research programs would emphasize ecosystem-level
understanding of the Hudson Estuary and especially its wetlands and shallows,
as well as applied concerns of coastal management including the management
of fish, game and fur resources, vegetation, endangered and rare species,
and the reduction and mitigation of human impacts on the coastal zone. Much
research has been done on the Hudson River Estuary, but efforts have generally
been fragmented and there are many serious gaps in the knowledge needed to
effectively manage the Estuary. The proposed Hudson River Estuarine Sanctuary
would help to coordinate and unify Hudson River research and to provide
information to coastal managers at all levels of government and the private
sector with the goal of wise resource management.

EDUCATION

The proposed estuarine sanctuary sites contain a variety of fauna and
flora and estuarine habitats representative of the Hudson River Estuary,
and are located within easy reach of millions of New York State and greater
New York City area residents. The proposed sanctuary would provide an
opportunity for many to learn more of the estuary's geology, ecology and
resources. Estuarine sanctuary funds would be used to develop exhibit
space at the Bear Mountain Trail side Museums complex near Iona Island Marsh
for Hudson Estuary related exhibits; this complex is visited by over 600,000
people each year. Funds would also be used to set up facilities at the
Tivoli Bays site for educational exhibits and for research work. Additionally,
selected programs such as guided field trips, self-guided trail brochures,
and educational media available to public groups and schools on loan
could be developed.

RECREATION

The primary objective of the proposed Hudson River Estuarine Sanctuary
is to provide long-term protection from developmental disturbances so
the selected sites may be used for scientific and educational purposes.

Primary emphasis at these sites will be on their use for estuarine
studies; however, other existing water use activities such as hunting,
fishing, trapping, boating and wildlife observing which are compatible
uses, will continue, subject only to existing State laws. Sanctuary
designation will not add any Federal regulations to these areas.

IMPACTS

The overall and major impacts of designation of the proposed Hudson
River Estuarine Sanctuary are expected to be positive through better
scientific and public understanding of the estuary and its resources. The
proposed estuarine sanctuary does not conflict with existing commercial or
recreational uses of the Hudson River. Any conflicts that may arise with
future uses of the river can be reduced through negotiation. Without an
estuarine sanctuary, the Hudson River would not have areas dedicated
specifically and permanently for research and education. However, with a
sanctuary, present uses of the sites including hunting and other recreational
uses where currently allowed, would continue. Furthermore, designation
of the sanctuary and acquisition of lands, would provide additional public
access to the riverfront for recreation and enjoyment.

PART I: PURPOSE OF AND NEED FOR ACTION

In response to intense pressures on the coastal resources of the
United States, Congress enacted the Coastal Zone Management Act (CZMA),
which was signed into law on October 27, 1972, and amended in 1976 and 1980.
The CZMA authorized a Federal grant-in-aid and assistance program to be
administered by the Secretary of Commerce, who in turn delegated this
responsibility to the Office of Coastal Zone Management (OCZM) in the
National Oceanic and Atmospheric Administration (NOAA).

The CZMA affirms a national interest in the effective protection and
development of the Nation's coastal zone, and provides financial and technical
assistance to coastal States (including those bordering on the Atlantic and
Pacific Oceans, the Gulf of Mexico, and the Great Lakes) and U.S. territories
to develop and implement State coastal zone management programs. The Act
established a variety of grant-in-aid programs to such States for purposes of:

-- developing coastal zone management programs (Sec. 305);

-- implementing and administering coastal management programs that
receive Federal approval (Sec. 306);

-- avoiding or minimizing adverse environmental, social, and economic
impacts resulting from coastal energy activities (Sec. 308);

-- coordinating, studying, planning, and implementing interstate
coastal management activities and programs (Sec. 309);

-- conducting research, study, and training programs to provide scien-
tific and technical support to State coastal zone management
programs (Sec. 310); and

-- acquiring land for estuarine sanctuaries and island preservation
(Sec. 315).

Section 315 of the Act established the Estuarine Sanctuary Program to
provide matching grants to States to acquire, develop, and operate natural
estuarine areas as sanctuaries, so that scientists and students may be
provided the opportunity to examine the ecological relationships within the
areas over time. Section 315 provides a maximum of $3 million in Federal
funds, to be matched by an equivalent amount from the State, to acquire
and manage lands for each sanctuary. The regulations for implementation
of the Estuarine Sanctuary Program are found at 15 CFR Part 921. Amend-
ments were proposed on September 9, 1977, 42 Federal Register: 45522-45523
(see Appendix 7). Regulations are presently being prepared for the Island
Preservation Program that is also included within Section 315 of the CZMA.

Estuarine sanctuaries have the dual purposes of (1) preserving relatively
undisturbed areas so that a representative series of natural estuarine systems
will always remain available for ecological research and education, and
(2) ensuring the availability of natural areas for use as a control against

which impacts of human activities in other areas can be assessed. These
sanctuaries are to be used primarily for long-term scientific and educational
purposes, especially to provide information useful to coastal zone management
decisionmaking.

Research purposes may include:

-- Gaining a more complete understanding of the natural ecological
relationships within the various estuarine environments of the
United States;

-- Making baseline ecological measurements;

-- Serving as a natural control against which changes in other
estuaries can be measured, and aiding in evaluation of the
impacts of human activities on estuarine ecosystems; and

-- Providing a vehicle for increasing public knowledge and awareness
of the complex nature of estuarine systems, their benefits to
people and nature, and the problems confronting these ecosystems.

While the primary purposes of estuarine sanctuaries are scientific and
educational, multiple use of estuarine sanctuaries by the general public is
encouraged to the extent that such usage is compatible with the primary
sanctuary purposes. Such uses may generally include low-intensity recreation,
such as boating, fishing, she! lfishi ng, hunting, and wildlife photography or
observation. Commercial fishing and shellfishing may also be compatible uses.

The estuarine sanctuary regulations envision that the Estuarine Sanctuary
Program will ultimately represent the full variety of regional and ecological
differences among the estuaries of the United States. The regulations
state that "the purpose of the estuarine sanctuary program. . .shal 1 be
accomplished by the establishment of a series of estuarine sanctuaries
which will be designated so that at least one representative of each estuarine
ecosystem will endure into the future for scientific and educational purposes"
[15 CFR 921.3 (a)]. As administered by OCZM, the Estuarine Sanctuary
Program defined 11 different biogeographic regions based on geographic,
hydrographic , and biological characteristics. Subcategories of this
basic system are established as appropriate to distinguish different
subclasses of each biogeographic region. The total number of sanctuaries
that will be needed to provide minimal representation for the Nation's
estuarine ecosystems is currently under study.

Since 1974, OCZM has awarded grants to establish twelve national estuarine
sanctuaries. These include:

Sanctuary Biogeographic Classification

South Slough Columbian

Coos Bay, Oregon

Sapelo Island Carolinian

Mcintosh County, Georgia

Waimanu Valley Insular

Island of Hawaii, Hawaii

Rookery Bay West Indian

Collier County, Florida

Old Woman Creek Great Lakes

Erie County, Ohio

Apalachicola River/Bay Louisianian

Franklin County, Florida

Elkhorn Slough Californian

Monterey County, California

Padilla Bay Columbian

Skagit County, Washington

Narragansett Bay Virginian

Newport County, Rhode Island

Chesapeake Bay (2 sites) Virginian

Anne Arundel and Somerset
Counties, Maryland

Jobos Bay West Indian

Puerto Rico

Tijuana River Californian

San Diego County, California

The Hudson River Estuarine Sanctuary, if established, would represent
a major subcategory within the northern half of the Virginian biogeographic
region. This region extends over 1,000 miles of Atlantic coastline from
Cape Cod to Cape Hatteras, featuring lowland streams, marshes, and muddy
bottoms and representative plants and animals.

The proposed action under consideration by OCZM is providing a land
acquisition grant to the State of New York to establish a National Estuarine
Sanctuary in the Hudson River. This proposed sanctuary would consist of
four individual sites representing different estuarine gradient zones in the

Hudson River, and would contain approximately 4,165 acres of the Hudson's
highest quality tidal wetland complexes. The acquisition grant request to
NOAA for $375,000, matched by an equivalent amount of State funds and services,
would be used for acquisition in fee simple or by easement of wetlands, waters
and shoreline at Stockport Flats (187-299 acres), Tivoli Bays (45 acres),
Piermont Marsh (73 acres), and to develop or renovate facilities at two or
more of the four Hudson River sites. These facilities (buildings, roads,
parking lots, trails and boardwalk) would be used to accommodate research
activities, educational programs, and visitors. All other land at the
four sites is in public ownership.

Approval of this grant application would permit the establishment of
an estuarine sanctuary representing a subcategory of the Virginian biogeographi c
region. The proposed sanctuary would be used primarily for research and
education purposes, especially to provide information useful for coastal
zone management decisionmaking. Multiple use would be encouraged to the
extent that it is compatible with the proposed sanctuary's research and
educational programs.

New York's proposal follows several years of interest in and concern
for the Hudson Estuary by State and local officials, and university and
conservation groups. The four sites to be included in the estuarine
sanctuary--Stockport Flats, Tivoli Bays, Iona Island Marsh, and Piermont
Marshes--were selected by a New York Estuarine Sanctuary Steering Committee
because they are essentially undisturbed, representative sites, and because
publicly owned land and water comprising an estuarine system were available
for research, education, and recreation purposes. In September 1981, NOAA
awarded New York a $50,000 pre-acqui si tion grant for the proposed sanctuary,
which enabled the State to initiate a real estate appraisal and environmental
assessment of the sites, and to prepare management, research, education, and
recreation plans.

On June 8, 1982 a workshop was held in Annandale, New York at Bard
College to generate ideas on research and education programs for the proposed
Hudson River Estuarine Sanctuary. Their report is reproduced as Appendix 9.

PART II: ALTERNATIVES CONSIDERED FOR THE ESTUARINE SANCTUARY

(INCLUDING PROPOSED ACTION)

The action under consideration by NOAA is a proposal from the State
of New York to establish a Hudson River Estuarine Sanctuary consisting
of four sites representing estuarine areas on the Hudson River.

The State of New York has applied to NOAA for an acquisition grant
of $375,000 to be matched with an equivalent amount of State, local, or
private funds, donations of land, and in-kind services (for example,
surveys and appraisals) to establish a Hudson River Estuarine Sanctuary
composed of approximately 4,165 acres of water, wetlands, islands and
uplands in Columbia, Dutchess and Rockland Counties. Acquisition funds
would be spent for acquiring property through easements or fee simple
purchases. in these counties, as well as for developing facilities for
research and education programs at the sanctuary. NOAA would serve as a
temporary partner in the funding process for five years, after which the
sanctuary would be wholly-State operated.

The proposed sanctuary would be named the Hudson River Estuarine
Sanctuary with each site being designated as the "Hudson River Estuarine
Sanctuary at Stockport Flats," "Hudson River Estuarine Sanctuary at
Ti vol i Bays," "Hudson River Estuarine Sanctuary at Iona Island Marsh,"
and "Hudson River Estuarine Sanctuary at Piermont Marsh."

Although this project is called the Hudson River Estuarine "Sanctuary,"
this does not mean that traditional uses will be changed. In fact, a
multiple-use policy is clearly practicable. To insure this policy, the
agencies presently administering these sites (Department of Environmental
Conservation, Office of Parks, Recreation and Historic Preservation,
Palisades Interstate Park Commission, and Office of General Services)
will continue to make the major management policy decisions for their
respective sites, in coordination with the other agencies. This coordination
will be achieved through a Memorandum of Understanding (see Appendix 8).
Representatives of these agencies and of the New York State Department of State
are expected to confer annually to review the status of the program.

A. Preferred Alternative for the Hudson River Estuarine Sanctuary

The $375,000 acquisition grant would be used for acquisition of
lands and development of facilities at the Stockport Flats, Tivoli Bays,
Iona Island Marsh and Piermont Marsh sites to provide the control necessary
for the establishment of a Hudson River Estuarine Sanctuary. Most of
the lands included within the proposed Sanctuary boundaries are already
owned by New York State.

The Hudson River Estuary in eastern New York is a long narrow tidal
river containing a diversity of near-pristine and high quality natural
areas and nationally significant biological features. The area includes
bald eagle and osprey feeding areas, a large shortnose sturgeon population,
rare estuarine plant species, a flyway for waterfowl and other birds,

brackish and freshwater tidal river marshes and swamps, undeveloped
forested clay and rock bluffs, and rocky and sandy islands. The proposed
sanctuary sites are the major remaining near-pristine areas on the
Hudson Estuary and are characterized by relatively unpolluted air and water,
moderate to low tidal ranges, large tidal wetlands, heavily forested shores,
great diversity of fish, wildlife and plants, and low human populations.

The purpose of this proposed sanctuary would be to manage and to
maintain the Stockport Flats, Tivoli Bays, Iona Island Marsh and Piermont
Marsh as they are now--healthy, productive, unspoiled estuarine natural
systems, to encourage research and public education on these little-studied
tidal river wetlands and associated environments, and to continue existing
uses of the sites, including hunting, fishing, and trapping where presently
permitted.

1 . Boundaries and Acquisition of Sanctuary Lands

The proposed sanctuary would include approximately 4,165 acres of waters,
wetlands, islands and uplands. The boundaries of the proposed sanctuary
are shown in Figures 1-4. Most of the lands within the sanctuary boundaries
are already owned by New York State. The presently State-owned areas and
the areas proposed for acquisition are shown in Figures 1-4 and listed in
Table 1.

The grant request to NOAA would be matched by New York State, using such
sources as Environmental Quality Bond Act and other State agency funds, value
of donated land, bargain sales of the parcels to be acquired, donated money
from fund raising, the value of easements granted, and the value of land
acquisitions within the proposed sanctuary boundaries currently being negotiated

Twelve specific parcels of private land are to be acquired as funds
permit (not in priority order; see Figures 1 , 2, 4, and Table 2). In addition,
the involved State agencies may acquire other parcels adjacent to the sanctuary
boundaries in fee simple, or through conservation easements, as available
funds permit. Furthermore, cooperative management agreements may be sought
with adjoining private owners on a voluntary basis to further protect the
areas surrounding the proposed sanctuary.

2. Public and Private Access

Acquisition of public access points or protection of existing access
points will be sought at Stockport and Tivoli. Access is adequate* at Iona
and Piermont. All four sites are accessible by small boat from the river
using put-in points at both public and private landings within a few miles
of the sites. Land access is limited at Stockport and Tivoli and tradi-
tionally has been largely along the railroad service roads at these sites,
but Consolidated Rail Corporation has indicated that it plans to close off
some access points on its land in the near future. Thus, access points
within the proposed sanctuary would be even more important to the public.

Fig. 1j Stockport Flats Area, approximate property
ownerships. The Consolidated Rail Core, corridor

not shown. ( See Tables 1 and 2 .)
(Adapted from USGS Hudson North, N.Y. quadrangle.)

Extent of
tidal influence

Proposed sanctuary boundary
— Ownership boundary

Priming
Hook

Tivoli

N

Magdalen
island 8

DEC

Cruger Island

DEC

one mi

ie

one km

T

— Cruger Development Corp (Central Hudson Gas &

Electric Corp. corridor
— — — — — Proposed sanctuary boundary

Ownership boundary

Fig. 2 Tivoli Bays Area. ( See Tables 1 and 2 .)
(Adapted from USGS Saugerties, N.Y. quadrangle.)

Trailside
Museums

Bear Mtn.

Doodletown
Bight

N

J

one mile

one km

Proposed sanctuary boundary

Fig. 3 lona Island Marsh Area ( See Tables 1 and 2 .)
(Adapted from USGS Peekskill, N.Y. quadrangle.)
Ownership all PIPC

10

N

Lamont
Doherfy
Geological
Observatory

Ownership boundary

— — — — Proposed sanctuary bound*
x x x x x x Tenn. Gas Pipeline Co.
easement

one km

one mile
1 —

Fig. 4 Piermont Marsh Area. ( See Tables 1 and 2 .)
(Adapted from USGS Nyack, N.Y.- N.J. quadrangle.)

11

Table 1. Ownership of Parcels Within the Proposed Estuarine Sanctuary
Boundaries (see Figures 1-4)a (approximate acreages).

Stockport Flats: Acres

New York State Office of General Services (OGS) 692-804b

New York State Office of Parks, Recreation and

Historic Preservation (OPRHP) 193

Private (see Table 2) 187-299b

Ti vol i Bays:

New York State Department of Environmental

Conservation (DEC) 707

New York State Office of General Services (OGS) 729

Private (see Table 2) 45

Iona Island Marsh:

Palisades Interstate Park Commission (PIPC) 556

Piermont Marsh:

Palisades Interstate Park Commission (PIPC) 871

Private (including The Nature Conservancy,

see Table 2) 73

Stockport Flats approximately 1 ,516 acres

Tivoli Bays approximately 1,481 acres

Iona Island Marsh approximately 556 acres

Piermont Marsh approximately 944 acres

Total approximately 4,165 acres

a The following ownerships are adjacent to, but will not be part of,
the proposed sanctuary: corridors approximately 75 feet wide passing through
or adjacent to Stockport Flats, Tivoli Bays and Iona Island Marsh and owned
by Consolidated Rail Corporation; a Y-shaped corridor (undeveloped) 200 feet
wide crossing part of the Tivoli Bays State lands and owned by Cruger Development
Corporation of Central Hudson Gas & Electric Corporation; the Erie Pier
properties at the north end of Piermont Marsh owned by the Village of
Piermont, Clevepak Corporation, and Federal Paper Board Company.

The ranges of acreage given are due to the incompletely determined
size of the private holding on the unnamed island, the rest of which is
owned by OGS.

12

Table 2. Parcels Proposed for Acquisition (not in priority order)

At Stockport Flats:

Parcel 1: An approximately 5-acre sandy islet owned by Joseph Nostrand
between Fordham Point and Little Nutten Hook.

Parcel 2:* An approximately 57-acre area of shallows and shoreline, a water
grant known as the "Gay Grant," owned by Irving Domnitch.

Parcel 3:* An approximately 18-acre area of water, marsh and shoreline, a

water grant known as the "Judson Grant," owned by Irving Domnitch.

Parcel 4: An approximately 10-acre area of water and marsh, a water grant
known as the "Al vord Grant," owned by Robert L. Pierson.

Parcel 5: An approximately 1-acre area of madeland adjacent to the rail-
road and the mouth of Stockport Creek with an unimproved parking
area and landing, owned by Consolidated Rail Corporation.

Parcel 6. Portions of the "unnamed island" lying off the mouth of Stockport

Creek owned by Porter Fearey, Jr. The extent of Mr. Fearey's

ownership is believed to be between 7 and 119 acres, and to this
extent the State is negotiating with h-im.

Parcel 7: An approximately 54-acre area of water, marsh and shoreline, a water
grant known as the "French Grant," owned by Algis C. Saurusaitis.

Parcel 12: An approximately 35-acre area of land on the south side of Stockport
Creek, owned by John P. and Sal lie Barrett, and currently under
study as a potential public access point.

At Tivoli Bays:

Parcel 8: Approximately 45-acres of land including the approximately

9-acre Magdalen Island and additional area of upland at the north
end of North Bay, owned by Tivoli Properties, Inc. This acquisition
is under negotiation by the State and the exact size of the parcel
has not been agreed upon.

* Mr. Domnitch has indicated he does not want to participate in the sanctuary
project. The State of New York is preparing an offer to him. If refused,
his lands will be removed from the proposed boundary and will not be included
as part of the sanctuary.

13

At Piermont Marsh:

Parcel 9: An approximately 71-acre area of water and marsh now owned by DEC.
This parcel consists of approximately 65-acres donated to this
village of Piermont by Continental Group, Inc., and about 6-acres
then owned by the village, both transferred to The Nature
Conservancy and then to DEC during the preparation of this FEIS.

Parcel 10: An approximately 0.04-acre area in the northwest corner of Piermont
Marsh, owned by Louis Hurban, Jr.

Parcel 11: An approximately 2-acre area in the northwest corner of
Piermont Marsh owned by James J. MacMurray.

Stockport. Existing access is mostly via the large unimproved parking
area and unimproved boat landing on the ConRail property at the railroad
crossing of Stockport Creek. Purchase of this access point would ensure
its continued availability to the public.

The need for an additional access point on tidal Stockport Creek near
the proposed sanctuary site would be studied. This point would provide
access for researchers, fishermen, and canoeists. Gay's Point and Stockport
Middle Ground are accessible by boat. There are three improved public boat
launch sites (at Coxsackie, Hudson, and Athens) within approximately two
miles of the proposed sanctuary site.

Tivoli . Most access now is via the railroad service road from the
Cruger Island Road (both northward and southward), from Barrytown (northward),
and from Tivoli (southward). The management plan being developed by the DEC
for the Tivoli Bays area will include development of two unimproved boat
landings using old roads, one at the south end of North Bay (from Cruger
Island Road), and the other on the east side of North Bay at a point just
north of Stony Creek. Additionally, an existing trail system around the
east side of North Bay connecting Cruger Island Road and Kidd Lane will be
renovated for foot access to the site. Three small primitive parking areas
will be developed in conjunction with the access points, away from the
margin of the wetlands. The proposed access system will provide access for
researchers and educational groups as well as fishermen, hunters and outdoor
recreationists. There is an unimproved river landing at the Village of
Tivoli north of North Bay.

Iona. There is access to the marsh from Rt. 9W and also from the
dirt causeway connecting 9W to Iona Island. The Palisades Interstate Park
Commission will repair the causeway in 1982 or 1983 as soon as PIPC funds
are available. The causeway provides access for researchers and certain
other users, but generally permits are required from the Park Commission.
The Trail side Museums complex north of the site is accessible from the
highway and will house the proposed sanctuary educational facility. The
Appalachian Trail passes through this complex.

Piermont. The Erie Pier, owned by the Village of Piermont, is used for
launching boats and has parking space for about 40 vehicles. The Village is
planning construction of a launching ramp.

14

The pier is also used by fishermen and birdwatchers. There is foot-
path access to the marsh edge as well as to views over the marsh in Tall man
Mountain State Park.

3. Management of the Proposed Sanctuary

The Estuarine Sanctuary Program is not a new State or Federal regula-
tory program. The proposed sanctuary would be managed using existing State
laws and programs. The Estuarine Sanctuary Program is a State program; the
Federal government is a partner in providing funds and guidance during
the establishment phase. The principal goals of the proposed Hudson River
Estuarine Sanctuary are to:

(1) Manage the area's natural resources in a manner compatible with
the National Estuarine Sanctuary Program goals and objectives in order
to maintain, protect, and enhance the quality of the area's biological,
physical , and cultural resources.

(2) Encourage scientific research that focuses on both improving
decisionmaking in coastal management and increasing understanding of estuarine
ecosystems.

(3) Increase national and local awareness of the significance of the
estuarine resources within the proposed sanctuary and the Hudson River
Estuary in general, and encourage wise use of these resources.

(4) Allow traditional resource uses (including hunting, fishing and
and trapping) in coordination with National Estuarine Sanctuary Program
objectives.

a. Management Plan

A Management Plan for the proposed Hudson River Estuarine Sanctuary
would be formulated within one year after the acquisition grant is received.
This plan would be prepared under the direction of the Sanctuary Steering
Committee in full consultation with the land-owning agencies, the Sanctuary
Advisory Committee, and the public. The plan would provide a framework for
conducting research and educational programs and for integrating public uses
into broader National Estuarine Sanctuary purposes, while ensuring compatibility
of the various Federal, State, and local programs already in effect on the
Hudson River Estuary. The management plan would incorporate the management
prerogatives of the various Sanctuary land-owning agencies.

b. Management Structure

The DEC will administer the proposed sanctuary and will be directly
responsible for the content and structure of the sanctuary's management plan,
the expenditure of program funds, and the formulation and implementation of
general program elements (such as research programs and educational programs).
A Sanctuary Steering Committee comprised of the five State agencies involved
in the proposed sanctuary has been formed.

15

The Steering Committee consists of representatives from the following
State agencies:

1. Department of Environmental Conservation (DEC) including Regions
3 and 4 (lead agency, owner of certain sanctuary lands).

2. Office of Parks, Recreation and Historic Preservation (OPRHP)
(Saratoga-Capital District State Park and Recreation Commission)
(owner of certain sanctuary lands);

3. Palisades Interstate Park Commission (PIPC) (owner of certain
sanctuary lands);

4. Office of General Services (OGS) (owner of certain sanctuary
lands);

5. Department of State (DOS) (responsible for N.Y. State's Coastal
Management Program).

DEC will chair this Steering Committee. The Committee is advisory
to DEC on issues related to the formulation and implementation of the proposed
sanctuary's management plan, the expenditure of program funds, and formulation
and implementation of general program elements. Consistent with the management
plan, the State agencies will exercise prerogatives and make decisions regarding
use of lands to which they hold title.

The National Oceanic and Atmospheric Administration (NOAA) would serve
as an ex-officio representative to the Steering Committee. A Memorandum of
Agreement, signed by the agencies represented on the Steering Committee,
is reproduced as Appendix 8. The Memorandum of Understanding outlines
interagency arrangements for the administration and management of the proposed
sanctuary, and expresses the agencies' agreement to carry out the management
plan.

The Sanctuary Advisory Committee (SAC) will represent local government,
user groups, conservation organizations, researchers, educators, funding
organizations, and adjoining land owners. The purpose of the SAC is to
achieve coordination among the public and private groups participating in
the sanctuary program, and to assist and advise the Sanctuary Steering
Committee. The SAC will help in securing funding from the private sector,
organizing volunteer efforts in education and management work, soliciting
and channeling public input to the sanctuary planning process, reviewing the
proposed sanctuary management plan and any changes in the plan, reviewing
proposals for educational and research use and other activities within the
proposed sanctuary, enhancing communication and cooperation among all
interests involved in the proposed sanctuary.

The SAC will function as three local committees for the three local
counties containing proposed sanctuary sites (Columbia, Dutchess, and
Rockland), with an executive committee that meets to coordinate the work
of the three local committees. The committees will consist of local
representatives as outlined in Table 3. The chairpersons of the three
local committees will meet with the Steering Committee.

16

Coordination of the Steering Committee is assured by the Memorandum
of Agreement among the agencies involved that they agree to the objectives
and specifications of this Final Environmental Impact Statement and the Federal
Guidelines for the National Estuarine Sanctuary Program. The purpose of
the coordinated management -approach is to improve consistency, reduce conflicts,
and provide better service to the public. The site-by-site organization of
ownership and management responsibility follows.

Table 3. Sanctuary Advisory Committee (Tentative Composition

Stockport (Columbia Co.)

Town Government

County Environmental Advisory Group

Sportsmen's Group

Commercial Fisherman

Conservation Group or Nature Club

Adjoining Land Owner

Scientific Researcher

Educator

Business Representative

Ti vol i (Dutchess Co.) (This committee will be the same as the

Tivoli Bays State Lands Advisory Committee.)

Town Government

Village of Tivoli Representative

Town Conservation Council

Dutchess County Trappers' Association

Ralph T. Waterman Bird Club

Adjoining Land Owner

Scientific Researcher

Bard College Educator

Business Representative

Local Waterfowl Hunter

Piermont and Iona (Rockland Co.)

Local Government

Municipal Environmental Advisory Group

Sportsmen's Representative

Commercial Fisherman

Conservation Group or Nature Club

Adjoining Land Owner

Scientific Researcher

Educator

Business Representative

17

Stockport

Office of Parks, Recreation and Historic Preservation, Saratoga-
Capital District Park and Recreation Commission:

owns land at Gay's Point and Stockport Middle Ground and is
responsible for any facilities at those areas. There is a
management plan for the Gay's Point and Stockport Middle
Ground elements of the Hudson River Islands State Park, and
picnicing, camping, fishing and hunting are permitted at
those areas in accordance with provisions in the management
plan.

Office of General Services:

owns the remainder of the currently State-owned lands at the*
Stockport site. Fishing, hunting and trapping are permitted on
OGS lands, and these uses will continue. OGS has no facilities on
its lands at Stockport.

Department of Environmental Conservation; Office of Parks,
Recreation and Historic Preservation, and Office of General Services

together will plan and conduct whatever further acquisition of
lands at the Stockport site is desired.

Tivoli

Department of Environmental Conservation:

owns lands at Cruger Island, North Bay, and east of North Bay, and
is negotiating further acquisition there. A management plan for the
Tivoli Bays State lands is being prepared by DEC under a directive
that predated the Estuarine Sanctuary Program. (This acquisition
project was initiated in 1980 using on a 50-50 matching basis a
Heritage Conservation and Recreation Service grant and New York
State's Environmental Quality Bond Act funds, and has also been
called "Tivoli Bays Nature and Historical Preserve." The area will
also serve as a wildlife management area.) Facilities constructed
at the Tivoli site for the proposed estuarine sanctuary would be
funded (construction and maintenance) with estuarine sanctuary
funds and other funds as needed. However, DEC will be responsible
for physical management of the site.

18

Office of General Services:

owns lands in North Bay, the northern end of South Bay, and around
Cruger Island and Magdalen Island which are to be transferred to
DEC under an agreement which pre-dated the Estuarine Sanctuary
Program. OGS also owns lands in the middle of South Bay and
outside South Bay (west) which will remain in OGS ownership, but
will be managed by DEC under the National Estuarine Sanctuary
Program. OGS has no facilities at the Tivoli site.

Iona

Palisades Interstate Park Commission:

owns the Iona Island Marsh and all surrounding areas west of the
railroad, as well as the portions of Iona Island and Round Island
east of the railroad, the shallows adjacent to the island, and
the Bear Mountain State Park Trail side Museums complex. PIPC
maintains a portion of the Appalachian Trail which passes within
three-tenths of a mile of the marsh (this is the only point
where the Appalachian Trail passes through the coastal zone).
The United States Department of the Interior holds a reversionary
interest in the portions of Iona Island and Round Island east of
the railroad. PIPC patrols the entire site, and regulates use of
the site in accordance with established PIPC management policies.
PIPC will be responsible for the maintenance of all improvements,
additions, and exhibits at the Trailside Museums built with
estuarine sanctuary funds. PIPC is also responsible for the
maintenance of the access road to Iona Island. Hunting and trapping
have not been permitted for more than 65 years at Iona Islands
on PIPC lands and permits are generally required for other uses.

Piermont

Palisades Interstate Park Commission:

owns the major (central) portion of Piermont Marsh, and water
rights grants adjacent to the eastern edge of the marsh. Hunting
and trapping have not been permitted for more than 50 years on
the PIPC lands, which are managed according to established PIPC
policy. There are no structures on the PIPC lands included in
the proposed sanctuary boundaries.

Department of Environmental Conservation:

is acquiring lands in the north end of Piermont Marsh between
Sparkill Creek and the Erie Pier, and will manage the parcels
to be acquired and any other parcels acquired in that portion
of the marsh under the National Estuarine Sanctuary Program.

19

c. Sanctuary Staff

The DEC in consultation with the Sanctuary Steering Committee would
direct a staff consisting of at least one person, the Sanctuary Manager.
The Manager will be an individual experienced in the environmental sciences
and in grant proposal preparation. An alternative arrangement would be two
individuals, a scientist and a grants writer. The Manager will occupy an
office to be selected near the Ti vol i or Iona site or between these two
sites. If only one person is appointed, arrangements would be made to
secure the part-time services of at least one other person, so that one
staff member resides near the up-river sites and one resides near the
downriver sites. The part-time staff member could be a shared position
with another Hudson River Estuary related job in the public or private
sector. Additionally, the services of volunteers would be sought wherever
possible.

The sanctuary staff would be accountable to the DEC and the duties
of the staff would be:

(1) Coordinating research within or related to the proposed sanctuary,
and sharing the research results with the State Coastal Management Program
and other State Programs related to the Hudson River Estuary;

(2) Coordinating the educational program for the proposed sanc-
tuary and establishing a forum for open discussion between environmental
and economic interests along the estuary;

(3) Preparing grant proposals and managing the finances of the
proposed sanctuary;

(4) Performing other administrative duties for the proposed
sanctuary, including maintenance of complete and detailed scientific and
management records of the proposed sanctuary;

(5) Working with the Steering Committee and the Sanctuary Advisory
Committee;

(6) Advising government agencies on issues, questions and projects
that have an impact on the proposed sanctuary.

d. General and Specific Management Requirements

Management policies would be based on the primary objective of main-
taining the proposed sanctuary in a natural condition to assure long-term
protection of these four areas for research, education, and recreation.
Development uses that would significantly alter the ecosystem or that are
inconsistent with the purposes and goals of the proposed sanctuary would
not be allowed on the proposed sanctuary lands.

20

Existing Federal, State, and local laws would, as in the past, control
uses of the land and water areas within the proposed sanctuary boundaries.
Changes in management policies and regulations that affect the proposed
sanctuary would be reviewed by the Sanctuary Advisory Committee. This
Committee may provide advisory comments on policies and programs, but would
have no regulatory authority.

Major traditional uses of the lands and water within the proposed
sanctuary boundaries are compatible with the research and education
objectives of the proposed sanctuary. These traditional uses include
fishing, hunting, and trapping (at Tivoli and Stockport), commercial
shipping and recreational boating, rail and transportation, and recreational
use of the Erie Pier at Piermont. The Experimental Ecological Reserve Program
at Tivoli, the DEC Management Plan for the Tivoli Bays State Lands (in
preparation), the National Natural Landmark status (U.S. National Park
Service) of Iona Island Marsh, other State Park uses of the proposed sanctuary
sites, and other established policies of the involved State agencies will
remain in effect.

Although some Experimental Ecological Reserves have programs of
large-scale physical manipulation of habitats for experimental purposes,
such manipulation would not be consistent with the goals of the proposed
Hudson River Estuarine Sanctuary. Experiments would be designed to assess,
evaluate and expand knowledge of natural systems within the proposed sanctuary,
or larger scale manipulations outside of the proposed sanctuary boundaries
which would not alter the natural systems within the proposed sanctuary.
Significant long-term or permanent habitat manipulation is generally
considered incompatible with estuarine sanctuaries.

e. Enforcement of Existing Laws

Enforcement of existing Federal, State and local laws within the
proposed sanctuary would continue as it has in the past. Establishment of
an estuarine sanctuary does not bring any new Federal or State regulation
to the area, but it emphasizes the importance of the area for research and
education. The following laws, among others, would guarantee the integrity
of the proposed sanctuary: Federal Clean Waters Act, Section 404; and Rivers
and Harbors Act Section 10; State Tidal Wetlands Act, Freshwater Wetlands
Act; and Stream Protection Act; other parts of the State Environmental
Conservation Law; New York State Parks and Recreation Law; and New York
State Waterfront Revital i zation and Coastal Resources Act. A more detailed
list of existing laws and jurisdictions is in Appendix 2.

21

f . Research Program: Hudson River Estuarine Sanctuary

Estuarine sanctuary research would focus on estuarine studies and
studies of the interaction of terrestrial and marine ecosystems with the
estuarine ecosystem. Studies would be carried out in wetlands, shoreline,
shallows and deepwater habitats with a special emphasis on shoreline and
wetlands habitats because these habitats of tidal rivers have been least-
studied, particularly in the Hudson River Estuary. Most research would be
done by private laboratories, colleges, universities and State agencies.
The Steering Committee would coordinate research objectives and priorities
for the proposed sanctuary, and coordinate research activities.

The State agencies represented on the Steering Committee would stimulate
new research in the proposed sanctuary. Public interests, especially sanctuary
user groups, would draw attention to practical problems of ecology and management
in the Hudson River Estuary. Interaction between New York's Coastal Management
Program (NYS Department of State), New York Sea Grant Institute, and the
Steering Committee members would enable the Sanctuary Research program to
function partly in an "experiment station" mode to identify and address the
information needs of coastal management. A significant factor in future
scientific research on the Hudson is the newly-established not-for-profit
Hudson River Foundation for Science and Environmental Research, Inc., with an
endownment of $12 million provided by Consolidated Edison Company of New
York, Inc., Niagara Mohawk Power Corporation, Central Hudson Gas & Electric
Corporation, and Orange and Rockland Utilities as a result of the landmark
negotiated settlement involving the utilities, U.S. Environmental Protection
Agency, N.Y. State DEC, Scenic Hudson, Inc., Hudson River Fishermen's
Association, and the Natural Resources Defense Council.

A considerable amount of research has already been done on the Hudson
River Estuary. The National Estuarine Sanctuary Program can provide the
coordination needed to make the most efficient use of funds, existing data,
and research opportunities, while facilitating the availability of information
resulting from research and avoiding duplication within the proposed sanctuary.
The goals of the proposed estuarine sanctuary are compatible with those of
the Hudson River Environmental Society and the Hudson River Research Council
(groups of scientists and educators formed to coordinate research and
disseminate research results to the public). There is opportunity for
improved sharing of equipment, facilities and personnel of the type shown by
the two Hudson River Field Weeks in April 1977 and August 1978. Special
opportunities also exist for the public (students, sportsmen, naturalists,
etc.) to assist as volunteers in research projects; this approach was used
successfully by Boyce Thompson Institute in collecting data on Hudson River
Estuary fish, invertebrates, and marsh vegetation. This "volunteerism" will
link research and education efforts in two ways: (1) educational field
trips can collect samples and make observations useful to scientists, and
(2) amateur naturalists can do field work under scientific supervision.
Fishermen are already assisting in tagging projects, and a postcard reporting
system is under study by the Hudson River Fisheries Advisory Committee to
enable sportsmen and naturalists to contribute to a scientific data base
information on observations of unusual events and species that would otherwise

22

be lost. The Fisheries Advisory Committee and the DEC Hudson River Fisheries
Coordinator will work closely with the Steering Committee to stimulate and
plan research, and exchange assistance and information.

Ti vol i Bays was designated an Experimental Ecological Reserve (EER)
in 1981 under the Institute of Ecology (Butler University) national system
of Experimental Ecological Reserves. This is a non-funded system of
reserves that are selected to serve as sites for long-term ecosystem-
level studies. Some of the monitoring and research planned for the EER
would be extended to cover all four estuarine sanctuary sites. The proposed
sanctuary sites were selected to allow research on a cross-section of
areas representing similar habitats (shoreline, marshes, shallows) along
the ecological gradient of the estuary, and these sites are well-suited
for long-term studies comparing stability and change in vegetation, animals
and ecosystem function. New York's commitment to maintaining these natural
areas will permit long-term ecological research not possible elsewhere.

In connection with the proposed estuarine sanctuary, appropriate
facilities (existing or new) would be designated to serve as respositories
for published and unpublished reports, data, and voucher specimens of
plants and animals in different reaches of the Estuary. It is expected
that the planning of repositories would be coodinated with the Hudson
River Foundation for Science and Environmental Research, Inc. and other
active groups.

Estuarine Sanctuary grant funds will not be adequate to support all
research. Some operations funds may be used for environmental monitoring.
Therefore, estuarine sanctuary staff would conduct an active fund-raising
effort to support research, in conjunction with the preparation of grant
proposals by independent researchers and other institutions.

The specific research projects to be conducted would be determined
later and would be carried out within the scope of available funding. In
general, research would be encouraged that is relevant to effective coastal
management and the wise use of Hudson Estuary resources. The following
topics are examples.

(1) Ecosystem-level studies of the flows of energy and nutrients
within the wetlands, between the wetlands and the open estuary, and between
the wetlands and the shores;

(2) Studies of the role of terrestrial and acquatic plant detritus
in the nutrition of estuarine organisms in the Hudson's fresh-tidal and
brackish-tidal areas, and the effects of detritus from different sources
of these processes;

(3) Patterns and changes in vegetation of wetlands, shallows and
shores, and effects on fish and wildlife populations, soils, and
nutrient cycles;

(4) Ecology of wildlife food plants such as water-celery, wild-rice
and cattail ;

23

(5) Role of the Hudson River Estuary wetlands and the shallows in
the spawning, juvenile development (nursery) and feeding of commercial
and sport fishes;

(6) Role of the Hudson River in the Atlantic waterfowl and shorebird
flyway, and the value of the wetlands and shallows as resting, breeding,
and wintering places for waterfowl;

(7) Marsh bird (rail, gallinule, bittern, wren, blackbird and
sparrow) populations and their relationship to marsh vegetation, food
organisms, and other animals;

(8) Muskrat ecology, populations, relationship to soil, vegetation
and other wildlife, diseases, environmental contaminants, limiting factors,
and economic value;

(9) Invertebrates (benthic and planktonic) and their role as fish and
wildlife food and in sediment processes and nutrient cycling in the wetlands
and shal lows;

(10) The species composition and production of Hudson River marsh
vegetation compared to fresh-tidal and brackish-tidal marshes in other
East Coast estuaries, and to saline-tidal marshes;

(11) The ecology, vegetation, wildlife, and resource values of
freshwater-tidal swamps;

(12) Ecology of endangered species including shortnose sturteon, bald
eagle, osprey, heartleaf plantain and Nuttall's micranthemum, and ecology
of "estuarine endemics" such as cylindrical bulrush;

(13) Effects of rising sea level on tidal wetlands;

(14) Geologic character and history of wetland sediments and
vegetational history of the wetlands; and

(15) Microbial communities and role in ecosystem processes.

In addition, the "experiment station" approach could address management
problems elsewhere on the estuary such as:

(1) Fish stocking potentials and policies;

(2) The sources and cycling of toxic substances and the uses of
plants and animals to monitor toxic substances;

(3) Effects of introduced plant and animal species on the estuary
and on native species;

(4) Mitigation of effects of channel maintenance and dredged material
disposal ;

(5) Shoreline erosion and its management;

24

(6) The assimilation capacity of natural environments for nutrients
and other waste materials;

(7) Manipulative experiments on wetlands outside the proposed sanctuary
sites, to study effects of management practices such as impoundment,

water level control, pest control, and wildlife species management, and
restoration of damaged wetlands; and

(8) Experiments in mitigation and minimization of development and
management impacts to include industry, marinas, railroad right-of-way
management, and shoreline stabilization.

g. Existing Monitoring

Several State and Federal Agencies and private institutions conduct
monitoring of physical, chemical and biological characteristics of the
Hudson River Estuary.

0

(2
(3

(4

(5
(6

(7

(8

(9

(10

(11
(12

Tides and freshwater flow;

Water quality^

Air quality and weather;

Fisheries surveys and stock assessments;

Commercial fishing activity;

Levels of PCB and metals in fish;

Distribution and abundance of endangered animals and plants;

Mid-winter aerial water fowl surveys (see Appendix 5);

Christmas Bird Counts (several locations):

New York State Breeding Bird Atlas;

Breeding birds and vegetation of the railroad right-of-way; and

Seismic activity.

The monitoring and research program at the proposed sanctuary would
be designed for compatibility with similar work at the other existing
National Estuarine Sanctuaries and coastal Experimental Ecological Reserves.
It is anticipated that the proposed Hudson River Estuarine Sanctuary
would be the site of regular workshops and conferences on ecology and
management of estuaries and wetlands. A research prospectus would be
circulated regularly to inform and attract potential researchers.

25

h. Education and Public Awareness Program

While few people live next to the proposed sanctuary sites themselves,
approximately 15 million people &re located within a 45- minute drive of
the sites. Each year millions of people visit the shores of the Hudson
River for recreation and other purposes. The Trailside Museums complex
adjoining the Iona Island Marsh site has an estimated 600,000 visitors
annually. At the Trailside Museums and at selected locations on or
adjacent to the other three proposed sanctuary sites, it would be possible
to accommodate many people for educational purposes without damage to the
natural areas or conflicts with other uses.

The proposed sanctuary staff and Sanctuary Advisory Committee would be
active in public education. There is a growing body of scientific information
on the Hudson River Estuary, but relatively little of it has been interpreted
for the lay public. During the last 5-10 years, Hudson Valley residents
have evidenced considerable interest in seeing and learning about the estuary
and its life, and the wetland and shoreline environments represented in the
proposed sanctuary lend themselves well to this purpose.

These are examples of possible education programs:

(1) Improvements to the Bear Mountain Trailside Museums to accommodate
indoor and outdoor exhibits on the Hudson River Estuary and the Iona Island
Marsh complex, oriented toward the general public with no prior knowledge of
the estuary;

(2) Facilities in an addition to the Bard College Field Station at

Ti vol i Bays for graduate and undergraduate students, visiting scientists, and
invited public class use;

(3) A boardwalk accessible to the handicapped, through tidal marsh,
swamp and pool habitats at the margin of the Tivoli Bays wetland, for
the use by public and by researchers;

(4) Traveling exhibits about the estuarine sanctuary for sportsmen's
shows, elementary and secondary schools, nature and civic club meetings,
county fairs, conferences, and other events;

(5) Interpretive brochures describing the four proposed sanctuary
sites and the Hudson River Estuary in general, with trail maps and guides
to access points and special interest features (e.g., bi rdi ng "hotspots");

(6) A kit for teachers outlining estuary-related classroom activities
for various age groups, coastal studies curricula, and do-it-yourself field
trips to the proposed sanctuary sites or other Hudson River Estuary wetlands
and shoreline locations;

(7) Slide shows with pre-recorded taped narrations for loan to
schools and public groups;

(8) Posters interpreting the estuary and its life and management;

26

(9) Videotaped programs for cable television stations, other public
television, and school use;

(10) Organized field trips, guided by volunteer experts, at the proposed
sanctuary sites and other locations, dealing with specific as well as
general subjects;

(11) A "speakers' bureau" for all public groups, consisting of persons
with special knowledge of various Hudson River and general estuarine subjects
(e.g., wetland ecology, fisheries, birds); and

(12) A canoeist's guide to the proposed estuarine sanctuary.

Estuarine sanctuary educational activities would be closely coordinated
with ongoing programs at the Dutchess Community College Norrie Point Environ-
mental Center, Hudson River Sloop Clearwater, Wave Hill Environmental Studies
Center, and other institutions. The New York State Sea Grant Institute in
cooperation with the County Extension service has just inaugurated the
position of Hudson River Sea Grant Cooperative Extension Specialist to
promote public understanding of and appreciation for the estuarine
system.

B. Other Alternatives Considered

1 . No Action

Without a Hudson River Estuarine Sanctuary there would be no estuarine
area specifically identified and protected within New York, and New York
would lose the opportunity to participate in the National Estuarine Sanctuary
Program. New York and the Nation would be unable to derive the benefits
from the research information and public awareness that would result from
establishing and this area as an Estuarine Sanctuary.

Although much of the land within the proposed sanctuary boundaries
is already State-owned, under the "No Action" alternative New York would
not be as readily able to acquire the remaining lands to fill in the public
ownership gaps in the Piermont, Tivoli and Stockport marshes and these areas
might not be manageable as State reserves. Furthermore, there would be less
incentive for the several State agencies to work together to develop
consistent management policies and practices with short-term and long-term
benefits for natural area conservation, rare and endangered species,
research, education, and recreation. Without designation of the estuarine
sanctuary there would be less incentive for donation or bargin sales of
lands adjacent to present State ownerships. Also, there would be no
prestigious national program to attract research funds and highly qualified
scientists from various fields to do long-term research with the confidence
that their study area would remain protected.

27

Without the designation of the Hudson River Estuarine Sanctuary, the
National Estuarine Sanctuary System would lose the opportunity to study
the extensive low salinity brackish and fresh-tidal estuarine marshes and
swamps so little studied to date. Also the opportunity would be lost to
inform the large urban populations of the New York Metropolitan Area and
the State Capital District that have had little exposure to information
about estuarine systems.

The "No Action" alternative would not specifically prevent any single
research project or land acquisition project, but the impetus for unification
of management and coordination of research and education would be lost. The
sanctuary designation plus the provision of management funds and the planning
accompanying it, would establish a more comprehensive program as well as
encourage additional research in the area, while such focus would likely
not occur without designation.

2. Alternative Sites and the Site Selection Process for New York State

The State of New York commenced its site selection process soon after
receiving a memorandum from the Office of Coastal Zone Management (OCZM)
sent in September 1979, inviting Mid-Atlantic States to nominate a candidate
site. The Coastal Management Unit staff of the New York Department of
State forwarded this invitation, along with the Federal Estuarine Sanctuary
guidelines and case studies of Sanctuaries created in other parts of the
country, to other State, regional and county agencies which had already
been assisting in development of the New York Coastal Management Program.
Representatives from these agencies, as well as from the New York Sea Grant
Institute and the Marine Sciences Research Center of the State University
were asked to review the Federal site selection criteria and consider
possible candidate sites. Virtually all eligible sites had already been
identified through the State's Coastal Management Program, and many were
documented as Geographical Areas of Particular Concern or as Significant
Habitats. New York' landmark Tidal Wetlands and Freshwater Wetlands
regulatory laws also helped to identify candidates through the mapping
required by those statutes. Information was also provided by the programs
of the Department of Environmental Conservation to identify and acquire
key tidal and freshwater wetlands with funds provided under the State
Environmental Quality Bond Act of 1972. All of these identification and
registration programs and involved broadbased public input from sportsmen,
scientists, naturalists, educators, politicians and other interested
individuals and groups.

In October 1979, representatives from these agencies met to discuss
New York's possible involvement in the Program and to identify potential
candidate sites. At this meeting the Estuarine Sanctuary Steering
Committee was created (in a slightly different form than at present) to
guide the Department of State in its selection of the best candidate site.
The Steering Committee then consisted of the following persons:

28

Ms. Frances Dunwell, Center for the Hudson River Valley

Mr. Francis A. Hyland, Long Island State Park and Recreation
Commission

Mr. Joe Ketas, City of New York Department of City Planning

Mr. Ronald Killian, The Nature Conservancy

Mr. Erik Kiviat, Bard College

Dr. Lee E. Koppelman, Long Island Regional Planning Board

Mr. James W. Morton, NYS Department of State

Mr. John Muenziger, Westchester County Environmental
Management Council

Mr. Steven Resler, Town of Smithtown Planning Department

Dr. Jerry R. Schubel , State University at Stony Brook

Dr. Donald F. Squires, New York Sea Grant Institute

Mr. Anthony Taormina, NYS Department of Environmental
Conservation

Mr. Ivan Vamos, New York State Office of Parks and Recreation

The Steering Committee evaluated a number of candidate sites using
the selection criteria listed in the Federal Estuarine Sanctuary Program
Guidelines. The three sites which best met the Federal criteria were:

(1) The Peconic-Flanders Bays area;

(2) The Hudson River marshes; and

(3) The Nissequogue River.

Short position papers describing each estuarine area were prepared
and sent to OCZM for preliminary review. The object of this review was to
determine in any of these sites would be clearly ineligible for the Program.
OCZM staff deferred expression of preference for any one site in order to
allow New York to make an independent decision on the State's best candidate.
OCZM staff prepared a memorandum clarifying the current interpretation of
the Federal selection criteria. Copies of this memorandum and all three
position papers were sent to every Steering Committee member for review.

29

Early in December 1979 the Steering Committee held public information
meetings in Hauppauge and New Paltz to publicize its interest in selecting
a candidate site and to seek public comment on the selected sites. Shortly
afterwards, members of the Steering Committee and a representative from
Washington visited each of the three areas, making overflights and holding
meetings with local public officials and interested groups.

Later in December, the Steering Committee met to re-evaluate the sites
in light of the OCZM memorandum on selection criteria, their observations
during the site visits, and additional information provided at the public
meetings. Each Steering Committee member had been asked to complete site
evaluation forms prior to the meeting. Evaluation scores were compiled at
the beginning of the meeting and discussion of the strengths and weaknesses
of each candidate followed. After considerable discussion, the Peconic-Flanders
Bays area was selected as the State's best candidate for nomination in the
Program, with the Hudson River Marshes as a strong second.

When the primary nomination had to be withdrawn in early 1980 due to
programmatic and local political difficulties, the Hudson River proposal
became the primary candidate, and the pre-application process resumed, with
a new lead agency (DEC) and a new Steering Committee (see list of preparers).
The initial Hudson River proposal included five wetland complexes, from north
to south: Tivoli Bays, Constitution Island Marsh, lona Island Marsh, Croton
Marshes, and Piermont Marsh. OCZM and Hudson River ecologists suggested that
Constitution be dropped from the proposal because of a localized pollution
problem, and that Croton be dropped because of conflicting land uses. After-
wards, Stockport Flats was added to the Hudson River proposal to represent
the narrow and sandy upper reach of the estuary.

The Federal guidelines require that the sites be representative of the
estuary, and that the sites do not duplicate each other in character. The
four Hudson River Estuary sites represent the salinity-vegetation-fauna
gradient of the Hudson, and one site is located in each of the four differing
geologic-ecol ogic segments of the estuary (see Affected Environment).
The total (high tide) surface area of the Hudson River Estuary from Battery
Park to Troy is approximately 82,800 acres, and the portion of this total
which is composed of intertidal wetlands plus subtidal shallows (less than
6 feet deep at low tide) is 21,200 acres (26%). Thus, the total acreage
of the wetlands and shallows of the four sites (Stockport, Tivoli, lona,
Piermont) is approximately 2,860 acres or about 13% of the Hudson River
Estuary's wetlands-shallows component, a fraction considered representative
and adequate for the estuarine sanctuary purposes.

All four Hudson River Estuary sites are large wetland complexes, among
the Hudson's largest, and all four have subsystems that lend themselves to
comparative research along the estuarine salinity gradient: extensive
cattail stands cut by tidal creeks, associated tidal shallows and mudflats,
and forested terrestrial zones. All sites include the wetlands-shallows
and wetlands-uplands habitat combinations that promote wildlife use and
allow study of ecosystem linkages.

30

The four Hudson River Estuary sites are among the Hudson's highest
quality estuarine natural areas, and contain biological features of
national significance including rare and endangered species. The sites
are well-buffered by compatible adjoining land uses, ensuring manageability
and future quality. All areas are conveniently near (for research and
education) academic facilities, laboratories, and large urban populations,
but retain their wildland character and offer secluded and pleasing
environments for research and educational activities. All sites have
suitable existing or potential access for the purposes of the Estuarine
Sanctuary Program.

The Hudson River Estuary is demographical ly central in New York State.
A great amount of biological research has been done on the Hudson Estuary,
in part because of its proximity to New York City and to numerous academic
and scientific institutions, in part due to environmental analysis carried
out in connection with land use planning and environmental management,
and also due to the Hudson's inherent and urrique interest to biologists as
a diverse and productive natural estuarine system.

For at least 12 years private and public groups have called attention
to the need for overall coordination of research, education, and management
efforts on the Hudson. The Hudson River Research Council convened two
conferences to address this problem in 1976 and 1977, and the Hudson
River Environmental Society held a Hudson River Marsh' Workshop in 1976,
five Hudson River Ecology Symposia from 1966 to 1980, and a Hudson River
Fisheries Conference in 1981.

Because of an excellent State land acquisition program during the last
several decades, many of the ecologically significant Hudson River Estuary
wetlands, islands, and shore natural areas are already in State ownership
as parks, wildlife management areas, and preserves. Therefore, it was
appropriate to propose the establishment of an estuarine sanctuary involving
areas already predominantly State-owned and to use the program to fill out
existing core public lands.

Several alternatives were considered during the process of selecting
sites on the Hudson River Estuary. One alternative was a sanctuary
consisting of the entire Hudson River Estuary from Battery Park to Troy.
This alternative has many advantages for management, research and education,
but was rejected as being unworkable in the short-term due to constraints
of funding and land use conflicts. Individual alternative sites were
considered, and a number of sites were suggested by individuals and
private groups. Several recommendations were received in favor of the
addition of the Grassy Point wetland complex at Haverstraw to the proposal,
but this seemed inappropriate because of the same standards of environmental
quality to Constitution Island Marsh and Croton Marshes. Among many
other areas considered were Con Hook Island and Marsh, Manitou Marsh,
Moodna Marsh, Vanderburgh Cove, Suckley Cove, Kingston Point Marsh, Rogers
Island Marshes, the Hudson North and South Bays, Inbocht Bay-Duck Cove,
West Flats-Vosburgh Swamp, Ramshorn Creek-Livingston Marsh and Papscanee
Creek Marshes. These areas were all rejected for one or more of the following
reasons: small size, lack of representative sub- systems, localized environmental
quality problems, incompatible land and water uses. Special consideration

31

was given to selecting a site in the northernmost section of the estuary
between Troy and Saugerties, before settling on Stockport Flats as the best
choice. Papscanee Creek Marshes have modified tidal circulation and the
quality of the cattail stands is not as high; the West Flats-Vosburgh
Swamp complex is partly diked off from tidal flow and the diversity in the
remaining tidal portion is low; Hudson North and South Bays have been
adversely affected by neighboring land uses; and the Rogers Island complex
does not contain vegetation types comparable to the three southern sites
although it is a high-quality natural area. Stockport Flats stood out as
the site with the highest environmental quality and having subsystems
appropriate to the overall representativeness of the Hudson River Estuary
selection.

3. Alternative Boundaries

Boundaries set for the individual sites represent a mix of these
considerations: inclusion of the primary resources for research and
education, adequate protection and manageability, sufficient terrestrial
buffer zones, access, present ownership, availability of funding for
acqui sition.

a. Inclusion of Primary Resources. The extensive main wetland
areas at all four sites are the focal points of the proposed sanctuary.

The placement of the lower (river) boundaries of the sites near the
minus-6 foot contour includes enough of the shallows for management purposes
while acknowledging that research work can be carried out in the deeper
waters where no specific protection is required.

b. Adequate Protection and Manageability. The range of size
of the four sites is within a range considered manageable yet still provides
for the future integrity and protection of the sites. Inclusion of areas

on both sides of the river at any one site (e.g., Stockport Flats and West
Flats) was avoided because of logistical problems. Extension of site
boundaries across zones with little or no shallow water was also avoided
because it would have created unnecessary disjunction (e.g., Iona Island
Marsh and the mouth of Popolopen Creek).

c. Terrestrial Buffer Zones and Access. Extent of buffer
zones was set depending upon status of adjoining lands and topography.
At Iona and Piermont, the amount of terrestrial mainland included in

the site boundaries was moot because of the stringent protection afforded
the State Park lands. At Tivoli, a decision was made to include the
entire State-owned uplands to achieve consistency in the boundaries of
the State lands, Experimental Ecological Reserve, and proposed estuarine
sanctuary, while creating a management unit. At Stockport, the primary
considerations were access and reasonable size of management unit and
proposed acquisitions, while affording protection for the main marsh and
for endangered species. All of the terrestrial portions of Iona Island
are included in the site boundary because of management consistency and
protection of endangered species. At Piermont, it was decided to include
the north end of the marsh to avoid management conflicts, to protect
both sides of the mouth of Sparkill Creek, and to use the Erie Pier as
an access point.

32

The proposed boundaries are the products of extensive Steering Committee
discussions and meet the needs of all State agencies involved as well as the
requirements of the Federal Program. The boundaries will permit workable
administration and ease of management of the proposed sanctuary.

4. Alternative Management Scheme

The proposed management scheme (separate State agency ownerships with
integrated management agreement and management plan) is considered the best
choice because it respects traditional agency prerogatives and enables the
pooling of resources and expertise of all agencies and interests involved.
Consideration was given to alternative schemes, for example, transfer of
all lands to a single agency or administration of the proposed sanctuary
by a private group. The other alternatives were rejected because of the
lack of adequate mechanisms and the desire to retain traditional uses and
policies as much as possible. The State's Coastal Management Program has
involved strong cooperation among State agencies and has shown that
collaborative management of the proposed sanctuary is the best alternative.

5. Funding

Several sources of funds have been used in the past for the acquisition
of natural areas in the Hudson River Estuary; these include Federal Land
and Water Conservation Fund, State Environmental Quality Bond Act of 1972
funds, and private initiatives including the donation of lands to conservation
groups. At the present time, no adequate source of funds is available for
an estuarine sanctuary project (acquisition and operation) other than the
NOAA National Estuarine Sanctuary Program funds here considered.

Special advantages of NOAA National Estuarine Sanctuary Program funding
include:

(1) The emphasis on research and education programs while retaining
other traditional uses of the sites;

(2) The prestige of the National Estuarine Sanctuary System which
would attract national attention to New York, increase the chances of
receiving substantial research grants from other public and private sources,
improve research and education opportunities at the selected sites, and
strengthen public support for continued pollution abatement and public
enjoyment of the resource; and

(3) The National Estuarine Sanctuary Program provides five years of
matching operations funds which are needed to establish the proper management
of the proposed sanctuary during its first years after establishment.

Federal estuarine sanctuary grants are not available for other purposes.
During the first years of sanctuary operation, plans would be made for funding
of the proposed sanctuary after Federal funding expires. Sources of post-
Federal funding may include one or more of the following: State agency funds;
private donations or grants for sanctuary operations; interest from an
endownment raised by a not-for-profit corporation; a possible State Legislative
appropriation; equipment, services, and time donated to the proposed sanctuary
by the private sector; and voluntary donations by users of the proposed
sanctuary.

33
PART III: AFFECTED ENVIRONMENT

A. Hudson River - General Description

The Hudson River flows 315 miles through eastern New York State
from the Adirondack Mountains southward to New York City. The Hudson is
a tidal river for 152 miles from Troy to Battery Park at the tip of
Manhattan Island where it empties into New York Harbor, Lower New York
Bay, and the New York Bight. Tidal freshwater extends from Troy south
to Hyde Park (Figure 5). The 0.1 parts-per-thousand salinity "salt front"
shifts through the Hyde Park to Yonkers reach.

The Hudson River is entirely in New York State except for 20 miles
at its mouth where it flows between New York and New Jersey. The Hudson
River watershed lies in New York State except for small areas in New Jersey,
Massachusetts, Connecticut and Vermont. In New York, the Hudson Estuary
flows through or past 14 counties and 41 townships.

Geologic diversity is great in the Hudson River watershed and along
the tidal Hudson itself. Sandstone, shale, limestone, gneiss, diabase,
sand, clay and till are prominent along the tidal shores. Topography is
also varied, with narrow shallow reaches, narrow deep reaches, and broad
shallow reaches. River widths are about one-sixth to two-and-one-hal f
miles; maximum depths 13-200 feet. The tidal Hudson is a long narrow
estuary with an extended tidal -freshwater reach. Partial stratification
occurs at times in the lower estuary where a layer of fresher water may
flow outward over a layer of more saline water. The mean vertical tide
range averages 3-4 feet.

Ecologically, the Hudson River Estuary resembles other East Coast
estuaries in the Virginian Biogeographic Region (Cape Cod to Cape Hatteras).
For example, wetlands and shallows vegetation, and communities of fish
and wildlife resemble those found in the Connecticut River Estuary, the
Delaware River Estuary, and Chesapeake Bay.

Numerous habitat types are present in the Hudson Estuary. These
include open deep water, shallows, marshes, swamps, rocky and sandy
islands, silt bottom, peat bottom, clay banks, and rock cliffs. Extensive
areas of the Hudson Estuary shores are forested with oaks, maples, beech,
birches, hemlock, white pine and other trees. About 150 species of fishes
occur in the Hudson.

The four sites proposed for inclusion in the Hudson River Estuarine
Sanctuary are distributed as shown in Figure 5, and mapped in Figures 6-9.
These sites are, from north to south, Stockport Flats, Tivoli Bays, lona
Island Marsh and Piermont Marsh. The great majority of lands (both
estuarine and terrestrial areas) at these sites are already State-owned.

34

Hudson River Estuary

Troy

Hudson River drainage basin

Extent of tidal influc

Stockport

19 mi
45 min

Tivoli

67 mi
120 min

49 mi
75 min

lona

84 mi
160 min

66 mi
120 min

18 mi
45 min

Piermont

Distances (airline miles) and approximate driving times (minutes) between sites.

Fig. 5

35

Stockport Flats, The northernmost site is in the Town of Stockport
in Columbia County, near Col umbiavil le, 4 miles north of the city of Hudson
and 22 miles south of Albany (Figures 5-6). The Stockport site comprises
the mouth of a tributary stream (Stockport Creek) and a four-mile long
series of peninsulas, islands, marshes and shallows along the east
shore of the Hudson. Parts of the site are (or have been) known as
Columbiavil le Creek, Stockport Marsh, East Flats, Priming Hook, Unnamed
Island, Stockport Middle Ground, Gay's Point, and Fordham Point. Stock-
port Middle Ground and Gay's Point are part of Hudson River Islands State
Park. Stockport Flats was listed in the following surveys: The Hudson:
Biological Resources (Smith et al . nd) for rare plants, bird migration
stopover, landscape and educational values; Geographic Areas of Particular
Concern (CZM Study Program, 1977a); Significant Coastal Related Fish & Wild-
life Habitats of New York (CZM Study Program? 1977b).

Ti vol i Bays. The next site to the south is in the Town of Red Hook,
Dutchess County, and stretches for two miles between Tivoli and Barrytown;
it is 7 miles north of Rhinebeck and 19 miles north of Poughkeepsie (Figures
5, and 7). A small portion at the north end of the proposed site is within the
jurisdiction of the Village of Tivoli. Tivoli Bays comprises two large coves
on the east shore of the Hudson River, North Bay and South Bay, and includes
Cruger Island and Magdalen Island and associated tidal shallows, as well as
the mouths of two tributary streams, Stony Creek and Saw Kill. Parts of
the site are (or have been) known as Tivoli Bay, North Tivoli Bay or Tivoli
North Bay, South Tivoli Bay or Tivoli South Bay, North Cove, South Cove,
DeKoven's Cove or Bay, the Vly or Fly, Goat Island, Slipsteen Island, South
Curger Island, White Clay Kill and Stony Kill. North Bay and most of South
Bay, Cruger Island, and a mainland area east of North Bay make up the
Tivoli Bays State lands. (This acquisition project was initiated in 1980
using, on a 50/50 basis, matching funds from the U.S. Heritage Conservation
and Recreation Service and New York State's Environmental Quality Bond Act.)
The area has also been called "Tivoli Bays Nature and Historical Preserve".
The area has been designated an Experimental Ecological Reserve by the
Institute of Ecology at Butler University. The Tivoli Bays is under
consideration (1982) by the U.S. National Park Service as a potential
National Natural Landmark. The entire Tivoli Bays site is listed on the
National Register of Historic Places and is included in the Mid-
Hudson Historic Shorelands State Scenic Area which extends from Clermont to
Hyde Park. Tivoli Bays was listed in the following surveys: The Hudson:
Biological Resources (Smith et al . nd) for rare plants, bird migration
stopover, landscape and educational values; Geographic Areas of Particular
Concern (CZM Study Program, 1977a); Significant Coastal Related Fish &
Wildlife Habitats of New York (CZM Study Program, 1977b); Hudson River
Valley Study Site Inventory (Raymond, Parish, Pine and Weiner, 1979); Hudson
River East Bank Natural Areas, Clermont to Norrie (Kiviat, 1978).

Iona Island Marsh. The next site is in the Town of Stony Point,
Rockland uounty, b miles south of West Point and 4 miles northwest of Peek-
skill (Figures 5 and 8). The Iona Island marshes occupy a mile-long area
between Iona Island and the west shore of the Hudson. Parts of the Iona
Island site are (or have been) known as Salisbury Meadow, Ring Meadow,
Doodletown Bight, Doodletown Brook, Round Island, Manahawagh, Salisbury
Island, Weint's Island, and Beveridge's Island. The Iona Island site is

it Little Nutten Hook

Fordhom Point T

Fig. 6 Stockport Flats Area.

(Adapted from USGS Hudson North, N.Y. quadrangle.)

Extent of
tidal influence

tidal wetlands
tidal shallows
deep water

37

deep water

Fig. 7 Tivoli Bays Area.

(Adapted from USGS Saugerties, N.Y. quadrangle.)

38

Trailside
Museums

Bear Mtn

Doodletown
Bight

one km

land

tidal wetlands

A

tidal shallows

deep water

Fig. 8 lona Island Marsh Area

(Adapted from USGS Peekskill, N.Y. quadrangle.)

39

N

\Piermont

&

cs

Rt. 9V\T

•'

Erie Pi

**/$///

Tallmc
State

:£$ Piermont
t:.:: Marsh

in Mtn. \£:W:
Park yM

land

Palisades

Sneden'
Landing)

W$L t'c'a' wetlands
yA// t'dal shallows
deep water

Lamont
Doherty
Geological
Observatory

one km

one mile

1 —

Fig. 9 Piermont Marsh Area.

(Adapted from USGS Nyack, N.Y.— N.J. quadrangle.)
(Areas shown as 'tidal wetlands' and 'tidal shallows' are
both considered tidal wetlands under the State
Tidal Wetlands Act.)

40

part of Bear Mountain State Park, an element in the Palisades Interstate
Park system. The Iona Marsh has been designated a National Natural Landmark
by the United States National Park Service. Iona Island Marsh was listed in
the following surveys: The Hudson: Biological Research (Smith et al . nd) for
rare ecological niches, rare plants, bird migration stopover, and educational
value; Geographic Areas of Particular Concern (CZM Study Program, 1977a);
Significant Coastal Related Fish & Wildlife Habitats of New York (CZM Study
Program, 1977b); Hudson River Valley Study Site Inventory (Raymond, Parish, Pine
and Weiner, 1979).

Piermont Marsh. The southermost site is in the Town of Orangetown,
Rockland County, 4 miles south of Nyack (Figures 5, and 9). A portion at the
north end of the proposed site is within the jurisdiction of the Village
of Piermont. Piermont Marsh is one-and-one-half miles long, between
Piermont and Sneden's Landing; it includes the mouth of a tributary stream
(Sparkill Creek) and is surrounded by very extensive tidal shallows. Parts
of the site are (or have been) known as Sparkill Marsh, and Taulman Landing
or Point. The Piermont Marsh site is largely a part of Tallman Mountain
State Park, an element of the Palisades Interstate Park system. Piermont Marsh
was listed in the following surveys: The Hudson: Biological Resources (Smith
et al . nd) for rare ecological niches, rare plants, bird migration stopover,
landscape and educational values; Geographic Areas of Particular Concern
(CZM Study Program, 1977a); Significant Coastal Related Fish and Wildlife
Habitats of New York (CZM Study Program, 1977b); Hudson River Valley Study
Site Inventory (Raymond, Parish, Pine and Weiner, 1979).

1. Natural Environment

a. Geology

The Hudson River watershed is one of the most geologically complex
regions in the United States, and the shores of the Estuary show great
variety of bedrock, landforms and soils. After several geologic episodes
of uplift, folding and faulting, alternating with periods of erosion, the
Hudson Valley was overridden by the continental ice sheets. Glaciers
gouged out the broad U-shaped valley of the Estuary, and left bare rock
exposed in some locations and other areas covered with glacial and post-
glacial deposits of till, sand and clay. The bed of the Estuary itself is
filled with glacial deposits beneath recent estuarine sediments. Because
of predominantly steep shores, the Hudson's floodplain is \/ery limited in
extent.

The Hudson River Estuary may be divided in four geologic-ecologic
reaches (Kiviat, 1979):

1. Troy south to Saugerties, narrow and shallow with many islands and
wetlands, bordered by low bluffs of sand, clay and shale;

2. Saugerties to Beacon, deep, of medium width, with scattered
islands and wetlands, bordered by bluffs of clay or sedimentary rock
(sandstone, shale, some limestone);

3. Beacon to Peekskill, the Hudson Highlands, narrow, twisting
and deep, bordered by steep high hills of gneiss and granite;

41

4. Peekskill to New York City, at first broad and shallow, then
narrow and deep, bordered on the west by a diabase ridge (the Palisades
Ridge) and on the east by low hills and bluffs of various metamorphic
rocks.

The four proposed sanctuary sites, Stockport, Tivoli, lona and
Piermont, respectively, lie one in each of the geol ogic-ecol ogic
reaches listed above.

Generalized soil types along the Hudson River Estuary are: limy
soils on clay and silt deposits from postglacial lakes; usually acid
soils on sands from terraces and deltas; acid (occasionally limy) soils
on glacial tills (unsorted deposits containing clay, silt, sand, gravel
and larger stftnes); soils on alluvium (stream-deposited material); and
tidal wetland sediments.

Stockport Flats. The bluff north of the mouth of Stockport Creek
is Cambrian shale with thin layers of interbedded quartzite, and there
are clay deposits farther inland. The bluff south of the creek is clay.
Slate, conglomerate, and limestone are also present near the site. These
steep bluffs rise to an elevation of 100 feet above the river, and then
the land levels off. Small tidal coves are scalloped into the bluffs at
several locations along the shore. There is evidence of a clay slide
in at least one location on the south bank of Stockport Creek.

Tidal influence in Stockport Creek extends inland to the Route 9
highway bridge, almost one mile. The mouth of the creek is dotted with
islands of floodplain and tidal swamp at elevations of about 0-3 feet
above high tide level, and these islands are interspersed with areas of
tidal marsh, subsidiary stream channels, and the main channel of the
creek. The wetlands and islands both inside and outside of the creek
mouth comprise the tidal delta deposits of the creek.

The main marsh (East Flats) lies just south of the mouth of Stock-
port Creek in the river proper, between the unnamed island (north) and
the point of Priming Hook (south). A sandy bar extends southward along
much of the western margin of the main marsh, broken by one large and
one small passage between the marsh and the main river. A few tidal
creeks cut through the marsh. The marsh bottoms vary from fine sand to
shallow or deep soft muck.

A large island, Stockport Middle Ground, and a large peninsula,
Gay's Point - Fordham Point, lie northwest and north of the creek mouth.
Stockport Middle Ground, Gay's Point, Fordham Point, Priming Hook and the
Unnamed Island are sandy and composed partly of old dredged material, and
they have maximum elevations of about 5-20 feet above high tide level.
Extensive shallows lie between Gay's Point - Fordham Point and the mainland,
and there are small channels around Stockport Middle Ground. The dredged
shipping channel west of the Stockport Flats site is 32 feet deep. Terres-
trial soils of the site are derived from clay, sand and till.

42

Ti vol i Bays. Bedrock at this site is Ordovician gray sandstone and
shale. The more resistant sandstone outcrops are on the islands, the
points projecting into the bays, and in the waterfalls of the creeks.
Bluffs east of the bays are composed largely of clay with small areas of
sand; the bluffs rise steeply to an elevation of 100 feet above the river
and then level off inland. The clays were deposited as thin alternating
winter and summer layers of clay and silt in a postglacial lake. Gradual
slumping is common on the clay bluffs. "Clay dogs," small ring-shaped
concretions of limestone and clay that formed around the stems of marsh
plants, occur in the clays.

Cruger Island is one-half mile long, with a maximum elevation of
forty feet above high tide level. Magdalen Island is smaller and lower.
North Bay is predominantly intertidal marsh, with a wel 1 -developed network
of tidal creeks and pools. The deepest creeks and pools are about five
feet deep at low tide. A similar network of creeks and pools is beginning
to form in South Bay, which is predominantly shallows and mudflats near
low tide level. A few deep spots in South Bay are also about five feet
at low tide. The bottom in the bays is largely soft muck, as much as 25
feet deep. The tidal swamp between North Bay and South Bay has 8 feet
of peat overlying silt.

Extensive tidal shallows lie north and south of Cruger Island, and
much of this area is only 1-2 feet deep at low tide. Just west of Cruger
Island, the main river is 50 feet deep.

Terrestrial soils of the site are derived largely from clay, with
sandy soil in local areas, and till soils farther east.

Iona Island Marsh. Bedrock at this site is mostly Precambrian
gneiss. This rock is very resistant to erosion and forms the bold hills
that rise more than 1,000 feet within a half mile of the marshes (Dunder-
berg and Bear Mountains) and the rocky knobs of Iona Island that project
100 feet above the river. The same steep slopes dive down under the marsh
where the sediments are more than 100 feet deep. Iona Island is in the
Hudson Highlands, a part of the Old Appalachians, and this is the only
location where the Old Appalachians are breached by an estuary. Pegmatite
dikes occur locally in the Iona Island area, and there is a great variety of
minerals associated with these igneous intrusions.

The Iona Island Marsh formed, in the shelter of the island, in a side
channel of the Hudson River that was made larger by glacial erosion and
glacial meltwaters. The marsh began to form at least 6,000 years ago
according to radiocarbon dating of the peat, and some of the sediments
uderlying the marsh are 12,500 years old. The marsh surface is peaty, but
the sediments become increasingly silty beneath. Winding tidal creeks lace
the marsh, with greatest depths at low tide about three feet. In Doodletown
Bight, large areas of mud flats are exposed at low tide. The main river
close to Iona Island has a maximum depth of 143 feet, and this is one of
the narrowest reaches of the Hudson Estuary.

Soils on Iona Island and the mainland are derived from glacial till
and tend to be very shallow, acid, and nutrient-poor.

43

Piermont Marsh. The west shore of Piermont Marsh is formed by part
of the Palisades Ridge, where an abrupt flat-topped 150-foot high cliff-and-
sliderock formation close to the marsh. The cliff is Triassic diabase, a
hard igneous rock. The ridge is underlain by Triassic sandstone and shale
which outcrop in small areas close to the marsh. Sparkill Gap, the valley
of Sparkill Creek just west of the north end of Piermont Marsh, is the only
sea level break in the Palisades Ridge and was thought to be a former route
of the Hudson River. However, the gap was more likely created by torrential
glacial meltwaters. Sparkill Gap has been proposed as a geological National
Natural Landmark (Butler et al . , 1975).

The marsh sediments are peat and organic silt and are at least 40 feet
deep in the western part where the marsh has been developing for 4-5 thousand
years. A few well-defined tidal creeks cut the marsh, but their deepest
portions are only a few feet deep at low tide. Piermont Marsh is located
at the south end of the very broad and shallow segment of the Estuary
known as the Haverstraw Bay and Tappan Zee, and very extensive shallows
border the east side of the marsh. While these shallows are only 1-2 feet
deep at low tide, the river channel farther east has 50-foot depths.

Soils on shore near Piermont Marsh are derived from glacial till and
are shallow and acid, with deeper, richer pockets close to the marsh. The
Erie Pier borders the marsh on the north.

b. Hydrology

The Hudson River Estuary drains about 13,400 square miles of land,
mostly in New York State but includes small areas of New Jersey, Massachusetts,
Connecticut and Vermont. The tidal river is 152 miles long from Troy
south to the southern tip of Manhattan Island (Battery Park). Throughout
this distance, the river bed is below sea level, allowing tidal penetration
to Troy. Salt water, however, intrudes only half the length of the
tidal river due to the Hudson's substantial and relatively dependable
freshwater flow.

Average freshwater flow (net discharge) in the tidal Hudson is 13 billion
gallons per day, of which 60% enters from the mainstream of the Hudson-Mohawk
above Troy and 40% comes in from 25 major and numerous minor tributaries
below Troy. Peak freshwater flows occur in March or April with snow melt,
and secondary peak flows often occur in November. Minimum flow is in summer
and early fall. The reversing tidal flow moves about 30 times as much water
as the average freshwater discharge. The average flushing rate for the
tidal Hudson River (turnover time) is about 5 months.

Salt water from the Atlantic Ocean moves upriver, mixing with the
fresh water, and penetrating farther upriver at times of lower freshwater
flow. Depending on freshwater flow, the 0.1 parts-per-thousand (ppt)
salinity level ("salt front") may occur anywhere between about Yonkers
and Hyde Park, but usually is somewhere in the region between Nyack and
Beacon (Figure 5). Late summer and early fall are generally the periods
of farthest intrusion of saline water. In the mid-1960s drought, the

44

salt front was recorded at the farthest known inland location in this century,
definitely at Hyde Park and possibly at Kingston, but no farther. Freshwater
flow from the Hudson River slightly dilutes sea water well out into the New
York Bight.

The Hudson is a partially stratified estuary. More saline water tends
to move upriver under lighter outflowing fresh water in the New York City to
Peekskill region. However, vertical salinity gradients are small with bottom
waters only 0-20% more saline than surface waters.

Vertical tidal fluctuation (tide range) is least in the middle of the
estuary, about 3.1 feet at West Point, and greater at the two ends of the
estuary, reaching a maximum of about 5.1 feet at Troy (National Ocean Survey
1982 Tide Tables for East Coast of North and South America). Individual
tides can be considerably higher or lower than average levels, and maximum
tide ranges for any one month may exceed 9 feet. Although extremely high
tides flood the higher wetlands to greater depth and for longer times, these
tides do not cover large areas of land because the steep banks of the estuary
generally restrict the extent of the floodplain to small areas. There are
two high tides alternating with two low tides in an approximately 25-hour
period, but the time, duration, and height of both high and low tides are
affected by wind and runoff (freshwater flow as well as by gravitational
forces). Tides are less regular farther upriver.

The estuary has reversing tidal currents. Downriver ebb currents are
slightly faster than upriver flood currents. Peak current speeds during a
normal tidal cycle are about 2 miles-per-houre

All major estuaries in the Virginian biogeographic region have water
quality problems. Quality in the Hudson River Estuary is remarkably good
in view of the proximity of the Nation's largest metropolitan area. Dissolved
oxygen may be in short supply at New York City during hot dry weather, but
elsewhere in the estuary oxygen levels are almost always adequate for aquatic
animals. Water quality has improved considerably in the last 15 years. Many
health and esthetic problems associated with raw sewage discharges have been
solved by construction of secondary treatment facilities. The generalized
contamination of the Hudson by PCB discovered in the early 1970s has declined
during the last 5 years as evidenced by reduced PCB levels in large samples
of fish of several species monitored annually by the New York State Department
of Environmental Conservation. There are persistent reports by longtime
residents that the Hudson Estuary has become less turbid during the last few
decades.

Wetland hydrology in the Hudson is influenced most by the estuary's
vertical tidal fluctuation, but also by runoff from tributary streams, wind,
and the degree of shelter afforded by adjacent shallows, islands and bars.
Incoming tides churn up sediments in the confines of marsh creeks creating
high turbidity. Outgoing tides and dilution by clear water from tributaries,
reduce turbidity greatly in the landward portions of the marshes. The downriver
marshes are subject to higher salinity than the main river due to evaporation
of water from the marsh surface: at Piermont Marsh, river salinity reaches a
maximum around 12 ppt (Table 4) but on the intercreek marsh areas salinity
may reach 15 ppt (nearly half the strength of sea water).

45

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Ice forms first and remains longest on the wetlands, and the constant
grinding of ice lifted and lowered by the river's tides is highly erosive.
Ice covers the wetlands from one to four months per year, depending on the
severity of the winter. The downriver wetlands have less ice cover than
upriver areas. Ice a foot or more thick may form on tidal creeks and pools
in the wetlands. However, in dense upper intertidal zone vegetation (such
as cattail, purple loose-strife, or woody plants) thick dense ice does not
normally form, but rather many layers of thin ice are produced. The surface
of the main river in the vicinity of Tivoli Bays and Stockport Flats usually
freezes solid; but the Coast Guard keeps open the shipping channel.

c. Climate

Average annual precipitation along the Hudson River Estuary is about
37-46 inches, tending to be higher southward. Monthly averages for Poughkeepsie
(39 inches annually) range from 2.7 inches in February to 4.1 inches in
July. Average annual snowfall is about 39-50 inches mid-estuary.

January average air temperature is 23-29° F, and July average 71-73° F.
Average temperatures are slightly lower northward, higher southward. Growing
season is in the range of 150-200 days. The large water mass of the estuary
warms more slowly in spring and cools more slowly in the fall than the air.
This temperature lag moderates the climate in wetlands and shoreline areas
relative to sites off the river. The Hudson River Estuary is to some extent
a climatic arm of the coast where coastal weather mixes with inland weather.

Prevailing winds are north or northwest in winter, and south or southwest
in summer. Average wind speeds are highest in March and lowest in August.
Winds are highly variable, and sudden squalls, summer thunderstorms, and
occasional hurricanes affect the river. Day-to-day weather is variable and
shoreline areas and wetlands are exposed to extremes of sunshine, temperature,
freezing and thawing, wind, waves and spray, and other factors. Temperature
inversions with night and morning fogs are frequent in summer and fall.

d. Biology

Vegetation. Lists of plants found in the four proposed sanctuary sites
are in Appendix 6.

The tidal shallows, from low tide level down to about 6 feet below low
tide level (Figures 6-9), and the subtidal creeks and pools in the wetlands,
support communities of submerged plants. There are some patches of bare
mud.

Wetlands of the upper intertidal zone (between average tide level and
high tide level) are mostly covered by grass-like plants 1-10 feet tall,
often growing in extensive and dense patches of one or a few species. Locally,
a few kinds of broadleaved plants are also common, and there are many less
common or smaller secondary species of plants that occur scattered or in
small patches especially on creek and pool banks and near the high tide
shoreline.

47

Lower intertidal wetlands (average tide level to low tide level) are
mostly bare mud in downriver more saline marshes, but in fresher upriver
marshes are covered with broad-leaved plants with large heartshaped or
arrowhead-shaped leaves 2-3 feet tall and some grass-like plants.
Predominant species vary, but the communities in the proposed sites are
typical of the Hudson River Estuary in general in the four geologic-ecologic
reaches of the river.

Near the high tide level, flooded by the higher high tides, are localized
areas of tidal swamp, especially upriver in tidal freshwater. These areas
are covered by trees and/or shrubs.

Tidal freshwater and low-salinity marshes are similar in the Hudson
and other Virginian Region estuaries, with the most abundant species generally
including the following: narrowleaf cattail (Typha angustifolia), wild-rice
(Zizania aquatica), river bulrush (Scirpus fluviatilis) , spatterdock (Nuphar
advena), pickerel weed (Pontederia cordata), arrow arum (Peltandra virginica),
broadleaf arrowhead (Sagittaria latifolia), tall cordgrass (Spartina
cynosuroides), swamp rose mallow (Hibiscus palustris), tidewater-hemp
(Amaranthus cannabinus), bur-marigolds (BTdens spp.), water-millet
(Echinochloa walteri), jewelweed (Impatiens biflora), rice cutgrass (Leersia
oryzoides), purple loosestrife (Lythrum salicaria), smartweeds (Polygonum
spp.), and common reed (Phragmites communis). Aboveground standing crops
reported for Hudson River marshes are similar to those reported for Delaware
and Chesapeake Bay estuary marshes. Plant communities of fresh-tidal and
low-salinity shallows are also similar in the Hudson River Estuary and other
Virginian Region estuaries, with the most abundant species generally water-
celery (Vallisneria americana), pondweeds (Potamogeton spp.) and watermilfoil
(Myriophyllum spicatum). Freshwater tidal swamps also occur in other Virginian
Region estuaries but have been the subject of virtually no research.

Terrestrial vegetation along the Hudson River Estuary in undeveloped
areas is generally deciduous forest. On the dry rocky slopes of the
Palisades Ridge and Hudson Highlands the most abundant trees are red oak
(Quercus boreal is) , chestnut oak (Q. prinus), and a few other deciduous
species. Mid-Hudson and upper estuary deeper-soil areas, as well as moist
ravines down-river, support oaks, sugar maple (Acer saccharum) , tulip tree
(Liriodendron tulipifera), black birch (Betula lenta), beech (Fagus grandi folia),
white pine (Pinus strobus), hemlock (Tsuga canadensis) and flowen ng dogwood
(Cornus florida). All four proposed sanctuary sites have very well developed
forested buffer zones on most of the upland frontage and particularly on
steeper slopes. These buffer forests range in width (map distance) from 100
yards to well over one-half mile.

The railroad rights-of-way, away from the tracks, tend to be thickly
grown with herbs, shrubs and sometimes trees. Among the most common larger
species are false-indigo (Amorpha fruticosa), sumacs (Rhus glabra, R. typhina),
silky dogwood (Cornus amomum), honeysuckle (Lonicera spp.), and brambles
(Rubus spp.). Vegetation of the Erie Pier at Piermont is similar with the
addition of white mulberry (Morus alba).

48

Stockport Flats, Water-celery is very abundant in the shallows. The
intertidal marshes are dominated by narrowleaf cattail, wild-rice, spatter-
dock and pickerel weed. The wild-rice stands are very lush and appear to be
the most extensive stands of wild-rice anywhere on the Hudson; wild-rice
has increased greatly in the last 5 years both in Stockport and elsewhere
on the Hudson Estuary and now approximates former (1930s-40s) levels.

Tidal swamps and floodplain swamps are dominated by red ash (Fraxinus
pennsyl vanica) , silver maple (Acer saccharinum) , cottonwood (Popul us
deltoTdes), sycamore (Platanus occidental is), wi 1 1 ows (Sal i x isp.) and
silky dogwood. Some of the tidal swamps have many large trees (stems 1-3
feet or more in diameter-at-breast-height).

The bluffs along the south side of Stockport Creek and east of the
main marsh are covered by deciduous forest with oaks and other trees, and
localized areas of white pine. The sandy islands and points have abundant
cottonwood, black-locust (Robinia pseudoacacia), red cedar (Juniperus
virginiana) , oaks, staghorn sumac (Rhus typhi na) , etc.

Tivoli Bays. Water-celery, watermil foil , and waterchestnut (Trapna
natans) are the most abundant plants in the shallows. The intertidal
marshes are dominated by narrowleaf cattail, spatterdock, and purple
loosestrife. The tidal swamps are predominantly red maple (Acer rubrum) ,
red ash, black ash (Fraxinus nigra), silky dogwood, willows, buttonbush
(Cephalanthus occidental is) and smooth alder (Alnus serrulata). The Tivoli
tidal swamps cover 45 acres and are very rich in shrub and moss species.

The clay bluffs and rocky islands support wel 1-devel oped forest with
sugar maple, hemlock, red oak, white oak, chestnut oak, white ash (Fraxinus
americana), pignut hickory [Carya glabra), shagbark hickory (£. ovata) ,
white pine and flowering dogwood. A grove of particularly large oaks and
hemlocks borders the tidal mouth of Stony Creek.

lona Island Marsh. Water-celery is very abundant in the shallows.
The intertidal marshes are dominated by narrowleaf cattail, with small
amounts of swamp rose mallow and common reed. A small area of tidal swamp
is dominated by crack willow (Sal ix fragil is).

The island and mainland slopes are covered with deciduous forest with
abundant red oak, chestnut oak, and pignut hickory.

Piermont Marsh. Pondweeds are present in the shallows. The intertidal
marshes are dominated by narrowleaf cattail and common reed, with lesser
amounts of tall cordgrass, saltwater cordgrass (Spartina a! term' flora), salt-
meadow cordgrass (S. patens), saltgrass (Distich! is spicata), swamp rose
mallow, and purple loosestrife. There is no appreciable area of tidal swamp.

The mainland forest at the base of the Palisades Ridge has abundant
and large beech, tulip tree, red oak, black birch and flowering dogwood.
The cli ff-and-sl iderock has red oak, black birch and other trees.

49

Endangered, Threatened and Rare Plants. Several species listed in
the New York State Museum's Rare and Endangered Vascular Plant Species in
New York State (Mitchell et al . , 1980) have been found in the proposed
sanctuary sites and are listed in Table 5. Heartleaf plantain (Plantago
cordata), proposed in the Federal Register for Federal Endangered status,
is present at the Stockport and Ti vol i sites. Potential for continued
survival of the plantain, and for research on it, is excellent at these
locations.

Nuttall's micranthemum (Micranthemum micranthemoides) is known from
Ti vol i Bays. This is the only recorded station for this species in New York
and one of about 20 localities known in the world (all in East Coast tidal
freshwater habitats). Although the micranthemum was last seen in 1936,
some botanists think the species may still survive at Tivoli; it is a
small plant and difficult to identify. Nuttall's micranthemum was proposed
in the Federal Register for Federal Threatened status. It has not been
found recently at other East Coast locations.

Most of the other species listed in Table 5 are restricted to brackish-
tidal or fresh-tidal wetlands, and are the subject of concern by botanists
because of the general vulnerability of these types of ecosystems on the
East Coast.

Numerous other species of wetland and terrestrial plants that are not
considered threatened or endangered, but are rare in New York and have
special interest to scientists are (or may be) found at the proposed
sanctuary sites. One example is goldenclub (Orontium aquaticum), a
species common in the southeastern United States in inland wetlands, but
declining in northeastern estuaries. Goldenclub occurs at Stockport Flats
and Tivoli Bays, and is sought out as an esthetic attraction during its
May flowering period. A list of "Plants Concentrated in the Tidal Marshes
of the Hudson River" prepared by the late Stanley J. Smith in 1974 includes
21 species of mostly rare (and a few common) plants; many of these 21 have
been recorded from the proposed sanctuary sites.

Because of the large size and environmental complexity of the proposed
sites, thorough botanical studies in the future may discover many more
rare plants and unusual plant communities than are now known.

Fish and Wildlife. The deep waters, shallows, wetlands, and shores of
the Hudson River Estuary act as a migration and dispersal pathway for many
kinds of fish and wildlife. These environments provide suitable corridors
for movements of animals northward and southward, and suitable stopover
habitats with shelter and food. Many kinds of animals also find habitats
on the estuary where they reside seasonally or permanently (NYS DEC 1978).

Of Hudson River Estuary animals, many do not remain in a single type
of habitat, but more back and forth between two or more habitat types in
tidal, daily or seasonal cycles. These species require combinations of

50

Table 5. Plants of the Proposed Sanctuary Sites Listed in "Rare and Endangered
Vascular Plant Species in New York State" (Mitchell et al . , 1980).

Species Site Significance (NY)a

Spatulate arrowhead, Stockport HAB

Sag ittar ia spatul ata

Ovate spikerush Stockport R, SERL

El eochar is ovata Tivoli, Iona

Cylindrical bulrush, Iona, SPOR

Sc irpus cyl indricus Piermont

Parker's pipewort, Stockport, R, VULN

Eriocaulon parkeri Tivoli

Sea pink, Iona EXT?, NRL, SNYS?

Sabat ia dodecandra

Nuttall's micrantheinun Tivoli *EXT?, R, SNYS,

Micranthemum micranthemoides SPOR, VULN

Heartleaf plantain, Stockport, *R, DECL, SPOR

PI antago cordata Tivoli

Eaton's bur-marigold, Tivoli R, HAB, END

Bidens eatoni i

Estuary beggar-ticks, Tivoli SRL

Bidens hyperborea

aDECL = Observed to be declining in New York State; END = Highly
restricted range, endemic; EXT? = Possibly extirpated in New York State;
HAB = Restricted to habitats rare in the State; _R = Rare throughout its
range; SNYS = Single New York station; SPOR = Sporadic: scattered popu-
lation sT^HLN = Vulnerable to commercial or private exploitation or
imminent 1 and development; SRL, SERL, NRL = Southern, southeastern, or
northern range limits or nearing the periphery of their distributions.

* Listed in the Federal Register (proposed for Federal Endangered or
Threatened 1 ist ing) .

51

habitat types to fulfill their life requirements: for example, the wood
duck that nests in a hollow tree in the forest, but raises its brood in the
marsh, and the striped bass (Morone saxatilis) that moves from the river
channel into the marsh, pools, and creeks to feed. The most important
habitat combinations are the marsh-shallows combination, and the marsh-forest
combination. These patterns of animal use emphasize the special nature
of the shallows-wetlands-forest complexes at the four proposed sanctuary
sites.

Some Hudson Estuary habitats support unusual abundance or diversity of
animals. Some examples are: abundance and diversity of chironomid midge
larvae in submerged vegetation in the Haverstraw Bay - Tappan Zee; abundance
and diversity of burrowing animals in sandy soils; abundance of post
breeding humming birds in jewel weed in the marshes; abundance of certain
breeding birds (least bittern, long-billed marsh wren) in extensive
cattail stands (Kiviat, 1979).

Endangered, Threatened, and Special Concern Animals. Species currently
on Federal or New York State Endangered Species lists, or on the Tentative
New York State Species List (a proposed revision of the existing State list),
and which occur at the proposed sanctuary sites, are shown in Table 6. The
Fish and Wildlife Service of the U.S. Department of the Interior has affirmed,
by letter dated March 25, 1982 that no Federally listed Endangered or
Threatened Species, under their jurisdiction, apart from occassional transients,
are known to exist in the project area. The Tentative State List has three
categories (in decreasing order of endangerment) : Endangered, Threatened,
and Special Concern.

Endangered. The shortnose sturgeon (Acipenser brevi rostrum) is listed
on both Federal and New York State Endangered Lists, and has a sizeable
resident population in the Hudson River Estuary. Early in the spring, those
individuals that are ripe for spawning migrate north as far as Troy, New York.
Spawning occurs from April 15 to May 15 from Coxsackie to the dam above Troy.
After spawning (generally late in May), the spawning population disperses
and feeds throughout the summer. In early fall, those individuals that are
ripe enough to spawn the next spring migrate to an overwintering area in the
Esopus Meadow-Kingston Flats area, approximately 2-9 miles below Tivoli Bays.
Individuals that are not ripe for spawning migrate further south to the
Haverstraw Bay area between Piermont Marsh and Iona Island. The proposed
Hudson River Estuarine Sanctuary is consistent with the draft Shortnose
Sturgeon Recovery Plan dated May 1982, with respect to maintaining natural
populations; preventing further modifications or destruction of essential
habitat; developing a public information/education program; and determining
natural population dynamics.

The bog turtle (Clemmys muhlenbergi) has been reported from locations
within a few miles of two of the proposed sites (early-mid 1900s) and could
occur at the sites, but the nature of the available habitats makes this
unlikely. This species is listed as Endangered by New York State.

Golden eagle (Aquila chrysaetos) records are few, and it is not clear
if they occur regularly at any of the proposed sites.

The bald eagle (Haliaeetus leucocephalus) was common on the Hudson

52

Table 6. Animals Recorded at the Proposed Sanctuary Sites either Currently
Listed as Endangered by the State or Federal Government, or Included in the
December 1981 "Tentative New York State Species List" (Endangered, Threatened
Special Concern). Additional species have been recorded near the sites and
are discussed in the text.

Spec ies

Shortnose sturgeon,
Ac i penser brevirosturm

Spotted turtle, Clemmys guttata

Common loon, Gavia immer

Double-crested cormorant,
Phal acrocorax auritus

Least bittern,
Ixobrychus exil is

Cooper's hawk, Accipiter cooperii

Red-shouldered hawk,
Buteo 1 meatus

Golden eagle,
Aquil a chrysaetos

Bald Eagle,

Hal iaeetus 1 eucocephal us

Marsh hawk,
C i re u s cyaneus

Osprey, Pandion hal iaetus

Peregrine falcon,
Falco peregrinus

Common tern,
Sterna hi rundo

Black tern,

Chi idonias niger

Site
(see text)

Tivoli

all

all

all

all

all

all

lona,
Piermont

Tivoli, lona,
Piermont

Tivol i ,
Piermont

Status
Endangered (US, NY)

Special Concern
Special Concern
Special Concern

Special Concern

all

Special Concern

all

Threatened

Tivoli, lona,

Endangered (NY)

Piermont

Endangered (US, NY)

Threatened

Endangered3 (NY)
Endangered (US, NY)

Threatened
Special Concern

53

Table 6 (Continued)

Species Site Status

Common raven, Ti vol i Special Concern
Corvus corax

Grasshopper sparrow, Ti vol i Special Concern

Ammodramus savannarum Piermont

Henslow's sparrow, Ti vol i Special Concern
_A. henslowi i

Vesper sparrow, Ti vol i , Special Concern

Pooecetes gramineus lona

aThe osprey is currently on the New York Endangered List, but the

"Tentative List" proposes a change to Threatened status.

54

may see one or more bald eagles yearly, and there are slight indications
that numbers have increased in the last two years. There are regular
sightings at the proposed sanctuary sites mostly when the waters are partly
frozen. Some eagles have been seen during other seasons as well, but
there have been no nesting attempts. Bald eagles require open water and
dead fish or other carrion for food. Iona Island has the potential to
become a regular winter roosting area.

Ospreys (Pandion haliaetus) are commonly seen in small numbers (1-4
at once) along the Hudson in April and May, and occasionally in summer and
fall. There are isolated historical records of osprey breeding along the
Hudson River Estuary, but it is not clear to what extent ospreys nested
successfully here. Possibly the high natural turbidity of Hudson River
waters makes it difficult for nesting osprey to catch enough fish to feed
their young. The sizeable Long Island Sound osprey population declined
severly after World War II due to DDT contamination of their food, but in
the last few years Long Island Sound ospreys have begun a remarkable
comeback. Unverified reports of nesting attempts along the Hudson could
indicate a spillover from the sound. Osprey occur at all four proposed
sanctuary sites where they catch fish in the shallows and marsh pools and
and retire to eat in large (often dead) tree. A late -1950s nest was
reported at Tivoli Bays, and a possible 1970s nest near Iona Island, but
no details are available for verification.

Several pairs of peregrine falcons (Falco peregrinus) nested along
the Hudson River Estuary on the Palisades and Hudson Highlands cliffs for
many years until the nationwide population decline in the 1950s. None
of these nesting sites is active at present. Peregrine falcons are being
reintroduced experimentally to former nest sites at other northeastern
locations and there is potential for re-establishment at one or more of the
Hudson River eyries. The peregrine falcon occurs now as a rare transient
along the Hudson.

Threatened. The mud turtle (Kinosternon subrubrum) has been reported
from Bear Mountain State Park, but no verification is available. There is
a single specimen of this species from Ossining, but mud turtle distribution
in the lower Hudson region is a mystery (Craig et al . , 1980). Mud turtles
could occur at Iona or Piermont; they have been found in tidal marshes
outside of the Hudson Estuary.

Red-shouldered hawks (Buteo 1 ineatus) are seen along the Hudson during
migration, and nests have been found at a small number of off-river localities
in the 1970s. Nesting is possible at the proposed sanctuary sites.

The marsh hawk (Circus cyaneus) is seen regularly at Hudson River
marshes including the proposed sanctuary sites in late summer and fall,
rarely in winter, and occasionally in spring. There is no evidence of
nesting although the species formerly nested at inland localities in the
Hudson Val ley.

The common tern (Sterna hirundo) is seen occasionally as a windblown
wanderer at the proposed sanctuary sites, more often downriver. There does
not seem to be any breeding potential.

55

Special concern. The Jefferson salamander (Ambystoma jeffersonianum)
is found at a few locations inland and could occur near nontidal woodland
pools at the proposed sanctuary sites. Spotted turtles (Clemmys guttata)
are quite rare in tidal wetlands, but nesting has been veri fied at least
at Tivoli Bays; the species is more common at certain inland locations.
Hognose snakes (Heterodon platyrhinos) have not been reported from the sites
although found here and there offriver; the hognose could be found wherever
toads (their food) are abundant and especially in sandy soils.

Common loons (Gavia immer) are seen occasionally as migrants on the
estuary, including the proposed sites; there is no breeding potential.
Double crested cormorants (Phalacrocorax auritus) occur regularly downriver,
sporadically upriver; they are quite rare near the two upriver sites.
There does not appear to be any breeding potential. The least bittern
(Ixobrychus exilis) is known from the extensive cattail marshes of the
proposed sanctuary sites as a breeding species. It is a rare bird in the
Hudson Valley because of the scarcity of large cattail stands. Semiquantitative
data suggest a stable breeding population of perhaps a dozen pairs at
Tivoli Bays during the period 1973-81. The Cooper's hawk (Accipiter cooperii )
is seen occasionally at the proposed sites, and recent inland breeding
records suggest potential breeding in the forests of the proposed sanctuary.
The black tern (Chlidonias niger) is a rare spring migrant on the Hudson
River Estuary; there are no breeding records, although black terns breed
in large inland marshes in central New York. The barn owl (Tyto alba) is
rare along the Hudson where availability of nest sites may be a limiting
factor. Barn owls could occur, and there is some breeding potential at
the proposed sanctuary sites. Short-eared owls (Asio flammeus) could
occur in winter at the proposed sites as there are a few regular wintering
areas offriver in the Hudson Valley. The common raven (Corvus corax) seems
to be increasing in the northeast, but there is only one record from the
proposed sanctuary. Grasshopper sparrow (Ammodramus savannarum), Henslow's
sparrow (A. henslowii ) and vesper sparrow (Pooecetes" gramineus) formerly
bred in fields near Tivoli, and there may be breeding potential at Tivoli
and Iona.

Blue List Birds. Some other species that are not included in the
Tentative New York List, but were in the American Birds "Blue List for 1981"
(Tate, 1981) and occur at one or more of the proposed sanctuary sites are:
great blue heron (Ardea herodias) , black-crowned night heron (Nycticorax
nycti corax), American bittern (Botaurus lentiginosus), sharp-shinned hawk
(Accipiter striatus), king rail (Rail us elegans), screech owl (Otus asio),
ruby-throated hummingbird (Archil ochus colubris), cliff swallow (Petrochelidon
pyrrhonota), purple martin (Progne subis), shortbilled marsh wren (Ci stothorus"
platensiiT, golden-winged warbler (Vermivora chrysoptera), eastern meadowlark
(Sturnelfa magna) , black duck (Anas rubripses), and canvasback (Aythaya
valisineria). These are species that seem to be undergoing (or have recently
undergone) noncyclical decline in the Northeast.

Marine Mammals. Few species penetrate the Hudson River Estuary above the
New York Bay complex. Harbor seals (Phoca vitulina) occasionally appear almost
anywhere in the Hudson River Estuary, in recent years as in the 1800s. There
were reports of the harbor porpoise (Phocoena phocoena) in the lower estuary
in the 1800s. A single wel 1 -documented incursion of common dolphins

56

(Del phi nus del phis) up the Hudson Estuary nearly to Albany took place in
1936. There is no evidence that any specific locations or habitats in the
Hudson are significant to marine mammal populations.

Wetland and Terrestrial Mammals. At least 31 species of wild mammals
have been recorded on or close to the proposed sanctuary sites (other than
marine mammals). The muskrat (Ondatra zibethicus) is the most characteristic
mammal of the Hudson River Estuary marshes and is present at all the proposed
sanctuary sites in numbers that vary considerably from year to year. The
mink (Mustela vison) also occurs at the sites. The river otter (Lutra
canadensis) is rare in the Hudson, but transient individuals have been seen
at lona and Ti vol i in the marshes.

The whitetail deer (Odocoileus virginianus) is very common along the
Hudson including at the four proposed sites. Deer frequently enter lona
Island Marsh, probably to feed. Deer have been seen in Piermont Marsh in
winter, and occasionally in the marsh at Tivoli North Bay, but they are
common upland at these sites and at Stockport.

Some other mammals that enter the tidal wetlands are: white-footed
mouse (Peromyscus leucopus) mostly in winter; eastern cottontail (Sylvilagus
floridanus) , in Tidal swamps in winter; gray squirrel (Sciurus carol inensis)
and red squirrel (Tamiasciurus hudsonicus), tidal swamps and shoreline;
meadow vole (Microtus pennsyTvanicus) ; shorttail shrew (Blarina brevicauda);
raccoon (Procyon lotor); gray fox (Urocyon cinereoargenteus ); red fox (Vulpes
ful va) ; and opossum (Pi del phis vi rginiana).

Bi rds. Many species of land, wetland and water birds are found along
the Hudson River Estuary. Marine and coastal species penetrate upriver
varying distances, becoming less diverse and less abundant upriver. All
four proposed sanctuary sites attract rare birds wandering through or
settling in the Hudson Valley. Common species also tend to concentrate in
the proposed sites. The four sites are well known as excellent birding
areas--among the best in the Hudson Valley (Drennan, 1981.) A list of birds
recorded at the proposed sanctuary is in Appendix 4.

Herons. A dozen great blue herons is not an unusual sight at Tivoli
South Bay or Stockport Flats during late summer on a low tide. Great egrets
(Casmerodius alba) are also common in some years. Apart from the bitterns,
the only nesting heron at the proposed sanctuary sites is the green heron
(Butorides striatus).

Waterfowl. The proposed sanctuary sites are concentration areas for
waterfowl during migration. Wintering waterfowl occur wherever there is
open water, mostly downriver. Numbers of breeders are small, probably because
suitable nests sites are scarce on the intertidal marshes. At least 30
species of ducks, geese, and swans have been recorded at the proposed sites.
The most abundant migrants are Canada goose (Branta canadensis), mallard
(Anas platyrhynchos), black duck, green-winged teal (A. crecca), blue-winged
teal (A. discors77~wood duck (Aix sponsa) , and canvas"b"aclT RTJndreds of
canvasbacks feed in the lona Island shallows, and probably thousands winter
in some years in the Haverstraw Bay Tappan Zee. (See Appendix 5 for data
on wintering waterfowl.) The most abundant nesting species are black duck,
mallard, and wood duck; the Tivoli Bay site supports about a dozen pairs of
of each of three species each year.

57

Raptors, The shores of the Hudson River, including the proposed
sites, are moderately attractive to birds of prey. Migrating hawks cross
the Estuary at a number of locations, but there is an area of concentrated
crossing especially in fall at Anthony's Nose and Dunderberg Mountain by
Iona Island, and concentrated migration along Hook Mountain just north of
Piermont Marsh.

Regular residents at or near the proposed sanctuary sites include red-
tailed hawk (Buteo jamaicensis), American kestrel (Falco sparverius), great
horned owl (Bubo vi rginianusT~and screech owl (Otus asio). Rough-legged
hawks (Buteo lagopus) frequent the Iona Island fields in winter. (See
discussion of Endangered Animals, above.)

Marsh Birds. Several species of marsh-nesting birds use the extensive
cattail stands and associated vegetation at the proposed sites. Regular
breeders are the least bittern (discussed under Endangered Animals) and long
billed marsh wren (Cistothorus palustris). Irregular breeders are the American
bitterns (Botaurus lentiginosus) , clapper rail (Rallus longirostris), king rail
(R. elegans), Virginia rail (RT 1 imicola), sora (Porzana Carolina), and common
gallinule (Gallinula chloropus). In the Hudson Va! ley, the least bittern,
long-billed marsh wren, common gallinule and king rail are nearly restricted
to large (many acres) cattail marshes as breeding habitat, although a few
other wetland plant communities are used for nesting elsewhere in United
States.

The sharp-tailed sparrow (Ammospiza caudacuta) and seaside sparrow
(A. maritima) have nested at Piermont Marsh. These species are associated
wTth specific saline marsh plant communities and are quite rare away from
the immediate coast in New York.

In addition to the obligate marsh species, red-winged blackbirds
(Agelaius phoeniceus), American goldfinch (Carduelis tristis), swamp sparrow
(Melospiza georgiana), and song sparrow (M. melodia) also nest in the
tidal marshes.

Shorebirds. The Hudson River Estuary marshes and mudflats, including
the proposed sanctuary sites, are good habitat for migrating shorebirds. The
most commonly seen species are kill deer (Charadrius vociferus), common snipe
(Capella gallinago), spotted sandpiper (Actitis macularia), greater yell owl egs
(Tringa melanoleuca), lesser yell owl egs (T. flavipes), and least sandpiper
(Calidris minutilla). At least eleven otTTer species are seen at times.
The only breeding shorebirds at the proposed sites are American woodcock
(Philohela minor), kill deer, and spotted sandpiper.

Gulls and Terns. The Hudson River Estuary is good habitat for non-
breeding gulls, but attracts few terns due to the inland location. No
gulls or terns breed on the Hudson. The herring gull (barus argentatus)
is the most common gull and is a conspicuous feature of the proposed sanctuary
sites nearly all year round. Ring-billed gull (L. delawarensis) and great
black-backed gull (J_. marinus) are common. Laughing gull (L. atri cilia)
and Bonaparte's gull (L_. Philadelphia) are uncommon and usually seen only
downriver. A few other species ot gul Is and terns are seen occasionally,
mostly downriver.

58

Other Birds. Ruffed grouse (Bonasa umbellus) are resident in the
terrestiral forests, and feed in the tidal swamps in winter. Woodpeckers
are common in the tidal swamps and forest, including the pileated woodpecker
(Dryocopus pileatus). Winter birds of the marshes include downy woodpecker
(Picoides pubescens), black-capped chickadee (Parus atricapillus), winter
wren (Troglodytes troglodytes), tree sparrow (Spizella arboreaJT white-
throated sparrow (Zonotrichia albicollis) and song sparrow, ^ery large
flocks of tree swallows (Iridoprocne bicolor), bank swallows (Riparia
riparia), starlings (Sturnus vulgaris), red-winged blackbirds, and common
grackles (Quiscalus quiscula) roost in the marshes, especially in late
summer and early fall. Breeding birds of the tidal swamps are many, in-
cluding willow flycatcher (Empidonax traillii ) , great crested flycatcher
(Myiarchus crinitus), blue jay (Cyanocitta cristata), black-capped
chickadee, veery (Catharus fuscescens), yellow warbler (Dendroica petechia)
and common yellowthroat (Geothlypis trichas).

There are many species of small birds in the terrestrial forests.
Breeding bird communities are typical of northeastern forests, including
warblers, vireos, thrushes and others. The cerulean warbler (Dendroica
cerulea) nest here and there and is much sought-after by birdwatchers.
Spring and fall warbler migrations also attract birdwatchers to the proposed
sites.

The railroad right-of-way supports a very interesting breeding bird
community (Stapleton and Kiviat, 1979). The most abundant species are
gray catbird (Dumetella carol inensis), yellow warbler, and song sparrow.
Population density of all breeding species combined is among the highest
reported for any breeding bird communities of the United States.

Reptiles and Amphibians. About two dozen species of reptiles and
amphibians occur along the Hudson River Estuary and almost all are present
at one or more of the proposed sites. Tidal fluctuation and salinity prevent
some species from living in the estuary itself. The most important habitats
for reptiles and amphibians are the tidal marshes and shallows, woodland
pools and ponds, and the terrestrial forests.

The snapping turtle (Chelydra serpentina) is common in the wetlands
and shallows at all four sites. The map turtle (Graptemys geographica)
maintain small scattered populations in the estuary and has been found
at Stockport and Tivoli. The diamondback terrapin (Malaclemys terrapin),
the ecological equivalent of the map turtle in brackish areas, is rare
in the Hudson River Estuary and has been found at Iona and Piermont.

The five-lined skink (Eumeces fasciatus) occurs on land near the Iona
Island Marsh, and there are unverified reports of the fence lizard (Sceloporus
undulatus) which is better known from the east bank of the estuary in
the Hudson Highlands.

Several snakes occur at the sites. Those that most often enter the
tidal wetlands are water snake (Nerodia sipedon) and garter snake (Thamnophis
sirtalis).

59

Amphibians are not abundant in the tidal habitats probably because
tidal wetlands are not favorable for amphibian reproduction. The green
frog (Rana clamitans) is present at low densities at Ti vol i and Iona,
and probably Stockport. Bullfrogs (R. catesbeiana), pickerel frogs (R.
palustris), American toads (Bufo americanus), spring peepers (Hyla crucifer),
and gray treefrogs (H. versicolor) enter the wetlands to some extent,
but are more common in nearby nontidal wetlands where the woodfrog (Rana
sylvatica) also occurs. Few salamanders have been found in Hudson Estuary
tidal habitats, but several species occur in the terrestrial forests and
tributary streams at the proposed sites.

Fishes. About 150 species of fish have been found in the Hudson River
Estuary in the last 15 years, and the fish community of the Estuary is
probably one of the best-studied estuarine fish communities in the world.
Like coastal birds and marine mammals, marine and estuarine fishes penetrate
up the Hudson in relation to salinity intrusion and distance from its
mouth. Also, many freshwater fish species inhabit the upper estuary.
The Hudson is a very important nursery area for many fish species including
several very valuable food and game fishes: striped bass (Morone saxatilis),
white perch (M. americana), American shad (Alosa sapidissima), alewife
herring (A.pseudoharengus) , blueback herring (A. aestivalis), tomcod
(Mi crogadus tomcod), Atlantic sturgeon (Acipenser oxyrhynchus), American
eel (Anguilla rostrata), and rainbow smelt (Usmerus mordax).

Important nursery areas for some migratory fishes in the estuary are
in the Haverstraw Bay - Tappan Zee region within a few miles of Nyack
(Figure 5), where conditions of salinity, shelter and food availability
in the tidal shallows are very favorable for juvenile fish. Additionally,
shad, alewife, blueback herring, and other species use the upper estuary
for spawning and as a nursery.

Much remains to be learned about the role of the Hudson River wetlands
and tributary mouths in the support of the estuary's fishery resources. Many
fish species reside in or temporarily enter the wetlands and tidal stream
mouths. For example, of 59 species that have been found in the vicinity
of the Tivoli Bays complex, 34 have been found in the wetlands and stream
mouths. Banded killifish (Fundulus diaphanus) and mummichog (£. heteroclitus)
are very abundant in the marshes and apparently reside there. American
eels of all sizes live in the marshes. Alewife spawn in the upriver
shallows, and alewife, rainbow smelt and white sucker (Catostomus commersoni )
spawn in the tributary stream mouths. Striped bass and white perch enter
the marshes to feed, and are particularly common at locations around the
tidal inlets connecting the marshes and the main river. Juvenile striped
bass have been found in tidal creeks in Iona Island Marsh in early fall
and are reported to occur in other marshes as well.

Among the more unusual records of fishes from the proposed sanctuary
sites are blue-spotted sunfish (Enneacanthus gloriosus) reported from Iona;
American brook lamprey (Lampetra appendix) and northern hog sucker
(Hypentelium nigricans) from the mouth of the Saw Kill at Tivoli South Bay;
and a population of central mudminnow (Umbra limi ) in ponds on Cruger Island
(Tivoli). A list of fishes known from the proposed sanctuary sites is in
Appendix 3.

60

Invertebrates. Important groups of larger invertebrate animals in
benthic communities of the Hudson River Estuary include polychaete worms,
oligochaete worms, chironomid midge larvae, snails and clams, crabs and
crayfish, Gammarus and other amphipods, and isopods. Zooplankton communi-
ties include rotifers, crustaceans, and other groups. The most economically
important invertebrate, the blue crab (Callinectes sapidus), moves upriver
in summer and fall as salinity increases and may become common as far as the
Hudson Highlands (Peekskill to Beacon).

The red-jointed fiddler crab (Uca minax) is common in Piermont Marsh.
Several species of land and aquatic snails occur at the proposed sites,
but most have not been definitively identified. In fact, the invertebrates
of the marsh are very poorly known. Estuarine invertebrates are a very
important link in food chains between, on the one hand, algae and detritus,
and on the other hand, fish, reptiles, birds, and mammals. Invertebrates
are particularly important in the nutrition of young and adult fish,
including the endangered shortnosed sturgeon and the economically important
American shad, striped bass, and other species. Invertebrates occur on
and in the sediments, in the water, on plants, and in the air, as well
as on land. Invertebrate ecology of the proposed sanctuary is a very
important field for research.

The wetlands support many invertebrates on the aerial parts of plants.
Some of the most conspicuous or abundant species are a snail (Succinea ovalis);
the waterlily leaf beetle (Pyrrhalta nymphaeae) on spatterdock and other
plants; the cattail moth (Lymnaecia phragmitel la) on cattails; a caterpillar
of genus Mompha in purple loosestrife stalks; the weevil Smicronyx in dodder
(Cuscuta gronovii ); and scale insect (Chaetococcus phragmitis) on common reed.
Monarchs (Danaus~plexippus) and other butterflies, and various bees (including
honeybees (Apis mel 1 if era J* are attracted to blossoms of pickerel weed
and other plants.

A rare bug (Bellonochilus numenius) has been found on sycamore fruits
at Stockport. A newly-described crayfish (Orconectes kinderhookensis)
has so far been found only in Kinderhook Creek, a tributary of Stockport
Creek. It is not known if it occurs downstream as far as the proposed
sanctuary sites.

In late spring and early summer, mosquitos can be annoying on the marshes
on calm nights, and in moist woods and tidal swamps day or night, but mosquitos
do not bite in the marshes by day. Deer flies (Chrysops) may bite for a few
weeks in June and July during the day around the edges of the marshes, but
rarely fly far out onto the marshes. "Shad flies" (Simuliidae) and punkies
(Ceratopogonidae) bite on calm days in April and their numbers vary from
year to year; they also do not fly out on the marshes. Scheduling of
field activities or use of insect repellents mitigates biting fly nuisances
and no problems are anticipated for the proposed sanctuary research and
education programs.

61

e. Estuarine Ecosystem

Generalized patterns of energy flow (production and feeding) for
the proposed sanctuary sites are shown in Figure 10. These diagrams
represent many interwoven food chains (for example spatterdock to leaf
beetle to songbirds to birds of prey, or vascular plants to detritus to
crustaceans to small fish to striped bass), and there are many species
that feed on more than one type of food. In general, using energy from
the sun, green plants produce matter which is consumed while alive by
grazing animals or after death by detritus-feeding animals. These primary
consumers in turn are eaten by larger and larger animals, culminating in
the highest-level consumers such as striped bass, snapping turtle, herons,
hawks, mink and man. The great abundance of plants, small invertebrates
and small fish in the Hudson River Estuary provides a rich food base for
economically important larger animals such as sport and commercial fishes,
waterfowl, blue crab, etc.

The major producers in the Hudson are phytoplankton in the waters,
and vascular plants in the shallows and wetlands. Turbidity limits
phytoplankton populations but these producers are important in the
Haverstraw Bay - Tappan Zee region. Zooplankton and benthic invertebrates
feed on phytoplankton and on detritus (dead plant particles) from the
plants of the marshes and shallows as well as from terrestrial sources.
The zooplankton and benthic invertebrates are food for larger invertebrates
and small fish, which in turn are eaten by larger fish, birds, and other
animals. Estimates of the relative importance of terrestrial and estuarine
energy (food) sources vary.

Research done in other estuaries suggests that Hudson River wetlands
may absorb nutrients from the main river, but it is not clear to what
extent these nutrients may be returned to the river with the decomposition
of dead plants. The vegetation of the wetlands and shallows is a nutrient-
recycling system that channels nutrients into food chains that yield
resources for society in the form of fish, crabs, ducks, and furbearers.
At the same time this vegetation is improving water quality in the river.

2. Current Uses of the Sites

a. Commercial and Recreational Fishing

Fishing has been an important activity along the Hudson River
Estuary from Indian times to the present day. Catch records were first
kept in the late 1880s. From that time, the commercial fin-fishery grew
until the late 1930s-early 1940s, then declined. Average annual commercial
finfish catch from 1913-1964 was 847,000 lbs., with the largest catch 2.3
million lbs., reported in 1945. Average annual catch from 1965-74 was 170,000
lbs., including 275,000 lbs. in 1974. Shad represented 86% of these catches.
Reported catches are minimum and Sheppard (1976) estimated actual 1976 catch
at around 600,000 lbs. Sheppard felt that the commercial fisheries of the
Hudson River Estuary could be increased to perhaps 1-2 million lbs. per year.
In 1978, there were 47 licensed commercial fishermen on the Hudson.

62

irce) A. Generalized energy pathways

Fig. 10

Secondary
Consumers
(small
predators)

Consumers
(detritivores)

B. Terrestrial pathways

Plants

Deer,
Rodents,
Insects,
Birds

Spiders,
Insects,
Birds,
Amphibians

C. Estuarine pathways

Vascular Plants,
Algae, Mosses

Fish,
Zooplanton,
Muskrat,
*| Turtles,

Waterfowl,
Songbirds,
Insects

Tertiary
Consumers
(large pred-
ators)

Raptors,

Carnivores,

Man

Fish, Spiders,
Birds,
Mammals,
Insects

Fish,
Raptors,
Turtles,
Carnivores,

Man

Worms,
Insects,
Mol lusks,
Zooplankton
etc

63

The Hudson River Estuary contributes to marine fisheries of striped
bass, shad, bluefish, butterfish, winter flounder, summer flounder, menhaden,
weakfish, tidewater silversides and sea robin (Sheppard, 1976). In 1974, New
York marine landings were about 7 million lbs. The average Hudson River
contribution to the marine striped bass fishery alone has been estimated
at about 700,000 lbs. in the period 1965-74.

During the period 1970-74 between Troy and the Tappan Zee Bridge
(Nyack), there were an estimated 165,000 person-days spent in recreational
fishing on the Hudson (Sheppard 1976). Sheppard felt that the estuary was
capable of supporting perhaps 2 million angler-days of recreational fishing
per year. The major recreational species include striped bass, white perch,
alewife and blueback herring, brown bullhead, largemouth and smallmouth bass,
yellow perch, smelt, bluegill, and pumpkinseed sunfish.

In 1978, the Hudson River Estuary generated an estimated $150-200,000
from the commercial sector and $1.65 million from the recreational sector,
as well as a contribution to the marine fin fishery worth $20 million (com-
mercial plus recreational). These figures do not include blue crab
fisheries, nor the recreational fin fishery in the Hudson south of the
Tappan Zee Bridge. A summer 1980 survey of anglers between Troy and the
George Washington Bridge (just north of Manhattan) estimated over 16,000
individual recreational fishermen using the estuary. The creel
survey showed that in August 33% of anglers had caught white perch,
23% had caught blue crab, and 9% had caught catfish (New York" State
Department of Environmental Conservation Hudson River Unit, 1980).

In 1976, the Hudson River Estuary was closed to commercial fish-
ing of all species except American shad, Atlantic sturgeon, and blue
crab, due to PCB residues in some species exceeding the Federal
allowable limit for interstate commerce of 5 parts-per-million. In-
tensive monitoring of Hudson River fish since then has shown significant
declines of PCB levels. The Department of Environmental Conservation
(DEC) is lifting the bans on commercial fishing for alewife, blueback
herring, smelt and tomcod in 1982. It is hoped that the ban on striped
bass can be lifted during the next few years.

Shad enter the Hudson River in early spring and migrate up-river
to spawn in tidal shallows from the Kingston area northward. Commercial
(staked and drift gillnets) and recreational fishing for shad takes place
almost throughout the estuary. In 1981, the DEC published a leaflet "A
Guide to Angling for Hudson River Shad" which has been successful in pro-
moting hook-and-line fishing for shad and a concomitant increase in
interest in the Hudson River and its management among recreational
fishermen.

Fishing for blue crab (blue-claw crab) with pots and lines is
popular as far up the Hudson River Estuary as Beacon. There is also a
small commercial crab fishery. Both blue crab and shad appear to have
increased in numbers in the Hudson in the last 15 years, probably due
partly to improved water quality.

64

The commercial fishery for Atlantic sturgeon is very small. There
is a small commercial seine fishery for baitfish, primarily kill i fish
and shiners, in the shallows and marshes.

A few commercial shad fishermen operate in the shallows near Pier-
mont Marsh. There is a recreational fishery for blue crab and fin fish
(including tomcod in winter) off the tip of the Erie Pier, and some
recreational fishing by boat near the marsh and in the mouth of Sparkill
Creek.

There is virtually no commercial fishing near lona Island. The marsh
itself is closed to all fishing. Limited crabbing and recreational fin
fishing take place along the railroad.

Considerable commercial shad fishing takes place in the Kingston Flats
area a few miles south of Tivoli Bays, but little shad fishing is done close
to the bays. One commercial fisherman seines baitfish in the Tivoli Bays.
Recreational fishing is concentrated at the stream mouths (Saw Kill and Stony
Creek) and the railroad bridges, with some boat fishing. Species fished at
Tivoli are primarily alewife (scap-netted) , striped bass, white perch,
yellow perch, largemouth bass, white sucker, catfish and eel. There are
approximately 500 person-days per year of recreational fishing in the
Tivoli Bays area.

Some commercial shad fishing occurs in the areas near Stockport Flats.
One commercial fisherman seines bait fish in the wetlands and shallows. The
tidal mouth of Stockport Creek is an excellent recreational fishing area best
known for striped bass. Most of the recreational fishing is concentrated at
the railroad bridge area and the Route 9 highway bridge, with some fishing
by boat. Fishing from small craft also takes place on the river side of
Stockport Middle Ground and Gay's Point.

The carrying capacity of the Hudson River Estuary for fisheries is far
greater than the present harvest. The DEC is prepared to carefully regulate
fishing for striped bass when commercial fishing for this species is once
again permitted. Hudson River commercial fishing operations are currently
licensed and monitored, but there is no license required for recreational
fishermen on the estuary. Such a license is under consideration by the DEC.
There is no foreseeable conflict between fishing and scientific or educational
use of the proposed estuarine sanctuary. Hudson River fish stocks and
fisheries are under continued study.

b. Fur Trapping

Historically, fur trapping was a mainstay of the Hudson Valley's economy.
Today trapping is a source of supplementary income for a number of Valley
residents.

The primary furbearer along the Hudson River Estuary is the muskrat,
although raccoon, mink, red fox, and gray fox are also trapped in very
small numbers.

65

Muskrat population fluctuate considerably over several -year periods
and trapping effort and harvest also vary. In tidal marshes, muskrats
make tunnels connecting the tidal creeks and pools to the intercreek
areas, and also construct winter lodges (houses) in the intercreek
areas. Much trapping is done in the tunnel entrances; a few trappers
also use floating trap platforms. Leghold traps and conibear traps are
used on the Hudson.

The 1980-81 and 1981-82 muskrat trapping season ran November 15 to
March 15. As of February 1982, good muskrat pelts were selling for $4-5
each, down markedly from a year before. During the late 1960s - early
1970s, muskrat populations were high in Hudson River marshes, and estimated
annual catch at that time was 500-800 muskrats at Tivoli Bays and perhaps
a similar number at Stockport Flats. Several trappers are active in
each area, but catch has been lower in the last few years. The Palisades
Interstate Park areas at Iona and Piermont are closed to trapping.

Sharp fluctuations in muskrat numbers are normal in most muskrat habitats
in North America, with or without trapping. Muskrats are important in
the marsh ecosystem as diggers of tunnels that aerate the sediments, and
creators of clearings around their winter lodges that increase variety in
the vegetation. In general, fur trapping is not in conflict with existing
or potential scientific and educational uses of the proposed sanctuary
sites.

c. Hunting

Hunting along the Hudson River Estuary is primarily waterfowl hunting
and deer hunting. Hunting is not permitted in the Palisades Interstate
Park areas at Iona and Piermont, but hunting is permitted on State-owned
lands at Tivoli Bays and Stockport Flats.

There is limited hunting for Canada geese on the Hudson but most
waterfowl hunting is duck hunting. The primary game species are mallard,
black duck, green-winged teal, blue-winged teal, wood duck and canvasback.
Canvasbacks are shot on open waters as this species rarely enters the
wetlands; there is little hunting of canvasbacks or other diving ducks at
Tivoli and Stockport.

Duck hunting season on the Hudson Estuary usually opens in the first
half of October and runs (with or without a closed period) until sometime
in December or January. Lack of open water and ducks upriver in December
and January effectively limits the season to October-November. Duck season
usually opens on a Wednesday. The heaviest hunting is on opening day, and
hunting may be fairly heavy the Thursday and Friday after opening day and
the first 2-3 weekends. Hunting is thus concentrated into the equivalent
of about a week's time. Furthermore, there is little shooting between about
10 a.m. and 5 p.m.

There are four types of shooting on the wetlands and shallows at
Stockport and Tivoli: shooting from blinds, pass shooting on foot on
land, shooting on foot in the wetlands, and shooting from boats in the

66

wetland creeks and pools and along the shorelines of the shallows. At
Tivoli Bays, almost all shooting is from blinds or boats; at Stockport
Flats, most shooting is done on foot.

At Tivoli Bays, at opening day dawn of the duck season, Wednesday,
15 October 1981, there were 45 hunters' vehicles parked around the area,
indicating a total of about 90 hunters that morning. There were about
40-45 active duck blinds in Tivoli Bays in fall 1981, almost all of them
in North Bay where most of the hunting occurs. On opening day, 25 parties
of hunters interviewed by DEC bagged 140 ducks, of which 19 were black
ducks or mallards and the rest mostly teal.

It is estimated that the number of hunters in the Stockport Flats
area on opening day 1981 was approximately the same as at Tivoli. There
were only 7 blinds in the main marsh at Stockport in fall 1981. Reports
of hunters indicate a considerable decline in hunter numbers at Stockport
since the 1940s or 1950s, and a continued decline during the last 10
years. Car counts at Tivoli indicate a reduction in the hunter numbers
on opening day since the early 1970s when the season opened on weekends
instead of Wednesdays.

The upper Hudson River Estuary, including Tivoli and Stockport, was
restricted to the use of steel shot for waterfowl hunting for the first time
in the 1981 season. This rule was based on a finding of ingested lead
shot in approximately 10% of ducks bagged on the upper estuary. Steel
shot use should reduce the incidence of lead poisoning in ducks from
ingesting lead shot pellets while feeding on organisms in the mud.

Concentration of duck hunting in early morning and late afternoon
during October reduces potential conflicts between hunting and other uses
of the marshes. Research field work has been conducted for 11 years at
Tivoli North Bay during duck season with relatively few problems. The
management plan for Tivoli Bays will include measures to further reduce
conflicts or potential conflicts between hunting and other uses of the
area. This is important because of the mix of different uses existing and
anticipated at Tivoli, and would occur regardless of the sanctuary designation
At Stockport Flats, differences in use patterns and the proposed emphasis
in the sanctuary program on spring and summer research (as opposed to
year-round research and educational activities) insures that major problems
with use conflicts will not arise.

There is a moderate amount of deer hunting at Stockport and Tivoli
on terrestrial areas. Deer populations have been high throughout the
1970s-80s and are very high now (1982). Deer hunting season usually opens
in mid-November and runs for 3 weeks.

There is a moderate amount of hunting for upland small game (ruffed
grouse, pheasant, gray squirrel, eastern cottontail, raccoon, red and
gray foxes). The various small game seasons run through much of the fall
and winter. There is virtually no hunting of rails, gallinule, snipe or
woodcock at Stockport or Tivoli.

67

d. Forestry

The Hudson River Valley has had an increasing amount of forest
cover over the last century, and now is about half covered by forest.
Forest cover is much more than 50% on most slopes immediately adjacent to
to the estuary. Shore forests at some locations are selectively harvested
for timber and fuel. There is no harvest in the Palisades Interstate Park
system, including the Iona Island and Piermont areas.

Portions of the State lands at Ti vol i Bays were selectively logged
in 1980 before State acquisition. Very little was cut within 100 yards
of the estuarine habitats and most cutting was well over 200 yards east
.of the North Bay; there was no cutting on Cruger Island or along the tidal
mouth of Stony Creek. The last time the forests close to North Bay had
been extensively cut was around 1906. There has been virtually no recent
cutting on private forests adjoining the Tivoli Bays.

There has been no recent logging at the Stockport Flats area. Some
fuelwood has been cut on a few small private areas near the wetlands.

e. Agriculture

Field corn, grain, hay, apples, peaches, grapes and a few other crops
are cultivated atop the bluffs along the Hudson River Estuary, in the
middle and upper regions from about Beacon to Albany. Recent years have
seen a resurgence of grape culture in the Mid-Hudson region, and continued
strength in the apple industry. Stock are grazed on the bluff tops in some
areas. Non-agricultural (usually wooded) zones generally exist between
agriculture and the shoreline, especially where shore slopes are steep
(over 10% slope); rarely is agriculture less than 100 yards from the shore-
line and usually the distance is much greater.

Crops and stock are raised on farms east of Stockport Flats. Hay,
field corn and oats were grown on the fields east of Tivoli North Bay until
1979, and the DEC expects to permit hay cutting again on some of these fields.
Thoroughbred horses are raised on the private property north of North Bay, and
apples and peaches are grown commercially east of South Bay. In all cases at
Stockport and Tivoli, substantial areas of forested slopes (map distance of
100 yards to one-half mile wide) separate agriculture from the tidal shoreline.
There is no agriculture near the Piermont and Iona Island marshes.

f . Industry

In the 1800s, many industries stood right on the Hudson River Estuary
shoreline, among them brickworks, ice houses, and grist, saw, and textile
mills. Most of these structures are gone with little trace. Contemporary
industry along the Hudson includes cement and aggregate plants, petroleum
terminals, manufacturing plants, and electric power stations. However,
virtually no heavy industry is visible from the proposed sanctuary sites,
with the exception of Piermont.

68

Stockport. The nearest heavy industry to the main marsh is one and
one-half miles to the southwest across the river, not visible from the marsh.
A locality near the proposed sanctuary site was included on a DEC list of
possible sites for a toxic waste treatment facility.

It is anticipated that once the estuarine sanctuary is designated and
a management plan has been adopted, that use of areas near the sanctuary
and within the State Coastal Area Boundary as a hazardous waste treatment
facility would be a noncompatible use. The treatment facility proposal
is inactive now.

Tivoli . The nearest heavy industry is more than two miles to the
northwest, at Saugerties, and not visible from the proposed sanctuary site.

lona Island. The portion of the island east of the railroad was a Navy
supply depot from about 1900 to 1965, when it was acquired by the Palisades
Interstate Park Commission (PIPC). All, but five of the buildings were removed
along with railroad sidings, docks, and roads, and the occupied areas were
restored to field. The remaining buildings are used by PIPC for part
of its maintenance and storage operations, the rest of which is located
on the mainland near Doodletown Bight. This is the only existing industry
near the site. The nearest heavy industry is across the river in Peekskill
one and one-half miles to the east. The Indian Point nuclear power station
is across the river and over two miles southeast (downriver) of lona Island;
the power station is hidden from the proposed sanctuary site by Dunderberg
Mountain.

Piermont. A paper recycling plant and a carton factory are located
at the base of the Erie Pier just north of the proposed sanctuary site and
visible from the marsh. Other industry and a railroad siding formerly
occupied the rest of the pier, but have been removed. There is no other
industry adjacent to Piermont Marsh; the next nearest industry is over
one mile east of the marsh across the river. The factories on the Erie
Pier are monitored by the State DEC and Department of Health for potential
pollution. A former municipal landfill adjacent to the pier has recently
been bored and the levels of metals and pesticides found in the pore water
were very low.

g. Transportation

The Hudson River Estuary has been a primary transportation route
throughout historic and prehistoric human occupancy of the northeast. In
the 1900s, much transportation shifted to highway routes off the river,
but the Hudson is still an important transportation corridor.

Shipping. A Federally marked and maintained shipping route extends
the length of the Hudson River Estuary. Most of this route has naturally
sufficient depths, but the portions of the route between Nyack and Peekskill
in Haverstraw Bay, and between Saugerties and Troy, have been deepened and
are periodically maintained by dredging. The dredged channel passes close
to the Stockport Flats proposed site. None of the proposed sites, however,
includes any part of the shipping routes; the proposed site boundaries in
all four cases extend downward only to the six foot depth contour below low
tide level .

69

Formerly, some wetlands, islands, and shoreline areas on the upper
Hudson Estuary were used for dredged material disposal. The United States
Army Corps of Engineers (1981) has published a Draft Environmental Impact
Statement for the next decade of channel maintenance and spoil disposal
along the Hudson, in which a commitment is made to upland disposal and to
avoidance of sensitive natural areas. Dredged material from the shipping
channel is expected to be sandy and low in PCB content (less than one part-
per-million) so that toxic substance problems are not anticipated. Analyses
will be performed just before dredging any reach, and contingency plans
will be available for safe landfilling if high-contaminant material is found.

Ship traffic in the narrow and relatively shallow upper estuary produces
wakes and swash that have been blamed for shoreline erosion and other problems
The matter is currently under study by the Hudson River Fisheries Advisory
Committee to DEC. Most estuaries in the United States that are used for
shipping have speed limits; the Hudson is an exception. Commercial ships on
the Hudson carry fruit, cement, petroleum, and other products. Small craft
are discussed under Recreation, below. The Erie Pier at Piermont is used
for infrequent docking of the Lamont Doherty Geological Observatory ocean-
going research vessel, but not for other large craft.

Railways. Two ConRail railroads parallel the Hudson River Estuary
and border the shoreline in places, the Hudson Division line on the east
shore and the West Shore line across the river. These railroads were
built circa 1850 and 1880, respectively. The east shore railroad carries
both freight and passenger service; along the upper estuary about 8 passenger
trains and a similar number of freight trains pass daily each way. The west
shore railroad carries only freight.

The railroads pass through the proposed sanctuary sites at Stockport,
Tivoli and Iona, but not at Piermont. The railroad at Stockport is between
the major wetlands and the uplands; at Tivoli and Iona, the railroads pass
mostly between the wetlands and the main river. The railroad at Tivoli was
built on a fill causeway with several small openings for tidal flow; at Iona,
the railroad was built partly on pilings and has much larger openings. The
railroad at Stockport has a single large opening where it crosses the mouth
of Stockport Creek. The openings in the railroads are sufficient to allow
complete flooding and draining of water onto and off the wetlands with
each tidal cycle, much as occurs in wetlands which are not bordered by the
rail roads.

Ecologically, the railroad causeways, where they lie between the
wetlands and the main river, resemble baymouth bars. The tidal openings
(bridges) are much used for feeding by predatory fish, especially striped
bass, and are well known recreational fishing spots. Large portions of the
causeways (rights-of-way) have dense belts of herbaceous or woody vegetation
25 or more feet wide on both sides of the tracks, and these belts support a
diversity of plant species, breeding birds, and small mammals. The vegetation
also screens the wetlands from the train disturbance. Even where there is no
vegetation, migrating ducks on the shallows do not flush when a train passes
unless they are within about 50 yards of the tracks.

70

h. Recreation

Hiking, ski-touring, bi rdwatching , and related activities are discussed
here; hunting, trapping and fishing were discussed in section 3a-c.

Bi rdwatching. The four proposed sanctuary sites are very well known
birding areas and received high ratings in Where to Find Birds in New York
State; The Top 500 Sites (Drennan, 1981) and other guides. Many birdwatchers
regard the proposed sites among the five most productive sites along the
Hudson River Estuary for water and wetland birds as well as land birds (the
5th area is Crofton Point).

Most bi rdwatching takes place in spring and fall, with less in
summer and little in winter. Almost all birding is done by foot from
the shoreline and the railroads (and Erie Pier); a few birders use
canoes. Birders generally come from the counties containing the proposed
sites, either in organized field trips or individually, but birders also
come from other Hudson River counties, as far away as New York City and
Albany, and farther. A minimal estimate of the number of person-days spent
annually bi rdwatching at the proposed sites is 200 person-days per year per
site on the average (10 organized field trips of 10 people each plus an
equal amount of individual or small party use). Thus the amount of bird-
watching use at Tivoli and Stockport is approximately equal to the amount
of hunting use.

Bi rdwatching has little impact on the sites. There is occasional
disturbance of nesting birds through close observation or the playback
of recorded bird calls to locate birds.

Other nature recreation occurs at the sites, but is difficult to
separate quantitatively from bi rdwatching , hiking, etc. Some individuals
and occasional organized groups come specifically to botanize, and a
number of persons visit the areas soley to photograph nature.

Hiking. There are existing foot trails at or near the sites at Piermont,
Iona, and Tivoli, and trails are planned for the Gay's Point portion of Hudson
River Islands State Park at the Stockport site. A network of hiking trails
connects Tallman Mountain State Park and Bear Mountain State Park (Webster,
1971), effectively lining the Piermont and Iona Marshes. The hub of this
trail system is the Long Path which begins at the George Washington Bridge
in New Jersey, passes near Piermont Marsh and west of Bear Mountain, and
will eventually extend to the Adirondacks - nearly the course of the Hudson
River itself.

The Appalachian Trail, from Georgia to Maine, passes through the Bear
Mountain State Park Trailside Museums complex, and crosses the Hudson River
on the Bear Mountain Bridge about two miles north of Iona Island. This is
the only place where the Appalachian Trail crosses an estuary in its 2,000
mile length.

Old trails on the State and Bard College lands at the Tivoli Bays
are well -used for walking, cross-country skiing, and some snowshoeing
and running. Skiing is also popular on the trails near the Piermont and

71

Iona sites. These activities offer rewarding access to views of the
marshes, with little impact. Public transportation allows access to the
sites for non-car owners. Buses from New York City stop at Piermont and
Bear Mountain; Amtrak trains from New York City and Albany run to Hudson
and Rhinecliff, about 8 road-miles from the Stockport and Tivoli sites,
respectively.

Miscellaneous Recreation. Occasional groups (e.g., scout encampments)
use the Iona Island fields during the warm season, under special permits
from PIPC. Otherwise the Island is closed to the public.

A bicycle trail paralleling the west shore of the estuary passes by
the Piermont and Iona Island Marshes, partly on highways and partly on
old roads reserved for bicycle and pedestrian use and affording good
views of the marshes. The Dunderberg section of the bicycle trail is
currently (1982) closed for repairs.

Ice boating originated on the Hudson River in the 1860. Ice boats
resemble elongated sailboats on sled runners, and are still built and sailed
by a few residents in the Mid-Hudson area, particularly near Barrytown and
Rhinecliff. Ice boating occurs on the main river during periods of smooth
solid ice, often near Tivoli Bays and sometimes on South Bay. Skaters also
occasionally use South Bay. Tidal ice can be dangerous, but these activi-
ties have no ecological impact.

There are no safe swimming beaches, and swimming in the Estuary is not
permitted on public lands at the proposed sites.

Small Craft. Recreational boating by canoe, kayak, sailboat, and
powerboat is popular on the Hudson River Estuary. Improved and unimproved
boat landings are available to the public at locations near the proposed
sanctuary sites. Primitive landings and a semi-improved landing are
adjacent to Piermont Marsh (the Erie Pier). There are no improved landings
within the proposed sanctuary boundaries. All boating is prohibited in the
Iona Island Marsh, except for research purposes.

The ideal way to see the wetlands and shallows is by canoe. Different
habitats of the wetlands are accessible, depending on the tide and the season
Canoeists can view wildlife and vegetation with minimal disturbance. The
Sparkill Creek, the main river near Iona Island, the Tivoli Bays and the Saw
Kill, and Stockport Creek and its tributaries are described in Appalachian
Water 2: The Hudson River and its Tributaries (Burmeister, 1974), a canoeing
guide. The main river is described in The Illustrated Hudson River Pilot
(Wilkie, nd).

i . Archaeological Resources

The Hudson River Estuary corridor, especially stream mouths, points,
and islands, is rich in archaeological sites. Several Native American
cultures inhabited the region, and some sites were in use as far back as
10,000 years ago. Food remains from estuary sites show a considerable

72

use of estuarine productivity, particularly sturgeon, mollusks, and turtles
as well as deer and other terrestrial species. The Indians were attracted to
the same sites as modern hunters, fishermen, and bi rdwatchers--for the
same reasons.

Archaeological sites at Iona Island and Tivoli Bays have been scienti-
fically excavated and documented, as have several sites across the river
from Stockport. Much remains to be learned about these sites, and the
archaeological resources need protection from illegal "scavenging" of
artifacts. A substantial amount of "pot hunting" (non-scientific destruction
of archeological information) has taken place and continues today throughout
the Tivoli Bay properties, specifically Cruger and Magdalen Islands.

The New York State Education Law, Section 233, Parts 4 and 5 provide
protection of these sites. Parts 4 and 5 are reproduced below to further
inform the public regarding prohibited and permitted activities:

"4. Except as otherwise provided in subdivision three of this section
no person shall appropriate, excavate, injure or destroy any object of
archaeological and paleontological interest, situated on or under lands
owned by the state of New York, without the written permission of the
commissioner of education. A violation of this provision shall constitute
a misdemeanor. The discovery of such objects shall be forthwith reported
to the commissioner by the state department or agency having jurisdiction
over such lands.

5. Permits for the excavation or gathering of archaeological and
paleontological objects upon the lands under their respective jurisdictions
may be granted by the heads of state departments or other state agencies to
persons authorized by the commissioner of education for the purposes of the
state museum and state science service, with a view to the preservation of
any such objects worthy of permanent preservation and, in all cases, to the
acquisition and dissemination of knowledge relating thereto."
L.1947, c.820; amended L.1958, c.121, eff. March 6, 1958.

It should be noted that future expenditures of State and Federal funds
will not adversely impact these National Register Archaeological Sites.

j . Plant Resources

There has been no commercial harvest of plant material from the Hudson
Estuary. Although wild-rice is abundant at Stockport Flats and a few other
upriver marshes, the amount potentially available for harvest is tiny
compared to the wild-rice marshes of Great Lakes that sustain commercial
harvest. Hudson Estuary wild-rice ripens over several weeks and only a
portion of the crop is harvestable at any one time; furthermore, tidal
fluctuations means that access to these middle-intertidal zone plants is
difficult.

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k. Esthetic Use

The Hudson River has a three-century tradition of esthetic apprecia-
tion of the natural landscape, and the wetlands and shores are an intimate
part of this scenic resource. Artistic interest in the estuary reached
a high level in the 1800s with the Hudson River School of landscape
painting. Many contemporary artists, including painters, photographers
and filmmakers, use the estuary as a source of inspiration and a subject
for their works.

In an article titled "Some International Values of Wetlands" Jorgensen
(1980) said, "Wetlands are important in bringing visitors from many lands
together to enjoy a common interest while promoting a better understanding
among people." International visitors have shown interest in the Hudson's
wetlands and shores throughout the river's history, and there is great
potential for increased tourist appreciation of the estuary in keeping
with the interest of Hudson Valley communities in tourism as an industry
with relatively little environmental impact. Related to this are the
burgeoning activities in regional historic preservation and excursion
boat operation.

1 . Research and Education

Research. Past research on the Hudson River has emphasized sport and
commercial fish species; roughly $50-100 million has been spent by the public
utilities alone in work on fisheries and related aspects of Hudson River
ecology. Other research subjects have been wetlands plants, bottom inverte-
brates, plankton, marsh and land birds, reptiles, mammals, sediments, economic
geology, hydrology, water quality, and endangered species. A program tilted
"The Hudson River Field Weeks" was organized by the Hudson River Research
Council in 1977 and 1978, and involved coordination of efforts among a
dozen different research institutions in a study of water quality under
high-flow and low-flow conditions in the entire estuary. Most of the
intensive research to date has focused on the main river and relatively
little work has been done in the wetlands. Although there is a hydraulic
model of the Hudson Estuary at the U.S. Army Corps of Engineers Waterways
Experiment Station in Vicksburg, Mississippi, there are no quantitative
models of the Hudson River Estuary ecosystem or of marshes and shallows
subsystems. References to published work on the proposed Sanctuary sites
appear in a bibliography in the Appendices. Available information on the
four sites is being synthesized in more detail and will be published later
this year as a basic reference for research workers.

Institutions currently active in Hudson River Estuary research are
listed in Table 7, and current research projects involving the four
sites are listed in Table 8. A program for future research in the proposed
estuarine sanctuary is outlined in the Alternatives section of this FEIS;
the program would emphasize long-term environmental monitoring, ecosystem-
level studies, and applied problems of management of resources including
such topics as shoreline erosion, sedimentation, waterfowl, fisheries,
furbearers, wetlands and aquatic vegetation, rare and endangered species,
and the impacts of human activities on estuarine resources.

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The Estuarine Sanctuary Program would enhance coordination and
communication in Hudson River research. A program extending the length
of the estuary and setting priorities for certain types of work would
encourage fuller and more efficient use of existing facilities, equipment,
and collections, perhaps on a time-sharing basis among research institutions.
Availability of existing data and its effective use could be enhanced,
and a system for indexing and sharing published and unpublished information
could be set up. It is expected that planning and conducting research
would be closely coordinated with the new Hudson River Foundation for
Science and Environmental Research, Inc. resulting from the settlement
between the United States Environmental Protection Agency and the public
utilities, as well as with older groups set up to coordinate research
and communicate research results (Hudson River Environmental Society and
Hudson River Research Council). There are ample opportunities for public
involvement in certain types of research, e.g., fish tagging by recreational
fishermen, and reporting of observations on estuarine animals and plants
by sportsmen and naturalists.

Education. Schools, nature clubs, conservation organizations and other
groups use the Hudson for educational activities. Most colleges in the New
York City to Troy region have courses that take field trips to the estuary.
Subjects include geology, botany, fish, wildlife and history, and the numbers
of class trips vary from one to 25 per college per year. Class trip time is
divided about evenly between the main river and the wetlands. Vassar College,
Rockland Community College, and the New School for Social Research have
offered courses specifically on the Hudson Estuary. A few schools maintain
small laboratories on the shoreline: Dutchess Community College, Bard
College, and Marist College. A few elementary schools and a number of
secondary schools have also used the estuary for field trips. North
Rockland High School has for several years had a program of education
and data collection focusing on the Grassy Point marsh complex at Haverstraw.
Boyce Thompson Institute used teacher and student volunteer groups very
successfully for data collection in its multi-year intensive studies of
the lower estuary wetlands and shallows. Graduate students from New
York University and other schools have written master's and doctoral
theses on the estuary.

Hudson River Sloop Clearwater has the largest public education program
on the estuary. The Sloop, a replica of early commercial vessels, sails up
and down the Hudson several months each year, making scheduled stops at
many cities and taking groups of children and adults aboard for half-day
educational trips. The on-board program involves short lectures, and sampling
or water, benthos, or fish.

About 20 nature clubs offer their members and the general public field
trips and lectures relating to the Hudson Estuary. Some of the most active
groups are bird clubs, but clubs with other specific interests (e.g., botany)
and general purpose nature clubs also use the estuary. Each club has from one
to 10 field trips per year on the Hudson.

Several museums and galleries have featured exhibits on Hudson River
Estuary biology and history, including the New York State Museum, American

75

Museum of Natural History, Museum of the Hudson Highlands, Hudson River
Museum, Wave Hill Environmental Studies Center, and the gallery at Hudson
River Sloop Clearwater's Fire House.

The last 13 years have seen an extensive popular educational literature
on the Hudson River. A major contribution is Robert Boyle's (1969) The
Hudson River; £ Natural and Unnatural History. Thi s book and the Hudson
River Sloop Clearwater have been predominant influences on the burgeoning
public interest in the Hudson during the 1970s-80s.

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Table 7. Some Institutions and Agencies that Have Used the Hudson River
for Research and Education.

Institution or Agency

American Museum of Natural History
New York, NY

New York State Museum
Albany, NY

Lamont-Doherty Geological Observatory
of Columbia University, Palisades, NY

Cary Arboretum of the New York
Botanical Garden, Mill brook, NY

Stonykill Environmental Education
Center, Fishkill , NY (DEC)

Cornell University
Ithaca, NY

Boyce Thompson Institute for Plant
Research, Ithaca, NY

Rockefeller University Center for
Field Research, Mill brook, NY

Academy of Natural Sciences,
Philadelphia, PA

Museum of the Hudson Highlands
Cornwall , NY

Wave Hill Environmental Studies
Center, Bronx, NY

New York University, Institute of
Environmental Medicine, New York, N.Y.

State University of New York
Stony Brook, NY

Marist College
Poughkeepsie, NY

State University College
New Paltz, NY

Type of Use
Research and Education
Research

Research
Research

Education

Research (planned)

Research

Research

Research

Research and Education

Education

Research

Research

Education

Education

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Table 7. (Continued)

Institution or Agency

Queens College
Flushing, NY

Manhattan College and College

of Mount St, Vincent, Riverdale, NY

Bard College,
Annandale, NY

United States Military Academy
West Point, NY

Vassar College
Poughkeepsie, NY

Columbia-Greene Community College
Hudson, NY

The New School for Social Research
New York, NY

Dutchess Community College
Staatsburg, NY

Ulster Community College
Stone Ridge, NY

New York State Department of
Environmental Conservation
Albany, NY

New York State Department of State
Coastal Management Program
Albany, NY

New York State Office of Parks
Recreation, and Historic Preservation
Albany, NY

United States Army Corps of Engineers
New York, NY

Scenic Hudson, Inc.
Poughkeepsie, NY

The Oceanic Society
Stanford, CT

Type of Use
Research and Education

Research and Education

Research and Education

Education

Research and Education

Education

Education

Education

Education

Research and Management

Research and Management

Research and Management

Research and Management
Research and Education
Research

Table 7. (Continued)

78

Institution or Agency

Hudson River Sloop Clearwater
Poughkeepsie, NY

National Audubon Society
New York, NY

Ralph T. Waterman Bird Club
Poughkeepsie, NY

Alan Devoe Bird Club
Chatham, NY

Rockland Audubon Society
New City, NY

John Burroughs Natural History
Society, Olive Bridge, NY

New Jersey Audubon Society
Ramapo Research Group
Mahwah, NJ

Project L.O.S.T.
Mountainville, NY

Type of Use
Education

Education

Education

Education

Education

Education

Research

Research and Education

79

Table 8. Some Current Research Projects Involving the Proposed
Sanctuary Sites. (Proposed research is outlined in the
Alternatives section.)

Flora and fauna survey updates

Fish surveys of the marshes

Rare and endangered plant and animal distribution and abundance

Muskrat populations, muskrat ecology

Waterfowl nesting

Duck blind ecol ogy

Vegetation patterns and changes in wetlands

Vegetation structure and bird populations

Toxic substances in sediments, plants and animals

Wetland sediment structure and history of marshes

Insects associated with marsh plants

81
PART IV: ENVIRONMENTAL CONSEQUENCES

A. General Impacts

An acquisition grant from NOAA would enable the State of New York
to acquire lands and develop facilities (i.e., buildings, roads, parking
lots, trails, boardwalk). These lands and facilities, combined with
other lands already owned by the State and existing facilities, would
constitute a National Estuarine Sanctuary representative of the Hudson
River as a subcategory of the Virginian Biogeographic Region. The
proposed action would have a variety of environmental and economic
consequences. It is important to understand the overall effect of the
estuarine sanctuary designation. The sanctuary designation would not
change existing ownerships, uses, or activities at the proposed sites,
but would offer significant future benefits. These benefits would include
additional protection of the marshes, and improved and better coordinated
research and education opportunities.

The most important overall effect would be to better protect areas
included within the sanctuary from development pressures and to improve
access to wildland and estuarine natural areas for research and educational
purposes. The sanctuary would require very little development because
most facilities already exist in some form; little change would be caused
in the existing natural environment. The sanctuary would not significantly
affect current uses or activities in or near the proposed sanctuary sites.

The greatest environmental benefit of this sanctuary would be the
long-term protection of the natural resources of the tidal wetlands, shallows,
shoreline, and islands of Stockport Flats, Ti vol i Bays, lona Island Marsh
and Piermont Marsh. The sanctuary would serve as an area for people to
use for esthetic and recreational enjoyment as well as for scientific and
educational purposes. Information collected in the sanctuary would increase
knowledge of East Coast estuarine ecosystems and provide an important link
with existing National Estuarine Sanctuaries and other coastal research
and educational reserves. The estuarine sanctuary designation would complement
and enhance existing ecological, scenic, and historical management programs.

Including a representative of this type of estuary within the Virginian
Biogeographic Region would also improve understanding of estuarine species
and processes peculiar to tidal river systems along the Atlantic Coast.

The establishment of the proposed estuarine sanctuary would have
minimal adverse effects on the natural environment. An increased number
of visitors to the sites should be anticipated. The sanctuary management
plan would describe sanctuary facilities, including trails and access
points. The management plan would also describe educational uses in
areas of the sites where such use would not damage the environment,
disturb adjoining landowners, or interfere with other uses of the sanctuary.

82

Traditional uses vary from one proposed sanctuary site to another.
These uses include (in certain areas): waterfowl and upland hunting,
sport and commercial fishing, fur trapping, recreational boating, bird
watching and other forms of nature recreation.

B. Specific Impacts

1 . Natural Environment

a. Fish and Wildlife Habitat

Many species of fish and wildlife, both resident and migratory, use
the proposed sanctuary sites for feeding, reproduction, and other purposes.
Establishment of this proposed sanctuary would ensure long-term protection
of important fish and wildlife habitats including tidal wetlands, shallows,
shorelines and islands. This protection of habitats could benefit
endangered species including bald eagle, osprey, possibly the shortnose
sturgeon, and also the other endangered, threatened, and "special concern"
species discussed in the Affected Environment (Part III) section of this FEIS.
Additional information on endangered species is being collected to assist
in developing the sanctuary management plan.

With respect to the shortnose sturgeon, Section 7 consultation under
the Endangered Species Act has been initiated with the National Marine
Fisheries Service. It is believed that this action will not adversely
impact this species.

The proposed sanctuary would have a positive impact by protecting high
quality ecosystems in the Hudson River Estuary. Increased visitor use of
the sanctuary sites for educational , recreational , and research purposes
would have a minimal adverse effect on the proposed sanctuary's value as a
fish and wildlife habitat. Hiking, cross-country skiing, boating and other
recreational activities would not increase greatly over levels anticipated
without the establishment of the proposed sanctuary, and fishing, trapping
and hunting are expected to remain at present levels in areas where these
activities are currently allowed. Existing management policies at Piermont
and Iona protect fish and wildlife in those areas. The management plan
under development by DEC for Ti vol i Bays takes into account the protection
of fish and wildlife habitat. At Stockport, there is no evidence of any
threat to habitat from existing recreational uses or from research activities
proposed under the proposed sanctuary program.

b. Soils and Vegetation

Adverse impact on soils within the proposed sanctuary would be minimized
by taking appropriate precautions. Trail construction and improvement will
be largely confined to locations of former or existing trails or roads, and
steep slopes and poorly drained soils will be avoided. A boardwalk may be
constructed at Tivoli North Bay after studies are made to determine the
appropriate design and location to avoid degradation of soils, vegetation,
or fish and wildlife habitats. A boardwalk would allow visitors and researchers
to experience wetland habitats with minimal detrimental effects. The impacts
of any construction activities would be assessed and appropriate permits
obtained.

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Vegetation would not be significantly altered by establishing the
proposed sanctuary. Parking would occur in existing parking areas or
in the case of Ti vol i Bays, in small areas which are not wooded or near
the shoreline. Sanctuary programs, such as research and education,
would provide increased opportunities to monitor human activities which
could damage the environment—for example, potential theft of fuel wood.

c. Water Quality

Establishing the proposed sanctuary would prevent potential impacts
from water pollution that might otherwise occur due to further industrial
or residential development within the proposed sanctuary sites. Increased
recreational boating due to sanctuary establishment would be mostly
non-motorized craft, and the use of motorized craft in the proposed
sanctuary areas is expected to remain at low impact levels. Vigilance
associated with research and educational activities would speed detection
and clean-up of any pollution incidents that might occur.

2. Human Environment

a. Residents of the Towns and Counties

There are no residences in the areas proposed for inclusion in the
proposed sanctuary, and no displacement of residents would result. The
public has limited access to the shoreline and waters of the Hudson
River Estuary, and the establishment of the proposed sanctuary would
benefit people by protecting existing access points in the proposed
sanctuary areas and providing additional access at Tivoli and possibly
Stockport. Assessments of properties adjoining the proposed sanctuary
would not change as a result of sanctuary establishment.

The proposed estuarine sanctuary would help preserve the Hudson River's
scenic and historic uniqueness and already great attraction to tourists.
Visitors from all over the United States and indeed the world visit the
Hudson River for enjoyment of esthetic, historic, and recreational resources.
This tourism is part of the Hudson's rich tradition and is an environmentally
sound source of income to communities along the estuary. Research and
education activities associated with an estuarine sanctuary would contribute
to local economies: users of the sanctuary would require transportation,
housing, food, and supplies from area merchants.

An estuarine sanctuary on the Hudson River would encourage a more
thorough examination and understanding of the relationships between
human activities and the environment. There would be increasing public
knowledge and awareness of natural resources, ecosystems, sensitivities,
and conservation needs. The proposed sanctuary would increase the support
for and public understanding of coastal management programs and activities.

Residents would benefit from long-term protection of sport and commercial
fishing, and (at Tivoli and Stockport) fur trapping and hunting, by protection
of the estuary. The impacts of these activities would remain unchanged.
The integrity of fish and wildlife habitats and populations would be

84

protected by preserving the natural areas of the proposed sanctuary
sites from adverse development. Protection of water quality and habitat
quality and improvements in the quality of fishing and hunting experiences
would go hand-in-hand. Furthermore, increased research resulting from
sanctuary establishment would very probably result in better management
of fish and wildlife populations and their habitats along the entire
Hudson River Estuary.

b. Scientific and Educational

Existing research and education programs would be enhanced by
establishment of an estuarine sanctuary, and new opportunities would be
created for research and education both within the proposed sanctuary
and elsewhere along the Hudson River. There would be increased coordination
and improved effectiveness of the now disparate and often fragmented
programs on the estuary, especially research on the wetlands and shallows.
Protection of high-quality natural ecosystems and improved access would
allow school groups and the general public of all ages easier access to
educational and scientific resources. It would be an advantage to scientists
and students of science to have areas set aside as an estuarine sanctuary
for long-term ecological research and environmental monitoring.

c. State and Federal

Establishment of a Hudson River Estuarine Sanctuary would protect for
New Yorkers and other Americans natural areas to enjoy and use for science
and education. The sanctuary designation would especially benefit
people from urban areas who have difficulty finding coastal areas for
these activities.

Establishment and management of the proposed sanctuary would have a
relatively slight and short-term financial impact on the Federal Government.
Since long-term operation of the proposed sanctuary would be based on
retention of its natural features, expenditures would be minimal. All
facilities would be designed for minimal maintenance. Volunteer efforts
could assist in the upkeep and management of trails and other features of the
sanctuary. The proposed sanctuary Advisory Committee's fund-raising activities
could provide an appropriate blend of private sector and public sector
support for the perpetuation of suitable sanctuary operation. Sanctuary
programs would be closely coordinated with other government programs as
well as private programs of research, education, and conservation.

Sanctuary goals would be compatible with the protection of wetlands,
floodplains, shorelines and other estuarine environments in accordance
with Executive Orders 11988 and 11990, the State Coastal Management plan,
and other Federal and State laws listed in Appendix 2.

The United States Department of Defense shall not be prohibited from
conducting any activity that is essential for national defense or because
of emergency. This includes military flights above or in the vicinity of
the proposed sanctuary sites. Such activities shall be conducted consistent
with all regulations, to the maximum extent practicable.

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C. Unavoidable Adverse Environmental or Socioeconomic Effects

Except for the minor problems listed earlier, there are no adverse
environmental effects associated with this proposed action. With regard
to the alternatives (except for the No Action Alternative), none have
significantly different environmental impacts. However, the Preferred
Alternative would create an excellent estuarine sanctuary for research
and education. If the No Action alternative were chosen, the net
benefits presented in the proposal would be foregone.

Unavoidable adverse economic effects would include the loss of tax
revenue if additional land acquisition takes place. The following figures
are approximate, but they are the best available estimates on potential loss
of property tax revenues in connection with proposed sanctuary acquisitions
on the Hudson River:

Stockport Marsh area - Approximately $1 ,141/year

Tivoli Bays area - Approximately $ 780/year

Iona Island area - No Acquisition proposed

Piermont Marsh area - Approximately $1 ,000/year

The total potential loss of property tax revenues is estimated at $2,921
per year. Some or all of this lost property tax revenue would be offset
by new spending from sanctuary visitors, scientists, and educators.

Some of this tax loss may also be reduced by employing alternative
preservation techniques such as purchase of development rights, conser-
vation easements, or reserved life estates.

Establishment of this proposed sanctuary could result in minor
disturbances to the environment through the construction or improvement
of trails and parking areas, and renovation of existing buildings. Any
proposed construction in wetland areas would require an environmental
assessment.

D. Relationship between Short-term Uses of the Environment and the
Maintenance and Enhancement of Long-term Productivity

Sanctuary designation would provide long-term assurance that the
natural resources and resulting benefits of the area would be available for
future use and enjoyment. Without sanctuary designation, intensive uses
such as residential subdivisions or commercial -industri al development
might take place in some parts of the proposed sanctuary. However, such
uses would result in a loss of ecological benefits due to disruption and
degradation of natural resources.

Research information collected from the proposed estuarine sanctuary
over the long-term would assist Federal, State and local government in
making better coastal management decisions. Better management would in
turn help resolve use conflicts and mitigate adverse impacts of human

86

activities in the coastal zone, saving both money and resources. Research
in the proposed estuarine sanctuary might well allow more efficient and
safer use of resources in the coastal zone, and this research might also
result in the discovery of previously unknown resources (medical, nutritional,
esthetic, recreational) for human use. A public education program would
provide a grassroots foundation for wise public use of estuarine resources.

E. Irreversible or Irretrievable Commitment of Resources

Within the proposed sanctuary, there are no resources that will be
irreversibly or irretrievably lost. The intent of the proposed action
is to protect, enhance, and manage the natural resources for research,
education, and recreation. If these resources are protected and managed
instead of altered, they would be available for future use. It is also
believed that establishment of the proposed sanctuary could insure the
future harvest by commercial and sport fishermen and also hunters and
trappers through scientific research and proper management of resources,
without resulting in loss of other potential benefits such as nonconsumptive
enjoyment of the resource.

F. Possible Conflicts between the Proposed Action and the
Objectives of Federal, State, Regional and Local Land
Use Plans, Policies and Controls for the Areas Concerned

No conflicts are anticipated between this proposed action and the
objectives of Federal , State, regional or local land use plans, policies,
and controls for the area concerned.

1 . Federal and Regional Plans

The entire Tivoli Bays site is listed on the National Register of
Historic Places as part of a historic district that stretches along the
the east bank of the Hudson River from Germantown south to Hyde Park. A
special procedure is required before structures existing on the property
may be altered. However, none of the several buildings on the upland area
away from the wetlands has any great historic value and it is planned by
DEC to raze these buildings which are in too poor condition to use, except
for the concrete barn. A private cemetery of less than one-fourth acre
in size, dating from approximately the 1930s-40s, is located on the
uplands more than 300 yards east of the wetlands. This cemetery will be
protected and marked as part of the DEC management of the property. A
small (less than 50 feet square) ruins on South Cruger Island was built
for ornamental reasons in the mid-1800s and will be left as is.

The establishment of the proposed Hudson River Estuarine Sanctuary in
and of itself would not interfere with the maintenance or enforcement of the
U.S. Coast Guard rules and regulations. The proposed sanctuary would also
not interfere with commercial shipping use or U.S. Army Corps of Engineers
maintenance of the Federal Shipping Channel. The proposed sanctuary sites
would not be available for disposal of dredged material from the navigation
channel. Alternative disposal sites are available upland outside of the
proposed sanctuary boundaries. The Corps of Engineers in their DEIS
and 10-year management plan for Federal channel maintenance dredging has
indicated that spoil disposal in marshes is no longer acceptable. There

87

is a small, long disused silted-in mapped spur channel within the proposed
sanctuary boundary at Stockport. The proposed sanctuary would not interfere
with existing railroad operations and maintenance.

A five mile stretch of the Hudson River between Barrytown and Maiden
has been included in the Final List of Potential Wild, Scenic, and
Recreational Rivers by the U.S. Department of the Interior.

CRITERIA OF THE WILD AND SCENIC RIVERS ACT
(Public Law 90-542, as amended)

The Final List of Potential Wild, Scenic and Recreational Rivers constitutes
the results of the Nationwide Rivers Inventory. Identified are natural
and undeveloped rivers and river segments that meet the minimum criteria
for further study and/or potential inclusion under the Wild and Scenic
Rivers Act. The Inventory has focused on those rivers nominated by
government agencies, private groups and/or individuals, which are
significant for their recreation, cultural and natural values. Each of
these rivers met the minimum criteria of Public Law 90-542 and related
guidelines which specified that an eligible river must:

1. Be five miles or more in length.

2. Be a free-flowing river or stream (rivers may have undergone
some impoundment or diversion in the past).

3. Be generally undeveloped. (River corridors may be developed for
full range of agricultural uses and can include small communities
as well as dispersed or cluster residential housing.) Be readily
accessible by road or railroad or be largely undeveloped. (Rivers
or sections or rivers with shorelines or watersheds essentially
primitive or largely undeveloped.)

4. Be adjacent to or within a related land area that posesses an
outstanding remarkable geologic, ecologic, cultural, historic,
scenic, botanical, recreational or other similar value.
(Interpreted to near an area of multi-state or national
significance.)

No conflict between the proposed estuarine sanctuary status and this
designation is foreseen.

Sanctuary management policies would not interfere with existing
regulations of the U.S. Fish and Wildlife Service, U.S. Environmental
Protection Agency, or any other Federal regulatory agency.

2. State Plans

The purposes and objectives of the proposed estuarine sanctuary are
consistent with the programs of the Department of Environmental Conserva-
tion (DEC), the Department of State (DOS), the Office of Parks, Recreation
and Historic Preservation (OPRHP), and the Palisades Interstate Park Com-
mission (PIPC). All of these agencies, as well as the Office of General

88

Services, are involved in planning the proposed estuarine sanctuary and are
represented on the Sanctuary Steering Committee. DEC, DOS, OPRHP and PIPC
were all involved in the statewide and the Hudson River site selection
processes for the proposed sanctuary.

The proposed sanctuary is consistent with the objectives and plans
of the developing State Coastal Management Program.

The Tivoli Bays site lies entirely within the DEC-designated Mid-
Hudson Historic Shorelands State Scenic Area, which stretches from
Germantown to Hyde Park and is approximately conterminous with the National
Register of Historic Places historic district. The proposed sanctuary
objectives are consistent with the objectives of the Scenic Area, and
both programs would be mutually supportive.

At Stockport and Tivoli, portions of State Agricultural Districts
approach or adjoin the proposed sanctuary sites. No portion of any
Agricultural District is within the proposed sanctuary boundaries. The
management of the proposed sanctuary would not interfere with agricultural
land uses.

Proposed and potential estuarine sanctuary research and education
programs are complementary to, and would not interfere with, any research
or education programs conducted by State agencies, or within the State
educational system, or by private groups or schools. Indeed, sanctuary
programs and other research and education programs would be mutually
enchancing.

3. Local Plans

The proposed Hudson River Estuarine Sanctuary would not interfere with
any known county, town, or village plans, policies, or regulations (see
Appendix 2). The proposed sanctuary management plan would take into
account all county, town, and village laws and regulations governing
portions of the proposed sanctuary that lie within these political
divisions. Protection of scenic, recreational, historic, and archaeological
resources within the proposed sanctuary is consistent with local plans
and policies as well as with State policies. Existing uses of the proposed
sanctuary would continue, including hunting, fishing, trapping, recreational
boating, bird watching and other recreational uses where permitted.

It is not anticipated that the establishment of the proposed sanctuary
would interfere with existing or potential industrial or commercial land
uses near or adjoining the proposed sites. Such uses include: the
Tennessee Gas Pipeline Company corridor at Piermont, the Clevepak Corporation
and Federal Paper Board Company plants on the Erie Pier at Piermont, the
thoroughbred horse breeding farm of Tivoli Properties, Inc., other agricultural
activities at Tivoli and Stockport, the Central Hudson Gas & Electric
Corporation corridor at Tivoli, and the railroads. If problems should
arise, negotiated agreements would be sought.

89

PART V: LIST OF PREPARERS

\)r. Richard J. Podgorny -- U.S. Department of Commerce

Dr. Podgorny holds both B.A and Ph.D. degrees in Biology and a M.S.
degree in the earth sciences. He is the Project Manager for the Hudson River
Estuarine Sanctuary proposal. Also, he is the Regional Sanctuary Projects
Manager for the Great Lakes, portions of the East Coast, and the Gulf of
Mexico for both of NUAA's National Estuarine and Marine Sanctuary Programs.
His background includes serving as Director of Marine Education for the
District of Columbia Public School System, Science Professor, and Peace
Corps Volunteer in Ethiopia.

His responsibilities in the preparation of the FEIS included overall
direction, organization, and preparation of the report for publication.
Dr. Podgorny had assistance from Ms. Gloria Thompson, Program Specialist,
Ms. Jaunice Yates, Program Support Specialist, and Ms. Lois Mills,
Clerk/Typist, Sanctuary Programs Office.

Mr. Edward Radle -- New York State Department of Environmental Conservation

Mr. Edward Radle oversaw the preparation of the FEIS. Mr. Radle is
the Hudson River Fishery Management Coordinator with the New York State
Department of Environmental Conservation. He has a master's degree in
fisheries biology and lives in Clifton Park, New York.

Mr. Erik Kiviat -- Director, Hudsonia Limited

Mr. Erik Kiviat prepared the Affected Environment, Alternatives, and
Consequences sections, and edited the appendices. Mr. Kiviat taught
natural history at Bard College 1970-78 and was director of the College
Field Station; he is now Research Associate in Ecology at Bard, and a
director of Hudsonia Limited. He has done research on the Hudson Estuary
since 19/0. Mr. Kiviat has a master's degree in biology, and lives in
Barrytown, New York.

Mr. James J. Stapleton -- Director, Hudsonia Limited

Mr. James J. Stapleton assisted in the preparation of the entire FEIS.
Mr. Stapleton teaches at the New School for Social Research in New York City,
is Director of the John Burroughs Sanctuary, and is a director of Hudsonia
Limited. He has master's degrees in biology and physics, and lives in
West Park, New York.

Dr. Robert E. Schmidt -- Director, Hudsonia Limited

Mr. Robert E. Schmidt edited the hydrology section and compiled the fish
list of the FEIS. Dr. Schmidt teaches at Upsala College in Sussex, New
Jersey, and has taught at Manhattan Community College, New York City;
Mercy College, Dobbs Ferry, New York; and Fordham University, Bronx, New
York. He is a director of Hudsonia Limited and has done research on
Hudson River fish populations for several years. Dr. Schmidt has a
Ph.D. in ichthyology and lives in Newton, New Jersey.

Ms. Suzanne Blatter -- Hudsonia Limited

Ms. Suzanne Blatter prepared the illustrations for the FEIS. Ms. Blatter
has a bachelor of fine arts degree, and lives in Kingston, New York.
She is an affiliate of Hudsonia Limited.

90

Ms. Nancy Zeising -- Hudsonia Limited

Ms. Nancy Zeising compiled the plant list and assisted with other portions
of the FEIS. Ms. Zeising teaches environmental education in the Hyde Park,
New York, school district and is involved in Hudson Estuary research. She is
an affiliate of Hudsonia Limited and lives in Clinton Hollow, New York.

Mr. Clarence T. O'Brien -- New York State Department of Environmental Conservation

Mr. Clarence T. O'Brien researched property ownerships at the Stockport
Flats site. Mr. O'Brien is Regional Land Surveyor, Region 4, with the New York
State Department of Environmental Conservation. He has an Associate
Degree in Electric Power Generation and Transmission from Alfred University,
SUNY, and lives in Guilderland, New York.

The following members of New York's Estuarine Sanctuary Steering Committee
contributed significantly to the preparation of the FEIS:

J. W. Aldrich (DEC)
Harry Earle (OPRHP)
Peter D. Gregory (OPRHP)
Paul Keller (DEC)
David McCoy (PIPC)
Robert T. McLean (OGS)

James Morton (DOS)
Nancy Pierson (OPRHP)
John Renkavinsky (DEC)
Joseph Steel ey (DEC)
Nancy Tobin (OPRHP)

In addition, valuable information or comments were received from the
following State agency administrators or staff members:

Nash Castro (PIPC)
Glenn Cole (DEC)
Salvatore Cozzolino (DEC)
James Davis (DEC)
Herbert Doig (DEC)
Wayne Elliot (DEC)
Patrick Festa (DEC)
Jack Focht (PIPC)
Richard Guthrie (DEC)
Dennis Haight (PIPC)
Howard Haight (PIPC)
Edward Horn (DEC)

Phillip Hulbert (DEC)

Alan Mapes (DEC)

Eugene McCaffrey (DEC)

John Meade (PIPC)

Richard Mitchell (NYS Museum)

Jack Ryan (DEC)

Fred Slater (DEC)

Ronald Sloan (DEC)

Anthony Taormina (DEC)

John Troy (PIPC)

Ivan Vamos (OPRHP)

The following individuals provided information or assistance:

Lawrence Biegel (Greene Co. EMC)

Maurice Brignull (Hudson, NY)

Robert Deed (Rockland Audubon Society)

Kate Dunham (Alan Devoe Bird Club)

Frances Dunwell (Scenic Hudson, NY)

Richard Griffiths (Bard College)

William Hogan (Dutchess County Cooperative Extension)

John Holsapple (New York Power Pool)

William Kivlen (Columbia County Sportsmen's Federation)

Lee LaBuff (Ithaca, NY)

Wade Linden (North Chatham, NY)

Steve Lopez (New York Sea Grant)

William T. Maple (Bard College)

Donna Matthews (Tivoli, NY)

91

Grace Meyer (Piermont, NY)

Joe Murell (Hudson, NY)

Everett Nack (Claverack, NY)

Beth Yanuck Piatt (The Nature Conservancy)

Ruth Piwonka (Kinderhook, NY)

Michael Rosenthal (Bard College)

David Seeley (North Chatham, NY)

C. L. Smith (American Museum of Natural History)

Robbe P. Stimson (Hudson River Shorelands Task Force)

Roland Vosburgh (Columbia County Department of Planning)

Lynn Wayand (DEC)

Anne Williams (The Nature Conservancy)

Special recognition is due to Scenic Hudson, Inc. for sponsoring
research on the Hudson River Estuary that contributed to the development
of this proposal .

93

PART VI: LIST OF AGENCIES, ORGANIZATIONS, AND PERSONS RECEIVING COPIES
OF THE DEIS

Federal Agencies

Advisory Council on Historic Preservation

U.S. Environmental Protection Agency

U.S. Fish and Wildlife Service

U.S. Army Corps of Engineers

National Park Service

Department of Agriculture

Department of Commerce

Department of Energy

Department of Health and Human Services

Department of Housing & Urban Developement

Department of the Interior

Department of Justice

Department of Labor

Department of Transportation

U.S. Coast Guard
Federal Energy Regulatory Commission
Nuclear Regulatory Commission
Conrail

National Interest Groups

A.M. E.R.I. C.A.N.

AFL-CIO

American Association of Port Authorities

American Bureau of Shipping

American Farm Bureau Federation

American Fisheries Society

American Gas Association

American Industrial Development Council

American Institute of Architects

American Petroleum Institue

American Shore and Beach Preservation Association

American Society of Civil Engineers

American Society of Landscape Architects, Inc.

American Society of Planning Officials

American Waterways Operators

Amoco Production Company

Atlantic Richfield Company

Atomic Industrial Forum

Boating Industry Association

Bultema Dock and Dredge Company

Center for Law and Social Policy

Center for Natural Areas

Center for Urban Affairs

Center for Urban and Regional Resources

Chamber for Commerce of the United States

Chevron U.S.A., Inc.

Cities Service Company

Coast Alliance

94

Conservation Foundation

National Interest Groups (Cont'd.)

Continental Oil Company

Council of State Planning Agencies

The Cousteau Society

CZM Newsletter

Edison Electric Institute

El Paso Natural Gas Co.

Environmental Policy Center

Environmental Defense Fund, Inc.

Environmental Law Institute

EXXON Company, U.S.A.

Friends of the Earth

Great Lakes Basin Commission

Gulf Energy and Minerals, U.S.

Gulf Oil Company

Gulf Refining Company

Industrial Union of Marine and Shipbuilding

Workers of America
Institute for the Human Environment
Interstate Natural Gas Association of America
Lake Michigan Federation
Marathon Oil Company

Man'

Mob

Mobi

Murphy Oil Company

Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat
Nat

ne Technology Society

1 Oil Corporation

1 Exploration and Producing, Inc.

ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona
ona

Nationa
Natural
Natural

Association
Association
Association
Association

Inc,

of Conservation Districts
of Counties
of Home Builders
of Realtors
Audubon Society

Coalition for Marine Conservation,
Farmers Union
Federation of Fishermen
Fisheries Institute
Forest Products Association
Marine Manufacturers Association
Ocean Industries Association
Parks and Conservation Association
Recreation and Park Association
Research Council

Society of Professional Engineers
Waterways Conference
Wildlife Federation
Resources Defense Council
Resources Law Institute
The Nature Conservancy
Norfolk Dredging Company
Outboard Marine Corporation
Resources for the Future
Rose, Schmidt & Dixon
Shell Oil Company

95

Sierra Club

National Interest Groups (Cont'd.)

Skelly Oil Company

Soil Conservation Society of America

Sport Fishing Institute

Standard Oil Company of Ohio

State University Law School

State University of New York

Sun Company, Inc.

Tenneco Oil Company

Texaco, Inc.

Texas A & M University

Union Oil Company of California

University of Pittsburgh

Urban Research and Development Association, Inc.

Western Oil and Gas Association

Wildlife Management Institute

The Wildlife Society

Woods Hole Oceanographic Institute

State/County Government

New York City Department of City Planning

New York State Department of Environmental Conservation

New York State Office of General Services

New York State Department of State

New York State Office of Parks, Recreation and Historic Preservation

Bear Mountain State Park

New York Department of Public Service

Saratoga Capital District State Park Commission

Palisades Interstate Park Commission

New York State Department of Transportation

New York State Governor's Offfice

Department of Education

State Museum and Science Service

Taconic State Park and Recreation Commission

New York Fish and Wildlife Management Board

Tallman Mountain State Park

Dutchess Co. Department of Planning

Town of Red Hook Conservation Council

Town Planning Board of Red Hook

Rockland County Legislature

Rockland County Environmental Management Council

Stony Point Town Planning Board

Orangetown Planning Board

Dutchess County Environmental Management Council

Columbia County Environmental Management Council

Rockland County Department of Planning

Red Hook Town Board

Stockport Town Board

Stony Point Town Board

Orangetown Town Board

Piermont Village Board

96

State/County Government (Cont'd.)

Ti vol i Village Board

Heritage Task Force for the Hudson River Valley
Piermont Conservation Advisory Commission
Rockland County Planning Department

State and Local Interest Groups

Red Hook Rotary Club

West Branch Conservation Association

West Hudson Environmental Association

Rockland County Cooperative Extension

Piermont Civic Association

Hudson River Conservation Society

Hudson River Heritage, Inc.

Manitoga Hudson River Center

American Littorial Society

Rockland Audubon Society

Central Westchester Audubon Society

New Jersey Audubon Society

Ralph T. Waterman Bird Club

Federation of New York State Bird Clubs

The Nature Conservancy

Hudson River Environmental Society

Hudson River Shorelands Task Force

National Audubon Society

Putnam Highlands Audubon Society

Alan Devoe Bird Club

Linnaean Society of New York

Sierra Club

Torrey Botanical Club

Federated Garden Clubs of New York

Marshlands Conservancy

Federated Conservationists of Westchester Co.

Commerical Fisherman's Association of New York

New York Bass Chapter Federation

John Burroughs Natural History Society

Dutchess County Garden Clubs

Palisades Nature Association Greenbrook Sanctuary

The Wildlife Society

Hudson River Fishermen's Association

Trout Unlimited

Columbia County Sportsmen's Federation, Inc.

Federated Sportmen's Club of Ulster County Inc.

Federation of Dutchess County Fish and Game Club

Hudson River Waterfowlers

Upper Catskill Fur Takers

New York-New Jersey Trail Conference

Dutchess County Landmarks Association

Ducks Unlimited

Dutchess County Trappers' Association

Dutchess County Archeol ogical Society

Project L.O.S.T.

97

State and Local Interest Groups (Con't.)

The Georgia Conservancy

Tappan Zee Sloop Club

Buccaneer Boat Club, Inc.

Julius Petersen, Inc.

Chel sa Marina

Norrie Point Marine Corporation

Hudson River Pilots Association

Tappan Zee Marina

Lighthouse Yacht Center

Sail haven

Poughkeepsie Yacht Club

Beacon Sloop Club

Scenic Hudson

Rockland County Conservation Association

Hudson River Sloop Clearwater

The Nature Conservancy, Lower Hudson Chapter

Sierra Club, Mid-Hudson Chapter

New York State Coastal Coalition

New York State Conservation Council

Sparkill Creek Watershed Protection

Congressional

Daniel P. Moynihan
Alphonse M. D'Amato
Wi 1 1 i am Carney
Thomas J. Downey
Gregory W. Carman
Norman F. Lent
Raymond J. McGrath
John LeBoutillier
Joseph P. Addabbo
Benjamin S. Rosenthal
Geraldine Anne Ferraro
Mario Biaggi
James H. Scheuer
Shirley Chisholrn
Stephen J. Solarz
Frederick W. Richmond
Leo C. Zeferetti
Charles E. Schumer
Guy V. Molinari
Bill Green
Charles B. Rangel
Ted Weiss
Robert Garcia
Jonathan B. Bingham
Peter A. Peyser
Richard L. Ottinger
Hamilton Fish, Jr.
Benjamin A Gil man

98

Congressional (Cont'd.)

Matthew F. McHugh

Samuel S. Stratton

Gerald B. Solomon

David O'B. Martin

Donald J. Mitchell

George C. Wortley

Gary A. Lee

Frank Horton

Barber B. Conable, Jr.

John J. La Falce

Henry J. Nowak

Jack Kemp

Stanley N. Lundine

Individual s

Kenneth R. Ingenito
Lucien H. Conklin
Josephy Colello
John Deans
Wi 1 1 iam Goswick
Philip J. Rotella
Kevin Alger
Robert L. Bard
Tom Burke
David Chiarell i
Marcel la Appell
Robert Bartholomew
Eleanor Burl ingham
Ed Cocker
John Cronin
Peter C. Derven
Charles A. Galyon
Alan Gussow
Robert Hodor
Sherwood Kreig
Richard Leggett
Scott Longe
John Makoske
William G. Medn
Everett Nack
John Rossi
David Seeley
J. Herbert Dahm, Jr.
Roger Edgley
Robert Greig
Wesley J. Hennessy
Harold Hoffman
Lee LaBuff
Wade Linden
Robert Main

99

Individuals (Cont'd)

Bonnie Mac Giffert
Theodore B. Merril 1
Leif Reichelt
Samuel Sage
Mike Selender

Copies of the DEIS were sent to the agencies and groups and individuals
listed above for their review and comments during a 45 day comment period.
All comments received on the DEIS are presented in Part VII of this
document.

101

PART VII: WRITTEN AND VERBAL COMMENTS RECEIVED ON THE HUDSON RIVER
ESTUARINE SANCTUARY DRAFT ENVIRONMENTAL IMPACT STATEMENT,
AND NOAA's RESPONSES

This section presents the written and verbal comments received on the
Draft Environmental Impact Statement (DEIS) and provides NOAA's response
to these comments. Generally, responses are made in one or more of the
following ways:

1. Expansion, clarification, or revision of the DEIS,

2. General response to comments raised by several reviewers, and

3. Specific responses to the individual comments made by each
revi ewer.

The written comments received are arranged in the following order:

1. Federal Agencies

2. State and Local Government

3. Environmental Organizations

4. Research Organizations

5. Fish and Game Clubs

6. Industries and Private Individuals

The written comments are followed by a section containing a verbatum
transcript of speakers at the four public hearings. They appear in the
order of their presentation at the hearings.

For the convenience of the reader, all comments appear on the left
side of the page and corresponding responses appear on the right side of
the page.

The following are some of the most common issues raised by reviewers.

GENERAL COMMENTS AND RESPONSES

A. Concern that the use of the term "santuary" to describe the program
is inappropriate and misleading. The implied negative effects of the
title "sanctuary" are contradictory to the hunting, fishing and trapping
heritage of the Hudson River Valley.

Many reviewers expressed concern about the authority of the Federal
government to regulate activities in the area within the proposed Hudson
River Estuarine Sanctuary sites. Because a Federal grant is being requested
by New York to establish and manage the sanctuary, it is feared that the
Federal government could control or prohibit recreational activities such as
hunting, fishing, trapping and boating if these activities interfered either

101 -A

with research or educational programs being conducted within the sanctuary.
This concern is directly related to Section 921.5 of the Estuarine Sanctuary
Program Guidelines published on June 4, 1974 [15 CFR Part 921, Federal
Register 39 (105): 19922-19927].

Section 921.5 Multiple Use, paragraph (b) states: "There shall be no
effort to balance or optimize uses of an estuarine sanctuary on economic
or other bases. All additional uses of the sanctuary are clearly secondary
to the primary purpose and uses, which are long-term maintenance of the
ecosystem for scientific and educational uses. Non-compatible uses,
which would cause significant short-term or long-term ecological changes
or would otherwise detract from or restrict the use of the sanctuary as a
natural field laboratory, will be prohibited".

The intention of the Federal guidelines cited above is to help States
understand what an estuarine sanctuary is to be used for so they will
know how to establish criteria and set priorities for selecting potential
sanctuary sites that will qualify for Federal assistance. Section 921.5
attempts to distinquish compatible from non-compatible uses and provides
some examples, again with the intention of helping States to decide which
areas would qualify as potential sanctuary sites and which would not, for
Federal funding pruposes. Thus, States are informed clearly in the
beginning that areas proposed to NOAA as sanctuary sites must be relatively
undisturbed and available for long-term research and educational programs
as primary objectives.

There is no Federal law or regulations to implement the sanctuary
that would supercede State law. Section 921.5 does not give the Federal
government any new authority in the implementation phase of an estuarine
sanctuary program. An estuarine sanctuary is designated by law, and the
guidelines referred to above, to be State owned and State managed.
Provision is also made for citizens or organizations which are concerned
about improper use or restriction to petition the State management agency,
and if necessary the Office of Coastal Zone Management directly, for
review of the managment program. In Section 921.31, the pubic is assured
that approved boundaries and management policy, including permissible and
prohibited uses, may only be changed after public notice and public review
and participation.

With these provisions to safeguard continuing public involvement in
decisions, plus the establishment of Sanctuary Advisory Committees for
the estuarine sanctuary on the Hudson River, with local citizens and
groups represented, every feasible step has been taken to assure citizens
maximum access to any decisions that would be made concerning the use of
the sanctuary waters or adjacent waters. The Federal government's role
in any conflict situation over use or restriction would be to assure
that all parties had an opportunity to express their views and that the
final decision was clearly in the public interest and consistent with
the original agreement in setting up the sanctuary in the first place.

However, in the case of the proposed Hudson River Estuarine Sanctuary,
there is very little existing or potential conflict of traditional
consumptive activities (hunting, trapping, fishing, crabbing, etc.) with
proposed research or public education. Hunting and trapping are

101-B

prohibited by PIPC regulations at Piermont and Iona Island Marshes
(at Piermont on the portion of the marsh owned by PIPC). At Tivoli and
Stockport, hunting and trapping are permitted on State lands. At these
two areas, waterfowl hunting as presently practiced is concentrated on
opening day of the duck season (usually a Wednesday) and on the first one
or two weekends of the duck season. Relatively little hunting occurs on
other days during the season. The duck season usually opens in mid-
October. Very little shooting occurs between about 10:00 AM and 4:00 PM
during the duck season, even on opening day. Research on a variety of
topics has been done during duck hunting season at Tivoli in the past.
There is no problem with hunting being the predominant activity during the
times of greatest concentrated hunting. The midday hours and the midweek
days (except opening day) are still available to researchers with relatively
little shooting on the marshes. Under a directive which preceded the
Estuarine Sanctuary proposal, DEC is preparing a management plan for its
land at the Tivoli Bays site. This plan wil establish regulations for
the use of the property for traditional activities including research,
hunting, and bi rdwatching. Options under consideration for the Tivoli
plan include closing the area to duck hunting on certain days each week
or setting aside a small part of the marshes as a "no hunting" area.
These regulations, if adopted, could have the effect of improving duck
hunting (by reducing the "hazing" of ducks from the area due to very
intense hunting early in the season) while setting aside times and places
where non-consumptive uses of the marsh could occur separately from
hunting. This type of "zoning" of the Tivoli Bays site could be important
because of the diverse mixture of consumptive and non-consumptive activities
there. At Stockport, there is no plan for site-specific regulations.
Stockport, while heavily hunted early in the duck season, does not attract
the intensity of non-consumptive uses that Tivoli does. Late winter,
spring, summer and early fall are still available to researchers at
Stockport with no duck hunting in progress, and certain days and times of
day are also available during the duck season with relatively little
shooting. Stockport is envisioned in the Estuarine Sanctuary proposal as
a low-intensity public use area that is available for research but which
would not be used as much for this purpose as Tivoli. Therefore, little
conflict between hunting and research is anticipated.

Trapping, fishing, and crabbing, where presently permitted, would not
interfere with research and public education. One function of research
in the proposed Estuarine Sanctuary would be to assess the role and impact
of these activites in the balance of wild populations and of the ecosystem.
DEC as lead agency, and the Estuarine Sanctuary Steering Committee, are
committed to maintaining high-quality hunting, trapping, fishing and
crabbing experiences in those portions of the proposed Estuarine Sanctuary
site where these activities are currently permitted. These consumptive
uses of the marshes are indeed an important part of the heritage of the
Hudson River Estuary. It is anticipated that the interactions between
sportsmen and non-sportsmen, including researchers and educators, can
enhance the effectiveness of the sanctuary for recreation as well as for
research and education. Sportsmen and non-sportsmen alike have a common
interest in the protection of these marhses, and much to gain from
cooperating in the programs of the proposed sanctuary.

101-C

B. Positive statements in the DEIS regarding consumptive uses are lacking
and/or inadequate.

There are two ownerships in the Piermont Marsh. The DEC property is
located between the Erie Pier and Sparkill Creek (north of Sparkill Creek,
see DEIS p. 10). It is the intention of DEC to open this parcel to hunting,
trapping, fishing and crabbing. The marsh and shallows south of Sparkill
Creek are owned by PIPC and are part of Tallman Mountain State Park.
Firearms are prohibited in the Palisades Interstate Park system unless
specific exceptions are made. Hunting and trapping are not permitted in
the PIPC portion of Piermont Marsh or in lona Island Marsh. In these two
areas, fishing and crabbing are allowed by permit, subject to the discretion
of PIPC. These policies have been in effect for many years. Whatever
hunting may have occurred on the PIPC-owned portion of Piermont Marsh was
in violation of park regulations. Within the Village of Piermont boundary
(including most of the DEC parcel) under most circumstances Village law
prohibits shooting within 500 feet or any building or playground, but shooting
is legal otherwise. Most of the DEC land is not within 500 feet of a building
or playground, which leaves any policy regarding hunting to the discretion
of DEC. There are no laws in the Town of Qrangetown or Rockland County
specifically prohibiting the use of rifles for hunting but State Conservation
Law prohibits the use of rifles for hunting deer in Rockland County and
Dutchess County. All of the discretionary policies of the involved State
agencies are under review.

COMMENTS AND RESPONSES
1. FEDERAL AGENCIES

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197

COMMENTS AND RESPONSES
4. RESEARCH ORGANIZATIONS

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COMMENTS AND RESPONSES

7. PUBLIC HEARINGS

Based on public requests and remarks received at the Public
Hearings, transcripts have been prepared of each speaker's
remarks and are presented on the following pages. Introductory
remarks by the Hearing Officer and the State's representative,
and the narrative of the slide/tape presentations have not been
included to save space, however, these can be made available
on written request to NOAA.

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270

ADDITIONAL COMMENTS

The following comments were received while the FEIS was at
the printers. There was not enough time and space remaining
to provide responses.

271

U. S. DEPARTMENT OF TRANSPORTATION

FEDERAL HIGHWAY ADMINISTRATION
REGION ONE

Leo W. O'Brien Federal Building
,..,* ]r .,, ^ . -7 Ninth Floor August 9, 1982

•'•■--" <> " ' Albany, New York

12207

IN REPLY REFER TO:

HB-NY

Dr. Richard Podgorny
Sanctuary Project Manager
Office of Coastal Zone Management
3300 Whitehaven Street, N.W.
Washington, D.C. 20235

Dear Dr. Podgorny:

Thank you for the opportunity to comment on this Draft Environmental Impact
Statement for the proposed Estuarine Sanctuary on the Hudson River. We
have consulted with the New York State Department of Transportation and have
no comments to offer at this time. The New York State Department of Trans-
portation has informed us that they also have no comment on the proposed
action.

Again, we appreciate the opportunity to review this DEIS. Please keep us
advised if conditions change.

Sincerely yours,

Victor E. Tj

Division Administrator

272
New York State Department of Environmental Conservation

50 Wolf Road, Albany, New York 12233

.-.» r q
iti ■- '3

July 28, 1982

Robert F. Flac
Commissions

Dr. Richard Podgorny
Sanctuary Project Manager
Office of Coastal Zone Management
3300 Whitehaven Street
Washington, D. C. 20235

Re: Draft Environmental Impact Statement
Hudson River Estuarine Sanctuary

Dear Dr. Podgorny:

My staff has completed a review of the Draft Environmental Impact Statement for the
proposed Estuarine Sanctuary grant award for Hudson River Estuarine Sanctuary in the
State of New York.

As I am sure you are aware, much of these proposed areas have traditionally been
utilized for fishing, both recreational and commercial. In the cases of Piermont
Marsh and lona Island Marsh, shellfishing for blue crab primarily on a recreational
basis has also been a long-standing use. Certain sites within the boundaries of the
proposed sanctuary areas are also periodically visited by sampling crews for the
purpose of monitoring Hudson Estuary fish populations. It is of considerable concern
that these uses of the proposed sanctuary areas be continued with minimal additional
constraints. Perhaps the sanctuary designation implies a more aggressive regulation
than would be desirable in relation to these activities.

The fact that each Hudson Estuary site proposed for inclusion in the Estuarine Sanc-
tuary Program currently supports high quality vegetative and faunal communities, is
indisputable. However, the Draft Environmental Impact Statement makes frequent refer
ence to proposed sanctuary areas as "essentially undisturbed" or "nearly pristine".
The impact of mans1 activity; dredging, construction of railroad causeways, developme
of shipping facilities, among others is clearly evident and has significantly altered
characteristics of each site from their original state. Perhaps a more accurate descr
tion of the characters of the sites would benefit unfamiliar readers.

In addition to the above general comments, I would also offer the following specific
comments :

page 5 - final paragraph refers to a "large" shortnose sturgeon Acipenser
brev? rostrum population. This species is currently listed as endangered by
both the U. S. Department of Interior and New York State. Until such time

273

as a review of the population status of shortnose sturgeon relative to the
Hudson River has been completed, this species should receive all due considera-
tion as an endangered species. "Uncommon" might be a more accurate character-
ization of the occurrence of shortnose sturgeon in the Hudson Estuary.

page 21 - second paragraph makes reference to the participants in the establishment
of the Hudson River Foundation for Science and Environmental Research Inc. The
Power Authority of the State of New York should be included among contributions
to the endowment fund.

page 29 - fourth paragraph refers to the surface area of the Hudson Estuary as
approximately 82,000 acres. DEC staff has determined a surface area approximately
25 percent smaller.

/ish to thank you for an opportunity to review and comment on this proposal. Should
j have any questions, please do not hesitate to contact me.

Sincerely,

Bruce D. Shupp

Chief, Bureau of Fisheries

State University of New York

#

College at New Paltz
NewPaltz, New York 12561

-■ 1 1

August 3, 1982

Dr. Richard J. Podgorny
U.S. Office of Coastal Zone Management
3300 Whitehaven Street, N.W.
Washington, D.C. 20235

Dear Dr. Podgorny:

After carefully reviewing the Draft E.I.S. regarding the
Hudson River Estuarine Sanctuary proposal, I applaud the
U.S. Dept. of Commerce, NOAA, Office of CZM and the State of
New York DEC for their efforts and for the succinct, yet
thorough preparation of this document.

I have nothing to add to the document. I would only say
that the establishment of this estuarine sanctuary would be
only positive, no groups of the private sector would
experience any hardships and the educational aspects should
be most beneficial to private citizens, nature clubs and
educational institutions in the Mid-Hudson area.

Sincerely,

Selden J. Spericer
Professor of Biology

SJS:vla

275

PART VIII: APPENDICES

Page

Appendix 1: Bibliography and Literature Cited 276

Appendix 2: Existing Jurisdiction Involving the Proposed

Hudson River Estuarine Sanctuary 285

Appendix 3: List of Fishes Reported from the Proposed
Estuarine Sanctuary Sites on the Hudson
River 290

Appendix 4: Birds Reported In or Close to Proposed

Sanctuary Sites 295

Appendix 5: Selected Data From New York Mid-Winter

Area Waterfowl Survey 303

Appendix 6: Tidal Vascular Plants of the Proposed

Sanctuary Sites 305

Appendix 7: Estuarine Sanctuary Guidelines, 1974 and 1977 317

Appendix 8: Memorandum of Understanding Among Five New York

State Agencies 328

Appendix 9: Summary of Workshop to Generate Ideas on Research

and Education 337

276

APPENDIX I

Bibliography and Literature Cited

277

Appendix 1. Bibliography and 1 iterature cited. The annotations S

(Stockport), T (Tivoli), I (Iona), and P (Piermont) indicate
references specifically treating the indicated sites.

Aldrich, J. W. 1979. A brief account of Cruger's Island, Maydalen Island, the
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Anonymous, nd. Bear Mountain Trailside Museums, Nature Trails & Zoo.
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. 1968. The Bear Mountain Trailside Museums and Nature Trails.

Palisades Interstate Park Commission. Trailside Museums, Bear Mountain
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_. 1975. Hudson River Recreationway: Master Development Plan for
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_. 1977? Bear Mountain Trailside Museums, Nature Trails & Zoo.

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brochure. I

_. 1979. 2 river island parksites planned. Hudson Register-Star, 19
July: Al , back page. S

. 1980a. The Tivoli Bays. Hudson River Heritage News 5(2):4-5. T

_. 1980b. Bear Mountain State Park. Iona Island - Program of utilization.
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. 1981. Tidal marsh saved. Land Lines (Lower Hudson Chap. Nature

Conservancy), spring:!. P

Arbib, R. S., Jr., O.S. Pettingill, Jr. and S. H. Spofford. 1966. Enjoying
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I, P

Barlow, M. 1981. Company giving pier to Piermont. Bird's-eye view of Piermont
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Boyle, R. H. 1969. The Hudson River; a natural and unnatural history.
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278

Brown, D. 1981. Ti vol i Bay to be kept for nature. Albany Times-Union,
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Carr, W. H. 1940. Birds of Bear Mountain Park; A check-list. Bear Mountain
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Cinquemani, L. J., W. S. Newman, J. A. Sperling, L. F. Marcus and R. R. Pardi.
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Clarke & Rapuano, Inc. 1976. Iona Island Bear Mountain State Park entrance
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Coastal Zone Management Study Program. 1977a. Final report on Geographic
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New York Department of Environmental Conservation, Division of Land
Resources and Forest Management, Coastal Zone Management Study Program,
Albany, NY. S, T, I, P

. 1977b. Final report on significant coastal related fish and wildlife

habitats of New York State (Task 7.3). New York State Department of
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. 1968. Supplement to Birds of Rockland County and the Hudson Highlands.

27 p. Rockland Audubon Society, West Nyack, NY. I, P

_. Birds of Rockland County N.Y. and the Hudson Highlands, 1844-1976,
220 p.

279

. 1976. Rockland County's on-again, off-again resting places for

shorebi rds. Linnaean News-Letter 29(7): 1-3. I, P

_. 1981a. The endless change in a local checklist. Linnaean News-Letter
34(7-8):l-2. I, P

. 1981b. The Piermont Pier and marsh. The Observer 34(2) :1 -2. P

Dovel , W.L. 1981. The Endangered Shortnose Sturgeon of the Hudson Estuary;
Its Life History and Vulnerability to the Activities of Man. Final
Report. Federal Energy Regulatory Commission Contract No. DE-AC
39-79 RC-10074. 139 pages.

Drennan, S. R. 1981. Where to find birds in New York State; the top 500
sites. Syracuse University Press, 499 p. S, T, I, P

Duch, T. M. 1976. Aspects of the feeding habits of Viviparus georgianus.
Nautilus 90(1 ) :7-l 0. T

Dutchess County Environmental Management Council Significant Areas

Committee. In press. Significant areas. _In_ Natural Resources of Dutchess
County, New York. Dutchess County Department of Planning, Poughkeepsie,
NY. T

Faulds, C. A., ed. 1969. The Piermont study. Rockland Community College
(Suffern, NY) and the Hudson River Valley Commission, np. P

Ferren, W. R., Jr., and A. E. Schuyler. 1980. Intertidal vascular plants

of river systems near Philadelphia. Proceedings of the Academy of Natural
Sciences of Philadelphia 132:86-120.

Fitzpatrick, J. F., Jr. and J. F. Pickett, Sr. 1980. A new crawfish of
the genus Orconectes from eastern New York (Decapoda: Cambaridae).
Proceedings of the Biological Society of Washington 93:373-382. S

Foley, D. D. and R. W. Taber. 1951. Lower Hudson waterfowl investigation.
Pittman-Robertson Project 47-R. New York State Conservation Department,
Albany, NY. 796 p. S, T, I, P

Funk, 1967. The Hudson; archeological sites. A report on archeological
resources in the Hudson River Valley. State of New York Hudson River
Valley Commission, Iona Island, Bear Mountain, NY. 19 p. S, T, I

. 1976. Recent contributions to Hudson Valley prehistory. New York

State Museum Memoir 2, 325 p. S, T, I

Garlinghouse, H. M. 1976. William Seward Teator (1860-1930). Nautilus
90(4): 148-1 49. T

Gleason, H. A. and A. Cronquist. 1963. Manual of vascular plants of

northeastern United States and adjacent Canada. Van Nostrand, Princeton,
NJ. 861 p.

Goldhammer, A. 1981. Canoeing the Hudson's marshes. Clearwater Navigator
12(6): 4-6

280

Goldring, W. 1943. Geology of the Coxsackie quadrangle, New York; with a
chapter on glacial geology by J. H. Cook. New York State Museum Bulletin
322, 374 p. + maps. S

Griscom, L. 1933. The birds of Dutchess County, New York. Transactions of
the Linnaean Society of New York 3, 184 p. T

Hall, A. J. 1978. The Hudson: "That river's alive". National Geographic
1 53(1 ) : 62-89. T, P

Hickey, J. J. 1969. Peregrine falcon populations; their biology and decline.
University of Wisconsin Press, Madison. 596 p. I, P

Hudson River Research Council. 1980. Results of Hudson River Field Weeks
April 1977 and August 1978. Water temperature, conductivity, dissolved
oxygen, and total suspended solids at spring high flow and summer low
flow. HRRC, Bronx, NY. 50 p. S, T, P

Jorgenson, S. E. 1980. Some international values of wetlands. Parks 5(3) : 5-8

Key, M. C. 1981. Fulvous whistling duck. Wings over Dutchess 22(5):8. T

Kiviat, E. 1973. Down along the cove. Bard Review, spring:21-23. T

. 1974. A fresh-water tidal marsh on the Hudson, Tivoli North Bay. Paper 14,

33 p. j_n Third Symposium on Hudson River Ecology. Hudson River Environmental
Society, Bronx, NY. T

. 1976a. Goldenclub, a threatened plant in the tidal Hudson River. Paper 21,

13 p. _i_n Fourth Symposium on Hudson River Ecology. Hudson River Environmental
Society, Bronx, NY. S, T

. 1976b. (Notes on Hudson River Tidal Marsh Workshop, 2 June 1976 at Bard

College, sponsored by Hudson River Environmental Society). Currents (HRES)
6(2): 1, (3): 3-4.

. 1977. Reptiles and amphibians of the Hudson Estuary. North River Navigator

(Hudson River Sloop Clearwater) 8(9):4-5.

_. 1978. Hudson River east bank natural areas, Clermont to Norrie. Nature
Conservancy, Arlington, VA 115 p. T

_. 1979a. Hudson Estuary shore zone: ecology and management. Master's
thesis (unpubl.), State University College at New Paltz, NY. 159 p. T, I, P

_. 1979b. Cattail marshes, birds, good water, and people. Dutchess Life
8:13. T

_. 1980a. A Hudson River tidemarsh snapping turtle population. Transactions
"of the Northeast section, Wildlife Society 37:158-158. T

. 1980b. Low tides and turtle trails. Hudson Valley 9(5):27-29.T

281

_. 1931a. Hudson River Estuary shore zone annotated natural history
bibliography with index. Scenic Hudson, Poughkeepsie, NY. 76 p. S, T, I, P

_. 1981b. Profile of the Hudson. Hudson Valley 9(9) :24-28. T, I, P

. 1981c. Profile of the Hudson: the air. Hudson Valley 9(12) : 39-41 . T

_. 1981d. A Hudson River fresh - tidal marsh: management planning. Restoration
and Management Notes 1(1): 14-15. T

. 1982. Eastern bluebird remote natural nest sites. Kingbird 32(1): 6-8.1

. and F. Dunwel 1 . 1981. The marshes stand watch. Hudson Valley 10(5):

33-37. S, T, I, P

Lehr, J. H. 1967a. The plants of Iona Island; a field report. Sarracenia
(New York Botanical Garden) 11:35-38. I

. 1967b. The marshes at Piennont, New York; a field report. Sarracenia

("New York Botanical Garden) 11:31-34. P

McKeon, W. Ca. 1974. An appraisal of the current status of marshes or wetland
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McVaugh, R. 1958. Flora of the Columbia County area, New York. New York State
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Meyer, G. 1980. The ecological perspective. Piermont Newsletter 14(1 ):7. P

Mitchell, R. S., C. J. Sheviak and J. K. Dean. 1980. Rare and endangered
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38 p. T, I

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. 1937. Aquatic vegetation of the lower Hudson area. Supplement, 26th

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Muenscher, W. C. 1944. Aquatic plants of the United States. Cornell University
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282

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570. I

New York State Department of Environmental Conservation and United States
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17:386. P

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283

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284

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285

APPENDIX 2

Existing Jurisdiction Involving the Proposed Hudson River

Estuarine Sanctuary

28fi

Appendix 2. Existing Jurisdiction Involving the Proposed Hudson River
Estuarine Sanctuary

AGENCY

Federal

JURISDICTION

LEGISLATION (if any)

Army Corps of Engineers

dredging, filling,
dumping, hazards to
navigation, wetlands
in river and larger
tributaries

Sec. 404 of Clean Water
Act, Rivers & Harbors Act,
Section 10, as amended

Dept. of Commerce
Office of Coastal
Zone Management

National Marine
Fisheries Service

Sea Grant Program

Dept. of the Interior:
Fish & Wildlife
Service

National Park Service

Dept. of Transportation
Coast Guard

oversight of National
Estuarine Sanctuary
Program

marine fishery resources,
endangered species,
marine mammal s

research, education,
and conservation in
the coastal zone

migratory birds, endan-
gered species, marine
mammals, interstate
commerce of organisms

Natl . Register of His-
toric Places, Natl .
Natural Landmarks, Natl.
Trust for Historic
Preservation

maintenance of navigable
waters, shipping, small
craft, aids to naviga-
tion search and rescue

Coastal Zone Management
Act, as amended

Fishing Conservation and
Management Act of 1976,
Fish and Wildlife Coordinate
Act of 1934, Endangered
Species Act of 1972,
Commercial Fisheries Researc
and Development Act of 1964,
Anadromous Fish Conservation
Act of 1965, all as amended

Public Law 94461

Migratory Bird Treaty
Act, Endangered Species
Conservation Act, Lacey
Act, Marine Mammal
Protection Act, all as
amended

Historic Preservation
Act, as amended

14 USC 2, Primary
Responsibilities of the
Coast Guard

AGENCY

State (cont.):

Environmental Protection
Agency

Nuclear Regulatory
Commission

Consolidated Rail
Corporation

287
JURISDICTION

ai r and water qual i ty
guidelines, solid waste
and toxi c material s
guidelines, spills
noise pollution, PCB
reclamation demonstration,
environmental review of
projects

oversight over operation
Indian Point power plants

right-of-way improvement
and maintenance

LEGISLATION (if any)

Clean Ai r Act, Clean
Water Act, TOSCA, RCRA,
FIFRA, Superfund, NEPA,
all as amended

Energy Reorgani-
zation Act

State:

Department of Environ-
mental Conservation

lead agency in Hudson River
Estuarine Sanctuary Program,
landowner at Tivoli Bays &
Piermont, fish & game, pro-
tected animals, collecting
and marki ng 1 icenses,
freshwater and tidal wet-
lands, water and air quality
solid water & toxic substances
pesticides, mining, scenic
areas, project review. The
Heritage Task Force for
the Hudson River Valley, Inc.

Envi ronmental
Conservation Law
and regulations
promul gated

thereunder (as amended)
including the Fish &
Wil dl i fe Law, Water
Resources Law,
Freshwater Wetlands
Act, Tidal Wetlands
Act, Resource
Conservation and
Recovery Act, and
Wild, Scenic, and
Recreational River
System, State
Envi ronmental
Quality Act

Department of Commerce

tourism developement

Tourist Promotion
Act

Department of Health

Department of State

food quality (e.g., fish)

cooperating agency in
Hudson River Estuarine
Sanctuary Program,
coastal management

Public Health
Law

Waterfront
Revi tal ization
& Coastal Re-
sources Act

AGENCY

State (cont.) :

Department of
Transportation

Office of General
Services

Office of Parks,
Recreation and
Hi storic
Preservation

Palisades Interstate
Parks Commission

State Energy Office
Public Service

County:

Departments of Health

Environmental Manage-
ment Councils

Highway Departments

288

JURISDICTION

navigation channel ,
spoil disposal, roads,
bridges

cooperating agency in
Hudson River Estuarine
Sanctuary Program, landowner
at Stockport and Ti vol i

cooperating agency in
Hudson River Estuarine
Sanctuary Program, land-
owner at Stockport, park
land management, historic
preservation, promotion
and regulation of pleasure
boating

cooperating ageny in Hudson
River Estuarine Sanctuary
Program, landowner at
Piermont & Iona, management
of the interstate park

energy policy

energy facility
siting and regulations

facility safety and
sanitation, water supply,
landfills, pest control

advice to legislatures,
natural resource inven-
tories, public information

county roads

LEGISLATION

Transportation
Law

Public Lands Law,
Art. 6

Parks, Recreation,
and Historic
Preservation Law, as
amended

Parks, Recreation and
and Historic Preservation
Law, as amended

Energy Law, as amended
Public Service Law

General Municipal Law,

NYCR&R, as amended

laws of various counties

General Municipal Law
(as above)

(as above)

289

AGENCY
County (cont.) :
Planning Departments

Town:

Planning, Zoning, and
Conservation Boards &
Commissions

JURISDICTION

review of Federal spending
(A-95), planning recommen-
dations and coordination of
planni ng activities

planning, zoning, advice
to town boards on environ-
mental issues, natural
resource inventories,
conformance to existing
laws

LEGISLATION

(as above)

(as above)

also town ordinances

including zoning

ordinances*

Highway Departments

maintenance of town roads
and town landfills

Village:
Piermont

owner of pier, portion of
marsh within its jurisdiction

See under Town

Tivoli

small portion of Tivoli Bay
within its jurisdiction

See under Town

*Zoning classifications for the four Proposed Estuarine Sanctuary areas:

Piermont - Village of Piermont - - - Use by special permit from Village
Town of Orangetown - - - Residential, 2 acre minimum

Iona - wholly within the Palisades Interstate Park

Tivoli - Town of Red Hook - - - Agricultural (uplands), Land Conservation

(wetlands and Cruger Island)
Vil lage of Tivoli

Stockport - no zoning ordinances

290

APPENDIX 3

List of Fishes Reported From the Proposed Estuarine Sanctuary
on the Hudson River, New York

291

Appendix 3. List of fishes reporte
sites on the Hudson Ri
Classification column
to the estuary followi
that enter brackish wa
catadromous species, D
nursery species, and F
under the proposed san
in that area and the s
listed although severa
species.

d from the proposed Estuarine Sanctuary
ver, New York. Letters in the Ecological
refer to the relationship of the fish
ng McHugh (10): A=Freshwater fishes
ter, B=Truly estuarine species, C=Anadromous/
=Seasonal adult marine species, E=Estuarine
=Adventitious marine species. Numbers listed
ctuary areas indicate presence of the species
ource of the data; only one source is
1 sources may have reported that

Common
name

Scientific
name

Ecological
Classification (EC)

Sites

S T I P

PETROMYZONTIDAE

American brook lamprey
Sea lamprey

ANGUILLIOAE
American eel

Lampetra appendix
Petromyzon marinus

Angui 1 la rostrata

A
C

8 12 5

CLUPEIDAE
Blueback herring
Alewi fe
American shad
Menhaden

ENGRAULIDAE

Bay anchovy

SALMONIDAE

Alosa aesti val is
A. pseudoharengus
A. sapidissima
Brevoortia tyrannus

Anchoa mitchilli

1 2 4
9 1
9 2 7

7

Rainbow trout
Brown trout
Brook trout

Sal mo gai rdneri A
S. trutta A

Salvelinus fontinalis A

1
9 1

1

OSMERIDAE

Rainbow smelt
UMBRIDAE

Osmerus mordax

9 1

Central mudminnow
Eastern mudminnow

ESOCIDAE

Redfin pickerel
Northern pike
Chain pickerel

Umbra limi

U . pygmaea

Esox americanus
E_. lucius
E. niger

A
A

A
A
A

5

3 12 6
9

1

292

Common
name

Sci entific
name

Sites
S T I

CYPRINIDAE

Goldfish
Carp

Cutl i ps minnow
Eastern silvery minnow
Golden shiner
Satinfin shiner
Bridle shiner
Common shiner
Spottail shiner
Spotfin shiner
Blacknose dace
Creek chub
Fallfish

CATOSTOMIDAE

White sucker
Creek chubsucker
Northern hogsucker

ICTALURIDAE

White catfish
Yel low bul 1 head
Brown bullhead

GADIDAE

Atlantic tomcod

FUNDULIDAE

Banded kil li fish
Mummi chog

ATHERINIDAE

Tidewater silversides
Waxen siversides

GASTEROSTEIDAE

Fourspine stickleback
Threespine stickleback

Carassius auratus

A

4

1

2

Cyprinus carpio

A

8

1

2

Exoglossum maxillingua

A

1

Hybognathus regius

A

3

1

Notemigonus crysoleucas

A

3

1

2

Notropis analostanus

A

}

N. bifrenatus

A

3

1

N. cornutus

A

3

1

N. hudsonius

A

8

1

8

N. spilopterus

A

3

Rhinichthys atratulus

A

1

Semotilus atromacul atus

A

1

S. corporalis

A

3

1

Catostomus commersoni

Erimyzon oblongus
Hypentel ium ni gricans

Ictalurus catus

K natal is
I. nebulosus

Microgadus tomcod

A

4 1

2

5

A

6

A

3 1

A
A
A

4 1

4 1 2

2 7

Fundulus diaphanus

A

8

8

1

7

F. heteroclitus

B

8

1

8

8

Meni dia beryl 1 ina E 7

M. menidia E 7

Apeltes quadracus B 8 18 7
Gasterosteus aculeatus B 2

11

293

Common
name

Scientific
name

Sites
S T I

SYNGNATHIDAE

Northern pipefish

PERCICHTHYIDAE

White perch
Striped bass

CENTRARCHIQAE

Rock bass

Bl uespotted sunfish

Redbreast sunfish

Pumpki nseed

Wannouth

Bluegill

Smal Imouth bass

Largemouth bass

Black crappie

PERCIDAE

Tessel lated darter
Yellow perch

POMATOMIDAE

Bluef ish

ACIPERSERIDAE

Shortnose Sturgeon

SCIAENIDAE

Weakfish

Syngnathus fuscus

Morone americana
M. saxatil is

Etheostoma olmstedi

Perca flavescens

Pomotomus saltatrix

Acipenser brevi rostrum

Cynoscion regal is

B
C

A

A

9 1

4 1

8 8
8 7

Ambloplites rupestris

A

1

Enneacanthus gloriosus

A

2

Lepomis auritus

A

3

1

8

8

L. gibbosus

A

3

1

2

6

L. gulosus

A

1

L. macrochirus

A

9

1

7

Micropterus dolomieui

A

9

1

M. salmoides

A

4

1

2

7

Pomoxis ni gromaculatus

A

1

3 12 5
3 1 8

S T I P

SOURCES

1. Kiviat, E. In press. Natural history of the fish fauna of Tivoli Bays.

Hudson River Fisheries Symposium, Hudson River Environmental
Society. (Includes a few species found in nontidal waters close
to the proposed site.

2. Orth, J. D. ca. 1965. Vertebrates of Iona Island and vicinity.

Bear Mountain State Park Trailside Museums. 17 p.

294

3. Greeley, J. R. 1937. Fishes of the area with annotated list, pp. 45-85.

In. Anonymous. A biological survey of the lower Hudson watershed.

In. Anonymous. A biological survey of the lower Hudson watershed.

Supplement to 26th Annual Report, New York Conservation Department,
Part II.

4. New York State Department of Environmental Conservation, 1971 Stream

Survey.

5. New York State Department of Environmental Conservation, Sparkill

Creek Stream Surveys.

6. Bailey, R. M. 1936. Stream survey records. New York State Department

of Environmental Conservation.

7. Smith, C. L. Stream survey records, American Museum of Natural History,

8. Hudsonia Limited. Miscellaneous collections, 1981 and 1982.

9. Observations by Everett Nack (Claverack, New York), Salvatore Cozzolino

(Department of Environmental Conservation), or Louis Gerrain (DEC).

10. McHugh, J. L. 1967. Estuarine Nekton, pp 581-620.

In. G. H. Lauff (Ed.) Estuaries. AAAS Publ . No. 83, Washington, D.C.

11. Letter from Ruth Rehfus (National Marine Fisheries Service) to

Richard B. Mieremet, dated June 4, 1982.

12. Tom Lake, personal communication.

13. Texas Instruments, Inc., beach seine survey, beach 99 (Cruger Island).

295

APPENDIX 4
Birds Reported In or Close to Proposed Sanctuary Sites

296

Appendix 4. Birds re

ported

in or close to proposed sanctuary sites

«

Sources

of data

are listed at end of this

appendi x.

Common

Scienti fie
name

Sites

name

S

T

I

P

Common loon

Gavia immer

S

T

I

P

Red-throated loon

G. stellata

s

T

I

P

Red-necked grebe

Podiceps grisegena

S

T

I

Horned grebe

P. auritus

S

T

I

P

Pied-bil led grebe

Podilymbus podiceps

s

T

I

P

Gannet

Morus bassanus

T

Great cormorant

Phalacrocorax carbo

P

Double-crested cormorant

P. auritus

s

T

I

P

Great blue heron

Ardea herodias

S

T

I

P

Green heron

Butorides striatus

s

T

I

P

Little blue heron

Florida caerulea

T

I

P

Cattle egret

Bubulcus ibis

Great egret

Casmerodius albus

s

T

I

P

Snowy egret

Egretta thula

T

I

P

Loui siana heron

Hydranassa tricolor

P

Black-crowned night h

eron

Nycticorax nycticorax

s

T

I

P

Yellow-crowned night

heron

Nyctanassa violacea

P

Least bittern

Ixobrychus exil is

T

I

P

American bittern

Botaurus lentiginosus

S

T

I

P

Glossy ibis

Plegadis falcinellus

T

P

Mute swan

Cygnus olor

S

I

P

Whistling swan

Olor columbianus

T

Canada goose

Branta canadensis

S

T

I

P

Brant

B. bernicla

s

T

I

P

White-fronted goose

Anser albifrons

P

Snow goose

Chen caerulescens

S

T

I

P

Ful vous whistl i ng due

k.

Oendrocygna bicolor

T

Mallard

Anas platyrhynchos

s

T

I

P

Black duck

A. rubripes

S

T

I

P

Gadwal 1

A. strepera

s

T

I

P

Pintail

A. acuta

s

T

I

P

Green-wi nged teal

A. crecca crecca

s

American green-winged

teal

A. crecca carolinensis

s

T

I

P

Bl ue-wi nged teal

A. discors

s

T

I

P

European wigeon

A. penelope

T

American wi geon

A. americana

s

T

I

P

Northern shoveler

A. clypeata

s

T

Wood duck

Aix sponsa

s

T

I

Redhead

Aythya americana

s

T

I

Ri ng-necked duck

A. collaris

s

T

I

P

Canvasback

A. valisineria

s

T

I

P

Greater scaup

A. marila

s

T

I

P

Lesser scaup

A. affinis

s

T

I

P

Common gol deneye

Bucephala clangula

S

T

I

P

Bufflehead

B. albeola

s

T

I

P

Oldsquaw

Clangula hyemalis

s

T

I

P

White-winged scoter

Melanitta deglandi

s

T

I

P

297

Common
name

Surf scoter

Black scoter

Ruddy duck

Hooded merganser

Common merganser

Red-breasted merganser

Turkey vulture

Goshawk

Sharp-shinned hawk

Cooper's hawk

Red-tailed hawk

Red-shouldered hawk

Broad-winged hawk

Rough-legged hawk

Golden eagle

Bald eagle

Marsh hawk

Usprey

Gyrfal con

Peregrine falcon

Merli n

American kestrel

Ruffed grouse

Ring-necked pheasant

Gray partridge

King rail

Clapper rail

Virginia rail

Sora

Common gallinule

American coot

Semipalmated pi over

Kil ldeer

American golden plover

Black-bel lied plover

Ruddy turnstone

American woodcock

Common snipe

Upland sandpiper

Spotted sandpi per

Solitary sandpiper

Willet "

Greater yel lowlegs

Lesser yel lowlegs

Red knot

Pectoral sandpiper

White-rumped sandpiper

Least sandpiper

Scienti fie

name

S

T

I

P

M. perspici llata

s

T

I

P

M. nigra

s

T

I

Uxyura jamaicensis

T

I

P

Lophodytes cucullatus

S

T

I

P

Mergus merganser

s

T

I

P

M. serrator

s

T

I

P

Cathartes aura

s

T

I

P

Accipiter gentil is

s

T

I

P

A. striatus

s

T

I

P

A. cooperii

s

T

I

P

Buteo jamaicensis

s

T

I

P

B. 1 ineatus

s

T

I

P

B. platypterus

s

T

I

P

B. lagopus

s

T

I

P

Aquila chrysaetos

T

I

P

Haliaeetus leucocephal us

S

T

I

P

Circus cyaneus

s

T

I

P

Pandion hal iaetus

s

T

I

P

Falco rusticolus

T

F. peregrinus

T

I

P

F. columbarius

T

I

P

F. sparverius

s

T

I

P

Bonasa umbel lus

s

T

I

Phasianus colchicus

s

T

I

P

Perdix perdix

T

Rail us elegans

s

T

I

P

R. longirostris

P

R. limicola

s

T

I

P

Porzana Carolina

s

T

I

P

Gallinula chloropus

s

T

I

P

Fulica americana

s

T

I

P

Charadrius semipalmatus

T

P

C. vociferus

S

T

I

P

Pluvialis dominica

T

P. squatarola

T

P

Arenaria interpres

T

P

Phi lohela minor

S

T

I

P

Capella gall inago

s

T

I

P

Bartramia longicauda

I

P

Actitis macul aria

S

T

I

P

Tringa solitaria

s

T

P

Catoptrophorus semipalmatus

P

Tringa melanoleuca

S

T

I

P

T. flavipes

S

T

I

P

Calidris canutus

P

C. melanotos

S

T

P

C. fuscicollis

P

C. minutil la

s

T

P

298

Common
name

Scienti fie
name

S T I P

Dunl i n

Short-billed dowitcher

Long-billed dowitcher

Semiplamated sandpiper

Western sandpiper

Sanderli ng

Northern phalarope

Glaucous gul 1

Iceland gul 1

Great black -backed gull

Herring gull

Ri ng- bi 1 led gul 1

Laughing gull

Bonaparte' s gul 1

Black-legged kittiwake

Forster's tern

Common tern

Roseate tern

Sooty tern

Least tern

Royal tern

Sandwich tern

Caspian tern

Black tern

Rock dove

Mourning dove

Monk parakeet

Yellow-bil led cuckoo

Black-bil led cuckoo

Barn owl

Screech owl

Great horned owl

Snowy owl

Barred owl

Long-eared owl

Short-eared owl

Saw-whet owl

Whip-poor-wil 1

Common nighthawk

Chimney swift

Ruby-throated hummingbird

Belted kingfisher

Common flicker

Pileated woodpecker

Red-bellied woodpecker

Red-headed woodpecker

Yellow-bellied sapsucker

Hai ry woodpecker

£. alpina
Limnodromus

griseus

L_. scolopaceus
Cal idris pusil lus
£. mauri
C. alba

Lobipes lobatus
Larus hyperboreus
JL. glaucoides
L_. marinus
L. argentatus
L_. del awarensis
I. atri cilia
L_. philadel phia
Rissa tridactyla
Sterna forsteri
£. hi rundo
£. dougal 1 ii
S^. fuscata
_S. albifrons
S . "
S.
S.

maximus
sandvicensis

caspia
Chi idonias niger
Columbia 1 i via
Zenaida macroura
Myiopsitta monachus
Coccyzus americanus
£• erythrophthalmus
Tyto alba
Qtus asio
Bubo virginianus
Nyctea scandiaca
Strix varia
Asio otus
A^ flammeus
Aegolins acadicus
Caprimulgus vociferus
Chordei les minor
Chaetura pel agica
Archi lochus colubris
Megaceryle alcyon
Colaptes auratus
Dryocopus pileatus
Melanerpes carol inus
M. erythrocephalus
Sphyrapicus varius
Picoides villosus

S

T

P

T

P
P

T

P
P

T

P

I

P

s

I

P

s

I

S

T

I

P

S

T

I

P

S

T

I

P

T

I

P

s

T
T

I

P

P

s

T

I

P
P

I

P
P

S

P
P

T

P

s

T

I

P

S

T

I

P

S

T

I

P
P

s

T

I

P

s

T

I

P

s

T

s

T

I

P

S

T

I

P

T

I

T

P

s

P

s

T

s

T

I

P

s

T

I

P

S

T

I

P

s

T

I

P

S

T

I

P

S

T

I

P

s

T

I

P

s

T
T

P

T

I

P

s

T

I

P

299

Common

Scienti fie

name

name

S

T

I

P

Downy woodpecker

P. pubescens

S

T

I

P

Black-backed three-

toed woodpecker

P. arcticus

T

Eastern kingbird

Tyrannus tyrannus

S

T

I

P

Western ki ngbi rd

T. verticalis

T

Great crested flycatcher

Myiarchus crinitus

s

T

I

P

Eastern phoebe

Sayornis phoebe

S

T

I

P

Yellow-bellied flycatcher

Empidonax flaviventris

T

I

Acadian flycatcher

E. virescens

T

Willow flycatcher

E. traill ii

s

T

I

P

Alder flycatcher

E. alnorum

P

Least flycatcher

E. minimus

s

T

I

P

Eastern wood pewee

Contopus virens

s

T

I

P

Olive-sided flycatcher

Nuttallornis borealis

T

I

Horned lark

Eremophila alpestris

s

T

I

P

Tree swallow

Iridoprocne bicolor

S

T

I

P

Bank swallow

Riparia riparia

S

T

I

Rough-winged swallow

Stelgidopteryx ruficollis

s

T

I

P

Barn swal low

Hirundo rustica

S

T

I

P

Cliff swallow

Petrochel idon pyrrhonota

s

T

I

P

Purple martin

Progne subis

s

T

I

P

Bl ue jay

Cyanocitta cristata

S

T

I

P

Common raven

Corvus corax

T

I

Common crow

C. brachyrhynchos

S

T

I

P

Fish crow

C. ossifragus

s

T

I

P

Black-capped chickadee

Parus atricapillus

S

T

I

P

Boreal chickadee

P. hudsonicus

T

P

Tufted titmouse

P. bicolor

S

T

I

P

White-breasted nuthatch

Sitta carolinensis

S

T

I

P

Red-breasted nuthatch

S. canadensis

s

T

I

P

Brown creeper

Certhia familiaris

S

T

I

P

House wren

Troglodytes aedon

s

T

I

P

Winter wren

T. troglodytes

S

T

I

P

Carolina wren

Throyothorus ludovicianus

s

T

P

Long-billed marsh wren

Cistothorus palustris

S

T

I

P

Short-billed marsh wren

Cistothorus platensis

P

Mockingbird

Mimus polygl ottos

s

T

I

P

Gray catbird

Dumetella carolinensis

S

T

I

P

Brown thrasher

Toxostoma rufum

s

T

I

P

American robin

Turdus migratorius

S

T

I

P

Wood thrush

Catharus mustelina

s

T

I

P

Hermit thrush

C. guttata

s

T

I

P

Swainson's thrush

C. ustulata

s

T

I

P

Gray-cheeked thrush

C. minima

T

I

Veery

C. fuscescens

s

T

I

P

Eastern bluebird

Sial ia sial is

T

I

P

Blue-gray gnatcatcher

Polioptila caerulea

S

T

I

P

Golden-crowned kinglet

Regulus satrapa

s

T

I

P

Ruby-crowned kinglet

R. calendula

s

T

I

P

Water pipit
Cedar waxwing

Anthus spinoletta

s

T

I

P

Bombycilla cedrorum

s

T

I

P

300

Common

Scientific

name

name

S

T

I

P

Northern shrike

Lanius excubitor

T

P

Loggerhead shrike

L. ludovicianus

T

P

Starli ng

Sturnus vulgaris

S

T

I

P

White-eyed vireo

Vireo griseus

T

I

Yellow-throated vireo

V. flavifrons

s

T

I

P

Solitary vireo

V. solitarius

s

T

I

P

Red-eyed vireo

V. olivaceus

s

T

I

P

Philadelphia vireo

V. phil adel phicus

T

P

Warbling vireo

V. gilvus

s

T

P

Black-and-white warbler

Mniotilta varia

s

T

I

P

Prothonotary warbler

Protonotaria citrea

T

P

Worm-eating warbler

Helmitheros vermivorus

T

I

P

Golden-winged warbler

Vermivora chrysoptera

T

I

Bl ue-wi nged warbler

V. pinus

T

I

P

Tennessee warbler

V. peregrina

T

I

P

Orange-crowned warbler

V. celata

T

P

Nashvil le warbler

V. ruficapilla

T

I

P

Northern parula

Parula americana

T

I

P

Yel low warbler

Dendroica petechia

s

T

I

P

Magnolia warbler

D. magnolia

s

T

I

P

Cape May warbler

D. tigrina

s

T

I

Black-throated blue warbler

D. caerulescens

s

T

I

P

Yel low-rumped warbler

D. coronata

s

T

I

P

Black-throated green warbler

D. virens

s

T

I

P

Cerulean warbler

D. cerulea

s

T

I

Blackburnian warbler

D. fusca

s

T

I

P

Yellow-throated warbler

D. dominica

T

Chestnut-sided warbler

D. pensylvanica

s

T

I

P

Bay-breasted warbler

D. castanea

s

T

I

P

Blackpoll warbler

D. striata

s

T

I

P

Pine warbler

D. pinus

s

T

I

Prai rie warbler

D. discolor

s

T

I

P

Ovenbi rd

Seiurus aurocapillus

s

T

I

P

Northern waterthrush

S. noveboracensis

s

T

I

P

Louisiana waterthrush

S. motacilla

s

T

I

P

Kentucky warbler

Oporonis formosus

T

P

Connecticut warbler

0. agilis

T

Mourning warbler

0. Philadelphia

T

Common yellowthroat

Geothlypis trichas

s

T

I

P

Yellow-breasted chat

Icteria virens

T

I

P

Hooded warbler

Wilsonia citrina

T

I

P

Wilson's warbler

W. pusilla

s

T

I

P

Canada warbler

W. canadensis

s

T

I

P

American redstart

Setophaga ruti cilia

s

T

I

P

House sparrow

Passer domesticus

s

T

I

P

Bobolink

Dolichonyx oryzivorus

s

T

I

P

Eastern meadowlark

Sturnel la magna

s

T

I

P

Yellow-headed blackbird

Xanthocephalus xanthocephal us

T

301

Common
name

Red-winged blackbird

Orchard oriole

Northern oriole

Rusty blackbird

Common grackle

Brown-headed cowbird

Scarlet tanager

Summer tanager

Cardi nal

Rose-breasted grosbeak

Slue grosbeak

Indigo bunting

Evening grosbeak

Purple finch

House finch

Pine grosbeak

Hoary redpol 1

Common redpoll

Pine siskin

American goldfinch

Red crossbi 1 1

White-winged crossbill

Rofous-sided towhee

Savannah sparrow

Grasshopper sparrow

Henslow's sparrow

Sharp-tailed sparrow

Seaside sparrow

Vesper sparrow

Lark sparrow

Dark-eyed junco

Tree sparrow

Chipping sparrow

Field sparrow

White-crowned sparrow

White-throated sparrow

Fox sparrow

Lincoln's sparrow

Swamp sparrow

Song sparrow

Lapland longspur

Chestnut-col lard longspur

Snow bunting

Scienti fie

name

S

T

I

P

Agelaius phoeniceus

S

T

I

P

Icterus spurius

s

T

P

I. galbula

S

T

I

P

Euphagus Carolina

s

T

I

P

Quiscalus quiscula

S

T

I

P

Molothrus aler

s

T

I

P

Piranga olivacea

s

T

I

P

P. rubra

T

Cardinalis cardinalis

S

T

I

P

Pheucticus ludovicianus

s

T

I

P

Guiraca caerulea

T

Passerina cyanea

s

T

I

P

Hesperiphona vespertina

s

T

I

P

Carpodacus purpureus

S

T

I

P

C. mexicanus

S

T

P

Pinicola enucleator

T

I

P

Acanthi s hornemanni

T

A. f 1 ammea

s

T

I

P

Carduelis pinus

s

T

I

P

C. tristis

S

T

I

P

Loxia curvi rostra

T

L. leucoptera

T

I

Pipilo erythrophthalmus

S

T

1

P

Passerculus sandwichensis

s

T

I

P

Ammodramus savannarum

T

P

A. henslowii

T

Ammospiza caudacuta

T

P

A. maritima

P

Pooecetes gramineus

T

I

P

Chondestes grammacus

P

Junco hyemalis

S

T

I

P

Spizella arborea

s

T

I

P

S. passerina

s

T

I

P

S. pusilla

s

T

I

P

Zonotrichia leucophrys

s

T

1

P

Z. al bi col lis

s

T

I

P

Passerella iliaca

s

T

I

P

Melospiza lincolnii

s

T

I

P

M. georgiana

S

T

I

P

M. melodia

S

T

I

P

Calcarius lapponicus

T

C. ornatus

T

Plectrophenax nivalis

s

T

I

P

302

a) Sources of data:

Stockport: Richard Guthrie, William Cook and Erik Kiviat. S (upper
case) i ndicates sight record of the site; s (lower case) indicates species
likely to occur based on records from nearby areas.

Ti vol i : from Kiviat (1978) (includes a few species recorded from areas near,
but not within, the proposed sanctuary boundaries); and Richard Gunthrie.

Iona: from Orth (1965).

Piermont: Robert Deed, includes species of land birds observed within about 50
yards of the landward edge of the marsh (landward boundary of the proposed
sanctuary site); all sight records. Short-billed marsh wren datum from
Joseph Hickey field notes.

3G3

APPENDIX 5

Selected Data From New York Mid-Winter
Aerial Waterfowl Survey

304

Appendix 5. Selected Data from New York Mid-Winter Aerial Waterfowl
Survey (Hudson Estuary only).3

Common Scientific 1978-1982 Counts

name name Average (Range)

Mute swan Cygnus olor 42(0-77)

Canada goose Branta canadensis 251(150-401)

Mallard Anas platyrhynchos 464(0-896)

Black duck A. rubripes 829(25-2172)

Canvasback Aythya valisineria 886(0-3585)

Scaups Aythya 7(0-15)

Common goldeneye Bucephala clangula 19(0-85)

Mergansers Mergus 230(84-550)

Unidentified 12(0-60)

Total (all species) 2740(259-7841)

T) New York State Department of Environmental Conservation data.

305

APPENDIX 6

Tidal Vascular Plants of the Proposed
Sanctuary Sites

306

Appendix 6.

Tidal wetlands and shallows vascular plants of the sites.
Sources of data are listed at end of this appendix.

Family

Common name

Scientific name

Sites

S T I P

ACERACEAE

Boxel der
Red maple
Sil ver maple

ALISMATACEAE

Water-plantain
Water-plantain
Arrowhead

Broadleaf arrowhead
Stiff arrowhead
Arrowhead
Subulate arrowhead

AMARANTHACEAE

Tidewater-hemp

ANACAROIACEAE

Smoke tree
Poison ivy
Poison sumac

AQUIFOLIACEAE

Wi nterberry

ARACEAE

Sweet flag
Jack-in-the-pulpit
Goldenclub
Arrow arum
Skunk cabbage
Swamp milkweed

BALSAMINACEAE

Jewel weed

Acer negundo

^\. rubrum

A. saccharinum

Al i sma sp.
^\. subcordatum
Sagittaria eatoni
S. latifolia

S_. rigida
S. spatulata
S. subulata

Amaranthus cannabinus

Continus coggygria
Rhus radicans
Rhus vernix

Ilex verticillata

Acorus calamus
Arisaema triphyllum
Orontium aquaticum
Peltandra virginica
Symplocarpus foetidus
Asclepias incarnata

Impatiens bi flora

S T

T I
S T

T

I
T I

T
T

T I

S T I P

T
T

T I

T
T
T
T
T
T

T I P

307

Family

Common name

Scientific name

Sites
S T I P

BETULACEAE

Speckled alder

Smooth alder

Yel low bi rch

Gray birch

American hornbeam

Hazel

Hop hornbeam

BORAGINACEAE
Forget-me-not

CAESALPINIACEAE
Wild senna

CALLITRICHACEAE
Water starwort

CAPRIFOLIACEAE

Bel 1 's honeysuckle
Elderberry
Arrow-wood
Nannyberry

CARYOPHYLLACEAE

Water chick weed
CELASTRACEAE

Bittersweet
CERATOPHYLLACEAE

Coontail
CLETHRACEAE

Sweet pepperbush

COMMELINACEAE
Day flower

Alnus rugosa
^\. serrulata
Betula lutea
_B. popul ifol ia
Carpinus caroliniana
Coryl us sp.
Ostrya vi rginiana

Myosotis sp.

Cassia hebecarpa

Callitriche verna

Lonicera x. bella
Sambucus canadensis
Viburnum dentatum
V. lentago

Stellaria aquatica

Celastrus scandens

Ceratophyl lum demersum

Clethra alnifolia

Commelina communis

I
T I

T
T
T
T
T

S T
S T I
T I

T

S T I

308

Family

Common name

Scientific name

Sites
S T I P

CHENOPODIACEAE

Spearscale

C0MP0SITAE

Giant ragweed

Aster

Aster

Beggar-ticks

Bur-marigold

Eaton's bur-marigold

Beggar-ticks

Estuary beggar-ticks

Beggar-ticks

Fi reweed

Fleabane

Joe Pye-weed

Boneset

Sneezeweed

Marsh elder

Climbing hempweed

Marsh fleabane

Greenhead conef lower

Groundsel

Goldenrod

Goldenrod

Cocklebur

CONVOLVULACEAE

Bindweed

Dodder

Dodder

CORNACEAE

Silky dogwood
Gray dogwood
Red-osier dogwood

CRASSULACEAE

Ditch stonecrop

Atriplex patula

Ambrosia trifida
Aster puniceus
_A. subulatus
Bidens bidentoides
J3. cernua
J3. eatoni
IB. frondosa
Bidens hyperborea
B^. laevis

Erechtites hieraci folia
Erigeron philadelphicus
Eupatorium maculatum
_E. perfol iatum
Helenium autumnale
Iva frutescens
Mikania scandens
Pluchea purpurascens
Rudbeckia laciniata
Senecio aureus
Sol idago sp.
S_. sempervi rens
Xanthium strumarium

Convol vul vus sepium
Cuscuta cephalanthi
C. gronovii

Cornus amomum
£. racemosa
C. stolonifera

Penthorum sedoides

T
T

T I

T
T
T
T
T

T
T

T
T

T I
I

T
T

S T I

T
T

309

Family

Common name

Scientific name

Sites
S T I P

CRUCIFERAE

Garlic-mustard
Wintercress
Bittercress
Cuckoo flower
Dame's rocket
Marshcress

CUCURBITACEAE

Balsam-apple
Bur-cucumber

CUPRESSACEAE

Arborvitae

CYPERACEAE

Alliaria officinalis

Barbarea vulgaris
Cardamine pensylvanica

C. pratense
Hesperis matronal is
Rorippa islandica

Echinocystis lobata
Sicyos angulatus

Thuja occidental is

T
T
T
T
T
T

Sedge

Ca

rex grayii

T

Sedge

C.

stipata

T

Tussock sedge

C.

stricta

T

Gali ngale

Cyperus rivularis

T

Gal i ngale

C.

strigosus

T

Three-way s

edge

Du

lichium arundinaceum

T

Spikerush

El

eocharis acicularis

S

Spikerush

E.

ovata

S

T

Spikerush

E.

diandra

s

T

i

Spikerush

E.

pal ustris

s

T

Bui rush

Sc

irpus acutus

s

Threesquare

S.

amencanus

s

T

I

P

Bui rush

S.

atrovi rens

T

Cylindrical

bul rush

S.

cyl indricus

I

P

River bulrush

S.

fluviatil is

s

T

P

Bui rush

S.

maritimus

P

Threesquare

S.

olneyi

I

P

Salt marsh

bul rush

S.

robustus

I

P

Bl untscale

bul rush

S.

smithii

s

T

I

Bui rush

S.

val idus

s

T

I

P

DIOSCOREACEAE

Wil d yam

Dioscorea villosa

T

ELATINACEAE

Waterwort

Elatine americana

s

T

310

Family

Common name

Scientific name

Sites
S T I P

EQUISETACEAE

Field horsetail
Horsetail

ERICACEAE

Highbush blueberry
ERIOCAULACEAE

Pipewort

FABACEAE

Fal se-indigo
Hog-peanut
Groundnut
Wild pea

FAGACEAE

Swamp white oak

GENTIANACEAE

Closed gentian
Floating heart

GRAMINEAE

Equisetum arvense
Equisetum fluviatile

Vaccinium corymbosum

Eriocaulon parkeri

Amorpha fruticosa
Amphicarpa bracteata
Apios americana
Lathyrus pal ustris

Quercus bicolor

Gentiana andrewsii

Nymphoides cordata

T
T

T
T
T
T

T
T

Redtop

Agrostis alba

P

Wood-reed

Cinna arundinacea

T

Saltgrass

Distichlis spicata

P

Barnyard grass

Echinochloa crusgalli

T

Water-mil let

E. walteri

T I

P

Wild- rye

Elymus virginicus

T

Rice cutgrass

Leersia oryzoides

T

White grass

L. virginica

S

T

Panic grass

Panicum capillare

S

Panic grass

P. dichotomiflorum

S

T

Panic grass

P. virgatum

P

Common reed

Phragmites communis

S

T I

P

Saltwater cordgrass

Spartina alterniflora

P

Tall cordgrass

S. cynosuroides

Saltmeadow cordgrass

S. patens

P

311

Family

Common name

Scientific name

Sites
S T I P

Freshwater cordgrass
Wild-rice

HALORAGACEAE

Watermilfoil
Watermilfoil
Eurasian watermilfoil

HYDROCARYACEAE

Water-chestnut
Waterweed
Waterweed
Water-celery

IRIDACEAE

Yel 1 ow i ri s
Blue flag

ISOETACEAE

Qui 1 lwort

JUNCACEAE

Rush

Black-grass
Path rush

LABIATAE

Stoneroot
Bugleweed
Bugleweed
Field mint
Skul leap
Skullcap
Hedge-nettle
Wood sage

S^. pectinata
Zizania aquatica

Myriophyl Turn sp.
M. humile
M_. spicatum

Trapa natans

El odea canadensis

E. nuttallii

Vallisneria americana

Iris pseudacorus
I . versicolor

Isoetes riparia

Juncus brachycephalus
J_. gerardi
J. tenuis

Collinsonia canadensis

Ly<

:opus amencanus

L.

europaeus

Me

ntha arvensis

Scutellaria galericu

lata

S.

lateriflora

St

achys palustris

Te

iicrium canadense

ST P

S T I P

S I

T
S T I

S T I

S T I

S T I

S T I

T I
T 1

T
T

T
T
T
T

T

T

312

Family

Common name

Scientific name

Sites
S T I P

LAURACEAE

Spicebush

LEMNACEAE

Common duckweed
Great duckweed

LENTIBULARIACEAE

Bladderwort

LILIACEAE

Day-lily
Canada lily
Greenbrier
Greenbrier

LOBELIACEAE

Cardinal flower
Great blue lobelia

LYTHRACEAE

Purple loosestrife
MALVACEAE

Swamp rose mal low

Lindera benzoin

Lemna minor
Spirodela polyrhiza

Utricularia vulgaris

Hemerocal 1 is fuVva
Lilum canadense
Smi lax herbacea
_S. hispida

Lobel ia cardinal is
L. siphilitica

Lythrum salicaria

Hibiscus palustris

S T

S T I P
S T

S I

T
T
T
T

T I
T

S T I P

T I P

MORACEAE

Hops

NAJADACEAE

Naiad

Naiad

Naiad

Muenscher's naiad

Curlyleaf pondweed

Pondweed

Leafy pondweed

Humulus lupulus

Najas flexi lis
N_. guadal upensis
N_. minor
N. muenscheri

Potamogeton crispus
P_. epi hydrus
P. foliosus

s

T

I

s

S

T

s

T

I

T

I

s

T

s

T

I

313

Family

Common name

Sites

Scientific name

s

T

I

P

s

T

s

I

P

s

T

I

P

s

s

T

I

s

T

s

T

I

Long-leaved pondweed

Sago pondweed

Pondweed

Pondweed

Pondweed

Flat-stemmed pondweed

Horned pondweed

NYMPHAEACEAE

Spatterdock
White water- 1 ily

OLEACEAE

Ash

Black ash
Red ash

ONAGRACEAE

Wil low herb

Water-purslane

Evening-primrose

ORCHIDACEAE

He! leborine

OSMUNDACEAE

Cinnamon fern
Interrupted fern
Royal fern

PINACEAE

White pine
PLANTAGINACEAE

Heartleaf plantain
PLATANACEAE

Sycamore

_P. nodosus

P_. pectinatus

P_. perfol iatus

P_. pusil 1 us

P. richardsoni i

P_. zosteri formis

Zannichel 1 ia palustris

Nuphar advena
Nymphaea sp.

Fraxinus sp.

IF. nigra

F. pennsyl vanica

Epi lobium glandulosum
Ludwigia palustris
Oenothera sp.

Epipactis hel leborine

Osmunda ci nnamomea
0. claytoniana
0_. regal is

Pinus strobus

Plantago cordata

Platanus occidentalis

S T I

T

S? T
S T

S T
S

I

I

T I

S T

314

Family

Common name

Scientific name

Sites
S T I P

POLYGONACEAE

Tearthumb

Smartweed

Japanese knotweed

Seabeach knotweed

Water-pepper

Swamp smartweed

Dotted smartweed

Tearthumb

Jumpseed

Dock

Water dock

POLYPODIACEAE

Ostrich fern
Sensitive fern
Marsh fern

PONTEDERIACEAE

Mud-plantain
Pickerel -weed
Water star-grass

PORTULACACEAE

Spring beauty

PRIMULACEAE

Fringed loosestrife

Moneywort

Water pimpernel

RANUNCULACEAE

Marsh-marigold

Virgin's bower

Crowfoot

Cursed crowfoot

Buttercup

Tall meadow-rue

Polygonum arifol ium

P_. caespitosum

P_. cuspidatum

P_. gl aucum

P_. hydropiper

P_. hydropiperoides

P_. punctatum

P_. sagittatum

P_. vi rginianum

Rumex mexicanus

R. verticillatus

Matteuccia struthiopteris
Onocl ea sensibil is
Thelypteris palustris

Heteranthera reniformis
Pontederia cordata
Zosterella dubia

Claytonia vi rginica

Lysimachia ci 1 iata
|^. nummularia
Samolus parviflorus

Caltha palustris
Clematis virginiana
Ranunculus abortivus
R. sceleratus
R. septentrionalis
Thai ictrum polygamum

T I
T

T

I
T I
T I
T

I
T

S T I
I

S T
S T I
S T I

T
T

T
T
T
T
T
T

I P

315

Family

Common name

Scientific name

Sites
S T I P

RHAMNACEAE

Buckthorn

ROSACEAE

Ni nebark
Swamp-rose
Meadowsweet
Hardhack

RUBIACEAE

Buttonbush

Bedstraw

Bedstraw

SALICACEAE

Cottonwood
Quaking aspen
Wil low
Crack willow
Black wil low
Basket willow
Heart-leaved wil low

SCROPHULARIACEAE

Turtlenead
Mudwort

False-pimpernel
Nuttall's micranthemum
Monkeyf lower

SOLANACEAE

Climbing nightshade

SPARGANIACEAE

Burreed
Big burreed

Rhamnus cathartica

Physocarpus opul ifol ius
Rosa palustris
Spi raea latifolia
S. tomentosa

Cephalanthus occidental is
Gal ium trifidum
G. palustre

Populus deltoides
P. tremuloides

Salix sp

S^ fragil is

S_. nigra

J5. purpurea

S. rigida

Chelone glabra
Limosel la subulata
Lindernia dubia
Micranthemum micranthemoides
Mimulus rinGens

Solanum dulcamara

Sparganium americanum
S. eurycarpum

T
T I

I

T I

T

T

I P

T

T I

T I

I

I

316

s

T I

P

s

T I

P

s

T I

Family

Sites
Common name Scientific name S T I P

TILLIACEAE

Narrowleaf cattail Typha angustifolia

Broadleaf cattail T. latifolia

Hybrid cattail T_. x.. glauca

TYPHACEAE

Basswood Ti 1 ia americana S T

ULMACEAE

Elm Ulmus sp.

American elm U_. americana S

UMBELLIFERAE

Angelica Angelica atropurpurea
Bulb-bearing water-hemlock Cicuta bulbifera

Water-hemlock C. maculata

Lilaeopsis Lilaeopsis chinensis

Mock bi shop weed Pti limnium capi 1 laceum

Water-parsnip Sium suave

URTICACEAE

False nettle Boehmeria cylindrica T I

Wood nettle Laportea canadensis S T

Clearweed Pilea fontana I

Clearweed P_. pumi la T

VIOLACEAE

Blue violet Viola sp. T

VITACEAE

Virginia-creeper Parthenocissus quinquefolia S T

T

T

I

T

P

P

T

I P

Sources of information: Buckley & Ristich (1976), Foley & Taber (1951),
Kiviat (1978) and unpublished data, Lehr (1967a, b), McVaugh (1958),
Muenscher (1935, 1937), John C. Orth (unpublished data at Bear Mountain
State Park Trailside Museums), Schuyler 1975 and Torrey (1931). These
records span approximately the last 50 years. Nomenclature has been
adjusted to conform with Gleason & Cronquist (1963) where practicable.

317

APPENDIX 7

National Estuarine Sanctuary Guidelines
1974 and 1977

318

■BSMK^W^.^

TUESDAY, JUNE 4, 1974
WASHINGTON, D.C.
Velum* 39 ■ Number 108

PART IV

DEPARTMENT OF
COMMERCE

National Oceanic and
Atmospheric Administration

Estuarinc Sanctuary Guidelines

319

RULES AND REGULATIONS

Title 15— Commerce and Foreign Trade

CHAPTER IX — NATIONAL OCEANIC AND
ATMOSPHERIC ADMINISTRATION, DE-
PARTMENT OF COMMERCE

PART 921— ESTURAINE SANCTUARY
GUIDELINES

The National Oceanic and Atmos-
pheric Administration (NOAA) on
March 7. 1974. proposed guidelines (15
CFR Part 921) pursuant to section 313 of
the Coastal Zone Management Act of
1972 (Pub. L. 92-583. 86 Stat. 1280).
hereinafter referred to as the "Act," for
the purpose of establishing the policy
and procedures for the nomination, se-
lection and management of estuarine
sanctuaries.

Written comments were to be sub-
mitted to the Office of Coastal Environ-
ment (now the Office of Coastal Zone
Management), National Oceanic and
Atmospheric Administration, before
April 8. 1974. and consideration has been
given those comments.

The Act recognizes that the coastal
zone Is rich In a variety of natural, com-
mercial, recreational. Industrial and
esthetic resources of Imnvrrllftiy and po-
tential value to the present and future
well-being of the nation. States are en-
couraged to develop and Implement
management programs to achieve wise
use of the resources of the coastal zone,
and the Act authorizes Federal grants to
the States for these purposes (sections
305 and 306) .

In addition, under section 312 of the
Act, the Secretary of Commerce Is
authorized to make available to a coastal
State grants of up to 50 per centum of
the cost of acquisition, development and
operation of estuarlne sanctuaries. The
guidelines contained In this part are for
grants under section 312 .

In general, section 312 provides that
grants may be awarded to States on a
matching basis to acquire, develop and
operate natural areas as estuarlne sanc-
tuaries In order that scientists and stu-
dents may be provided the opportunity
to examine over a period of time ecologi-
cal relationships within the area. The
purpose of these guidelines is to establish
the rules and regulations for Implemen-
tation of this program.

The National Oceanic and Atmospheric
Administration Is publishing herewith
the final regulations describing the pro-
cedures for applications to receive grants
for estuarlne sanctuaries under section
312 of the Act. The final regulations and
criteria were revised from the proposed
guidelines based on the comments re-
ceived. A total of fifty (50) States, agen-
cies, organizations and individuals sub-
mitted responses to the proposed sec-
tion 312 guidelines published in the
Fzdzkkl RiGiSTtH on March 7, 1974. Of
those responses received, eight (8) of-
fered no comment or were wholly favor-
able as to the nature and content of the
guidelines as originally proposed. Forty-
two (42) commentators submitted sug-
gestions concerning the proposed section
312 guidelines.

The following summary analyzes key
comments received on various sections of

the proposed regulations and presents
the rationale for the responses made.

Section 921.2 Definitions. Three com-
ments requested that the term "estuary"
be defined. Although the term is denned
la the Act and also in the regulations
dealing with Coastal Zone Management
Program Development Grants (Part 920
of this chapter) published November 29.
1973, It has been added to these regula-
tions and broadened slightly to Include
marine lagoons with restricted fresh-
water Input such as might occur along
the south Texas coast.

Two other comments requested that
the "primary purpose" referred to in
§ 921.2(b) be clearly defined. Although
elaborated upon In 5 921 J (a), for the
purpose of clarity this change has been
made.

Section 921.3 Objectives and Imple-
mentation. Several comments suggested
thaS the estuarlne sanctuary program
objectives were too narrowly defined and
specifically that they should be broad-
ened to Include the acquisition and pres-
ervation of unique or endangered estu-
aries for wildlife or ecological reasons.
Although the Act (section 302) declares
it the nation's policy to preserve, protect.
develop, and where possible, to restore or
enhance coastal resources, this Is per-
ceived to be achievable through State
actions pursuant to sections 305 and 305.
While It Is recognized that the creation
of an estuarlne sanctuary may In fact
serve to preserve or protect an area or
biological community, the legislative his-
tory of section 312 clearly Indicates the
estuarlne sanctuary program was not In-
tended to duplicate existing broad pur-
pose Federal preservation programs, such
as might be accommodated by use of the
Land and Water Conservation Fund Act.
TnatPflrfl. both In the Act as well as Its
legislative history, the objective Is de-
fined as preserving representative estu-
arlne areas for long-term research and
educational uses.

Three other comments suggested the
objectives of the program should be en-
larged to Include the restoration of en-
vironmentally degraded areas. This. too.
Is perceived to be a State requirement
separate from section 312. In addition.
adequate authority for restoring de-
graded water areas now exists (for ex-
ample. Pub. L. 92-500 In addition to
sections 302. 305 and 306 of the Act).
No significant additional benefit would
appear to result from declaring an area
an estuarlne sanctuary for the purposes
of restoration.

A few comments Indicated that the
examples of sanctuary use were too heav-
ily weighted toward scientific uses to
the exclusion of educational uses. Public
education concerning the value and ben-
efits of, and the nature of conflict within
the coastal zone, will be essential to the
success of a coastal zone management
program. The section has been changed
to reflect an appropriate concern for
educational use.

Some commentators suggested changes
In or additions to the specific examples
of sanctuary uses and purposes. These
examples were taken from the Senate

and House Committee Reports and are
considered sufficient to reflect the kinds
of uses Intended within an estuarine
sanctuary.

Several comments were received per-
taining -to 1 921.3(c) involving the re-
strictions against overemphasis of de-
structive or manipulative research. Ten
comments Indicated that the section was
too weak and would not provide sufficient
long-term protection for the sanctuary
ecosystem. Several commentators spe-
cifically recommended deleting the words
"would not normally be permitted" and
inserting In their place "will not be per-
mitted." In contrast, three respondents
Indicated that the potential use of estu-
arine sanctuaries for manipulative or
destructive research was too restricted.
and that these uses should be generally
permitted if not encouraged.

The legislative history of section 312
clearly Indicates that the intent of the
estuarine sanctuary program should be
to preserve representative estuarine
areas so that they may provide long-
term (virtually permanent) scientific
and educational use. The uses perceived
are compatible with what has been de-
fined as "research natural areas." In
an era of rapidly degrading estuarine
environments, the estuarine sanctuary
program will ensure that a representa-
tive series of natural areas will be avail-
able for scientific or educational uses
dependent on that natural character, for
example, for baseline studies, for use in
understanding the functioning of natural
ecological systems, for controls against
which the impacts of development in
other areas might be compared, and as
interpretive centers for educational pur-
poses. Any use. research or otherwise,
which would destroy or detract from the
natural system, would be inappropriate
under this program.

In general, the necessity of or benefit
from permitting manipulative or de-
structive research within an estuarine
sanctuary Is unclear. While there is a
legitimate need for such kinds of re-
search, ample opportunity for manipu-
lative or destructive research to assess
directly man's impact or stresses on the
estuarine environment exists now with-
out the need for creation or use of an
estuarine sanctuary for this purpose. In
contrast, a clear need exists for natural
areas to serve as controls for manipula-
tive research or research on altered
systems.

The section on manipulative research
has been changed to reflect the concern
for continued maintenance of the area
as a natural system. However, the modi-
fier "normally" has been retained be-
cause, within these limits, it is not felt
necessary to preclude all such uses; the
occasion may rarely arise when because
of a thoroughly demonstrated direct ben-
efit, such research may be permitted.

Several comments suggested that the
program should Include degraded estua-
rine systems, rather than be limited to
areas which are "relatively undisturbed
by htiTrmw activities." Such areas would
permit research efforts designed to re-
store an estuarlne area. As Indicated

FB)OUl IECISTU. VOL. 3?, NO. 108 — TUfSOAY, JUNE 4, 1974

above, an ample legislative mandate to
restore environmentally degraded areas
already exists; the benefits to be derived
from declaring such areas estu&rlne
sanctuaries would be marginal Indeed,
it would appear that if restoration ef-
forts cannot occur without estuarine
sanctuary designation, then, given the
limited resources of this program, such
efforts would not be feasible.

A few commentators suggested that
the phrase (I 921.3(e) ) "if sufficient per-
manence and control by the State can
be assured, the acquisition of a sanctu-
ary may involve less than the acquisition
of a fee simple interest" be more dearly
denned. Explanatory language has been
added to that section,

Section 921.4 Zoogeographic Classifies'
tion. Because the classification scheme
utilized plants aa well as animals, two
commentators suggested that soogeo-
grapfaic be changed to ttogeographic
This change is reflected in the anal
regulations.

One comment suggested that selection
of sanctuaries should depend on the pres-
sures and threats being brought to bear
upon the natural areas involved even if
this meant selecting several sanctuaries
from one classification and none from
another.

The legislative history of section 312
dearly shows the intent to select estu-
arine sanctuaries oa a rational basis
which would reflect regional differentia-
tion and a variety of ecosystems. The blo»
geographis Hastiflrafflori system, which
reflects geographic bydrographifi. and
biologic differences, fulfills that inten-
tion. A scheme which would abandon
that system, or another similar one, and
would not fulfill the requirements of pro-
viding regional differentiation and a
variety of ecosystems, would not be con-
sistent with the Intended purpose of the
Act.

A few comments received suggested
that the btogeographle classl tic* tion
scheme be enlarged by the addition of a
new class reflecting an area or State of
special concern or interest to the re-
spondent. (No two commentators sug-
gested the same area.) It is fdt that
adequate "*^""«1 representation is pro-
vided by the blogeographie scheme pro-
posed, and that the changes offered were
in most cases examples of sub-categories
that might be utilized.

One oofflTTtpnt suggested a specific
change in the His-niMnw of the "Great
Lakes" category. Portions of that sug-
gestion have been incorporated into the
final rules.

Two commentators requested assur-
ance that sub-categories of the blogeo-
graphie schema will in fact be utilized.
The final language substitutes "will be
developed and utilized" for "may be de-
veloped and utilized."

Section 921J Multiple Use. Several
comments were received pertaining to
the multiple use concept. Three com-
mentators suggested that the multiple
use directive was contrary to or absent
from the Act and should be omitted. Ten
respondents felt the concept should be
more explicitly dfflTteri and restricted so

320
RULES AND REGULATIONS

that the primary purpose of the sanc-
tuary would be more dearly protected.
In contrast, two commentators felt that
the definition might prove too restrictive
and should be broadened. Several com-
mentators suggested that examples of
anticipated multiple use might be
appropriate.

While recognizing that it is not always
possible to accommodate more than a
single use in an environmentally sensi-
tive area, it is not the intention to un-
necessarily preclude the uses of sanc-
tuary areas where they are dearly com-
patible with and do not detract from the
long-term protection of the ecosystem
for scientific and educational purposes.
The language of I 921 J has been changed
accordingly.

Section 921.8 Relationship to Other
Provisions of the Act and to Marine
Sanctuaries. Several comments were re-
ceived which commended and stressed
the need for dose coordination between
the development of State coastal sons
management programs, especially and
land and water use controls, and the
estuarine sanctuary program.

The relationship between the two pro-
grams is emphasized: estuarine sanctu-
aries should provide benefit— both short-
term and long-term — to coastal zone
management decision-makers; and State
coastal zone management programs must
provide necessary protection for estu-
arine sanctuaries, This necessary coordi-
nation Is discussed not only in the estu-
arine sanctuary regulations, but will also
be addressed in an appropriate fashion
in guidelines and rules for Coastal Zone
Management Program Approval Criteria
and Administrative Grants.

Three commentators discussed the
need for swift action by both State and
Federal governments to establish and
acquire estuarine sanctuaries. The OSes
of Coastal Zone Management intends to
pursue the program ss swiftiy as avail-
able manpower restraints will permit.

A few comments sought reassurance
that the estuarine sanctuaries program
will in fact be coordinated with the
Marine Sanctuaries Program (Title WL
Pub. L. 92-532). The guidelines have
been changed to reflect that both pro-
grams will be administered by the same

OEuiCflL

Subfsbt S — Apkjcjueeox toe G0AZR3

Section 921.10 General. One reviewer
Indicated uncertainty about which State
agency may submit applications for
grants under section 312. Although Indi-
vidual States may vary in the choice of
individual agencies to apply for an es-
tuarine sanctuary, because of the neces-
sity for coordination with the State
coastal zone management program the
entity within the State which Is the cer-
tified contact with the Office of Coastal
Zone Management, NCAA, responsible
for the administration of the coastal
zone management program must en-
dorse or approve an estuarine sanctuary
application.

Appropriate language has been in-
duded to ensure this coordination

Section 921.11 Initial Application for
Acquisition, Development and Operation

Grants. Two comments requested that
the souroe and nature of acceptable
m^frfrng funds should be expucitly
identified.

OMB Circular Ar102 generally defines
and identifies legitimate "match" for
Federal grant projects. In general, refer-
ence should be made to that document.
However, the section has been expanded
in response to some specific and frequent
questions.

Two comments stressed the need for
increased availability of research funds
to adequately utilize the potential of es-
tuarine sanctuaries. While not an ap-
propriate function of the estuarine sanc-
tuary program, the Office of Coastal Zone
Management is disguising the necessity
of adequate funding with appropriate
agencies.

One comment suggested that the term
"legal description" of the sanctuary
(! 921.11(a)) Is not appropriate for all
categories of Information requested. The
word "legal" has been omitted.

Three reviewers indicated that the Act
provides no basis for consideration of
socio-economic impacts (|923L11(D)
and that this criterion seemed inappro-
priate to selecting estuarine sanctuaries.
Apparently these reviewers misunder-
stood the intention of this requirement.
The Information in this section is neces-
sary for preparation of an environmental
impact statement which win be prepared
pursuant to NEPA. Although required in
the application, such information is not
a part of the selection criteria, which are
addressed to Subpart C. f 921^0.

One f<™«*» comment was received
with regard to consideration of existing
and potential uses and conflicts (f 921.-
11(h) ) . This item is also discussed under
selection criteria (| 92U»(h) ). It is in-
tended that this criterion wfU only be
considered when choosing between two
or more sanctuary applications within
the same blogeographie category which
are of otherwise equal merit.

One comment drew attention to an
apparent typographic error in § 921.11
(m) where the term "marine estuaries"
seems out of context, This has been cor-
rected.

Two commentators suggested that
public hearings should be required in the
development of an estuarine sanctuary
application. Although such a hearing is
deemed desirable by the Office of Coastal
Zone Management, it would not always
seem to be necessary. The language in
! 920.11(1) has been changed to reflect
the sincere concern for the adequate in-
volvement of the public which is also
addressed under a new J 920.21.

One respondent suggested that a new
section be added requiring the appli-
cant to discuss alternative methods of
acquisition or control of the area, indud-
ing the designation of a marine sancfti-
ary, in place of establishing an estuarine
sanctuary. A new section (I 920.11 (n))
has been added for this purpose.

Section 921.12 Subsequent Application
for Development and Operation Grants.
Three commentators expressed concern
that the intent of f 921.12 be more dearly
expressed. Appropriate changes have
been made.

ffOttAl IfGiSTEI. VOL 39. NO. )Ot — TUESDAY, JUNI 4, 1974

321

RUIE5 AND REGULATIONS

One comment was made that a pro-
vision should be Included to use existing
Federally owned land for the purpose of
the estuarine sanctuary program. A sec-
tion has been added for that purpose.

Section 921.20 Criteria for Selection.
One comment suggested that the con-
sideration of conflict with existing or po-
tential competing uses should not be In-
cluded as a selection criterion. As dis-
cussed above, this criterion is considered
appropriate.

Another reviewer suggested the addi-
tion of a new criterion, consideration of
"the need to protect a particular estuary
from harmful development."' As dis-
cussed earlier, this criterion is not con-
sidered appropriate. Such a basis for
determining selection would lead to a
reactionary, random series of estuarine
sanctuaries, rather than the rationally
chosen representative series mandated
m the legislative history.

Two reviewers commented that the
limitation on the Federal share ($2,000.-

000 for each sanctuary) was too low and
would severely restrict the usefulness of
the program. However, this limitation
is provided by the Act.

Another commentator suggested that

1 921.20 (g) was unnecessarily restrictive
in that it might prevent selecting an
estuarine sanctuary in an area adjacent
to existing preserved lands where the
conjunction might be mutually benefi-
daL The language of S 921 JO (g) does
not preclude such action, but has been
changed to specifically permit this pos-
sibility.

Two commentators inquired whether
the reference to a "draft" environmental
Impact statement (I 921 JO. last para-
graph) indicated an intention to avoid
further compliance with NEPA. It Is the
firm Intention of the Office of Coastal
Zone Management to fully comply in all
respects with NEPA. The word "draft"
has been struck.

Three reviewers addressed the prob-
lems of providing adequate public par-
ticipation In the review and selection
process. In addition to the change in
§ 920.11(1) , a new section has been added
to address this Issue.

Subpart D— Ofsjussdh

Section 921 JO General. One commen-
tator suggested that during contract
negotiations, there should be a meeting
between the applicant agency and pro-
posed sanctuary management team, and
representatives of the Office of Coastal
Zone Management. The general pro-
visions have been broadened to provide
for this suggestion.

Two comments were submitted which
urged that some discretion be exercised
in the use and access to the sanctuary
by scientists and students. Two other
comments were received which requested
specific protection for use by the general
public. The guidelines have been changed
to Include these suggestions.

One comment was received suggesting
language to clarify i 921 J0(g) . This was
incorporated Into the guidelines.

Two commentators expressed concern
for enforcement capabilities and activi-
ties to ensure protection of the estuarine
sanctuaries. A new section has been
added which addresses this issue.

Finally, one suggestion was received
that a vehicle for change in the manage-
ment policy or research programs should
be provided. A new section has been
added for that purpose.

Accordingly, having considered the
comments received and other relevant
Information, the Secretary concludes by
adopting the final regulations describing
the procedure for applications to receive
estuarine sanctuary grants under section
312 of the Act. as modified and set forth
below.

Effective date: June 3, 1974.

Dated: May 31, 1974.

Robert M. White.
Administrator.

Subpart A— General

Sec

921.1 Policy and objectives.

921.3 Definition*.

92UX Objectives sad implementation at
the program.

921.4 Blogeographlc classification.
921 J Multiple use.

921.8 Belatlonahip to other provisions of
the Act and to marine sanctuaries.

Subpart 8— Application for Grants
921.10 General

92iai Application for initial acquisition.
development and operation grants,

921.12 Application for subsequent develop-

ment and operation grants.

921.13 Federally owned lands.

Subpart C— ■ Selection Criteria
921 .20 Criteria for selection.
921.21 Public participation.

Subpart O— Operation
921 JO General.

921.31 Changes in the sanctuarr boundary.

management policy or research
program.

921.32 Program review.

ATJTHOsxrr: See. 312 of the Coastal Zone
Management Act of 19T2 (Pub. L. 92-583, 88
Stat. 1280).

g 921.1

Subpart A— General
Policy and Objectives.

The estuarine sanctuaries program wul
provide grants to States on a matching
basis to acquire, develop and operate
natural areas as estuarine sanctuaries in
order that scientists and students may be
provided the opportunity to examine over
a period of time the ecological relation-
ships within the area. The purpose of
these guidelines is to establish the rules
and regulations for implementation of,
the program.

§ 921.2 Definitions.

(a) In addition to the definitions
found in the Act and in the regulations
dealing with Coastal Zone Management
Program Development Grants published
November 29, 1973 (Part 920 of this
chapter) the term "estuarine sanctuary"
as denned in the Act. means a research
area which may include any part or all
of an estuary, adjoining transitional
areas, and adjacent uplands, constituting

to the extent feasible a natural unit, set
aside to provide scientists and students
the opportunity to examine over a period
of time the ecological relationships with-
in the area.

(b) For the purposes of this section,
'•estuary" means that part of a river or
stream or other body of water having un-
impared connection with the open sea
where the sea water Is measurably diluted
with freshwater derived from land drain-
age. The term Includes estuary- type
areas of the Great Lakes as well as la-
goons in more arid coastal regions.

(c) The term "multiple use" as used
in this section shall mean the simulta-
neous utilization of an area or resource
for a variety of compatible purposes or
to provide more than one benefit. The
term implies the long-term, continued
uses of such resources in such a fashion
that other uses wul not interfere with,
diminish or prevent the primary purpose,
which is the long-term protection of the
area for scientific and educational use.

§ 921.3 Objectives and implementation
of the program.

(a) General The purpose of the es-
tuarine sanctuaries program is to create
natural field laboratories in which to
gather data and males studies of the
natural and human processes occurring
within the estuaries of the coastal zone.
This shall be accomplished by the estab-
lishment of a series of estuarine sanc-
tuaries which will be designated so that
at least one representative of each type
of estuarine ecosystem will endure into
the future for scientific and educational
purposes. The primary use of estuarine
sanctuaries shall be for research and
educational purposes, especially to pro-
vide some of the information essential to
coastal zone management decision-mak-
ing. Specific examples of such purposes
and uses include but are not limited to:

Q) To gain a thorough understanding
of the ecological relationships within the
estuarine environment.

(2) To make baseline ecological meas-
urements.

(3) To monitor significant or vital
changes in the estuarine environment.

(4) To assess the effects of man's
stresses on the ecosystem and to forecast
and mitigate possible deterioration from
human activities.

(5) To provide a vehicle for increasing
public knowledge and awareness of the
complex nature of estuarine systems,*
their values and benefits to man and na-
ture, and the problems which confront
them.

(b) The emphasis within the program
will be on the designation as estuarine
sanctuaries of areas which will serve as
natural field laboratories for studies and
investigations over an extended period.
The area chosen as an estuarine sanc-
tuary shall, to the extent feasible, in-
clude water and land masses constituting
a natural ecological unit.

(c) In order that the estuarine sanc-
tuary will be available for future studies.
research involving the destruction of any
portion of an estuarine sanctuary which
would permanently alter the nature of
the ecosystem shall not normally be

FfSSUl KEGISTO, VOL. 39, NO. !0« — TUfSDAT, JUNE 4. 1974

permitted. In the unusual circumstances
where permitted. manipulative field re-
search shaH be carefully controlled. Ho
experiment which Involves manipulative
research shall be Initiated until the ter-
mination date is specified and evidsuoe
given that the environment win be re-
turned to its condition which existed
prior to the experiment.

(d) It is anticipated that meet of the
areas selected as sanctuaries will be rel-
atively undisturbed by human activities
at the time of acquisition. Therefore.
most of the areas selected will be areas
with a minimum of development, indus-
try or habitation.

(e) If sufficient permanence and con-
trol by the State can be assured, the
acquisition of a sanctuary may involve
less than the acquisition of a fee simple
Interest. Such interest may be, for ex-
ample, the acquisition of a conserva-
tion easement, "development rights", or
other partial interest sufficient to assure
the protection of the natural system.
Leasing, which would not assure perma-
nent protection of the system, would not
be an acceptable alternative.

8 921.4 Biogeographie classification.

(a) It Is Intended that estuarlne sanc-
tuaries should not be chosen at random,
but should reflect regional differentia-
tion and a variety of ecosystems so as
to cover all significant variations. To
ensure adequate representation of all es-
tuarlne types reflecting regional differ-
entiation and a variety of ecosystems;
selections wUl be made by the Secretary
from the following blogeographle class-
ifications:

1. JroaOtan, Northeast Atlantis coast
south to Cape Cod. glaciated shoreline sub-
ject to watts* Irtng wsU developed algal
flora; boreal biota.

X Virginian, Middle Atlantic eoass tram.
Cape Cod to Cape Battaras: lowland streams,
coastal marshes and muddy bottoms; char-
acteristics transitional between 1 and 3:
biota primarily tamparata with soma boreal
repreocntetrres.

3. Carolinian. South. Atlanta© coast, from
Cap* Battens to Cape Kennedy; eztanatT*
marshaa and swamps; waters turbid and
produetlTe; biota tamperata wttb seasonal
tropical dements.

4. Vest /ttdtoa. South Florida coast from
• Cape Kennedy to Cedar Key; and Caribbean

Islands; sboretand low-lying limestone;
calcareous sands, marls and coral reefs;
coastal marshes sad mangroves; tropical
biota.

8. Louitianian. ITorthsrn Outt* of Mexico.
fiaa Cedar Key to Merino; ebaraetertstlcs
of 3. wttb. components of *; strongly tnnu-
enoed by terrigenous factors; biota primarily
tamperata.

6. Oaiifornian, South Padfls coast from
MeHoo to Cape Menrtonrto; aborslaad influ-
enced by coastal mountains; rocky coasts
with reduced fresh-water runoff; general
absence of marines and swamps; biota
tamperata.

7. Columbian, north Pacific coast from
Cape Meadoctno to Canada; mountalneous
shorn and; rooky coasts; extensive algal oom-
Tnunltlse; biota primarily temperate with

8. fiord*. South coast Alaska and Aleu-
tians: preetpttous mountains; deep estuaries,
some with sweaters; shoreuhe heavily ta*

322
1UUS AIO tEGULMTQttS

dented and subject to winter icing; biota
boreal to sub-Arctic.

8. SuoaroTta. West and north coasts of
Alaska; Ice stressed coasts; biota Arctic and
sub-Aretle.

10. /neuter. Larger Islands, sometimes with
precipitous mountains; considerable wave
action; frequently wick endemic spselas;
larger Island groups primarily with tropical
biota.

11. Great Lakes. Great Lekee of North
America; bluff-dune or rooky, glaciated
shoreline: limited wetlands; freshwater only;
biota a mixture of boreal and temperate
species with anadromoua spedee and some
marine invaders.

(b) Various sub-categories will be de-
veloped and utilized as appropriate.

9 921.5 Multiple use.

(a) While the primary purpose of es-
tuarlns sanctuaries is to provide long-
term protection for natural areas so that
they may be used for scientific and edu-
cational purposes, multiple use of estu-
arine sanctuaries will be encouraged to
the extent that such use la compatible
with this primary sanctuary purpose.
The capacity of a given sanctuary to ac-
commodate additional uses, and the
kinds and intensity of such use. will be
determined on a case by case basis. While
It is anticipated that compatible uses
may generally include activities such as
low intensity recreation, fishing, hunt-
ing, and wildlife observation. It is rec-
ognised that the exclusive use of an area
'for scientific or educational purposes
may provide the optimum benefit to
coastal zone management and resource
use and may on occasion be necessary.

(b) There shall be no effort to balance
or optimize uses of an estuarlne sanctu-
ary on economic or other bases. All addi-
tional uses of the sanctuary are clearly
secondary to the primary purpose and
uses, which are long-term maintenance
of the ecosystem for scientific and educa-
tional uses. Non-compatible uses, includ-
ing those uses which would cause sig-
nificant short or long-term ecological
change or would otherwise detract from
or restrict the use of the sanctuary as
a natural field laboratory, will be pro-
hibited.

S 921.6 ReladoasbJp to other provisions
of the set sad to marine saactnariaa.

(a) The estuarlne sanctuary program
must interact with the overall coastal
zona management program In two ways:
(1) the intended research use of the
sanctuary should provide relevant data

md f»rnn<»?ii«<inin« of SSBlStWCS tO COSStSl

gone »*»«T>«gy*ti»wfc dectslon-maltingv and
(2> when developed, the State's coastal
sane management program must recog-
nize and be designed to protect the estu-
arlne sanctuary: appropriate land and
water use regulations and planning con-
siderations must apply to adjacent lands.
Although estuarlne sanctuaries should
be incorporated into the State coastal
tww management program, their desig-
nation need not await the development
and approval of the management pro-
gram where operation of the estuarlne
sanctuary would aid m the development
of a program.

(b) The estuarlne sanctuaries prograi
will be conducted in close cooperatia
with the marine sanctuaries prograi
(Title m of the Marine Protection, Re
search Act of 1972. Pub. L. 92-632. whic
la also administered by the Office c
Coastal Zone Management, NCAA;
which recognises that certain areas c
the ocean waters, as far seaward as tfa
outer edge of the Continental Shelf, c
other coastal waters where the tide ebb
and flows, or of the Great Lakes an
their ">""^ti"? waters, need to be pre
served or restored for their conservatioi
recreational, ecologlc or esthetic value
It Is anticipated that the Secretary a
occasion may establish marine sanctu
arles to complement the designation b
States of estuarlne sanctuaries, wher
this may be mutually beneficial.

Subpart B — Application for Grants

S 921.10 General.

Section 312 authorizes Federal grant
to coastal States so that the States ma
establish sanctuaries according to regn
lations promulgated by the Secretan
Coastal States may file applications ft
grants with the Director, Office of Coasfc
Zone Management. National Oceanic an
Atmospheric Administration. U.S. De
partment of Commerce, Rockvllle. Man
land 20852. That agency which has bee
certified to the Office of Coastal Zoc
Management as the entity responsibi
for administration of the State coast:
zone rn«"^g*"i»^^ program may eithe
submit an application directly, or ma:
endorse and approve applications sub
mltted by other agencies within th
State.

§ 921.11 Application for initial acquis
ooa, doVeJopmeas sad operatio
grants.

(a) Qrants may be awarded on
rt^feffhing basis to cover the costs c
acquisition, development and operatic
of estuarlne sanctuaries. States may u:
donations of land or money to satisfy a
or part of the matching cost require
meats.

(b) In general, lands acquired put
saant to this section. Including Stat
owned lands but not State owned sub
merged lands or bay bottoms, that occi:
within the proposed sanctuary boundar
are legitimate coats and their fair markt
value may be included as match. How
ever, the value of lands donated to or b
the State (or inclusion in the sanctu ax
may only be used to ™*fa»h other cost
of land *"f^«<t1ntt In the event the
lands already exist in a protected statu
their value cannot be used as match ft
sanctuary development and operatic
grants, which will require their ow
matching funds.

(c> Development and operation cost
may Include the administrative expense
necessary to monitor the sanctuary, t
ensure Its continued viability and to pro
tect the integrity of the ecosystem. Be
search win not normally be funded b:
Section 312 grants. It is anticipated the
other sources of Federal, State an

tawrna, vol. 39, no. 10s— TuooAr, iwtt 4, w*

323

private funds wfll be available for re-
search In estuaztne sanctuaries.

(d) Initial applications should contain
the following Information:

(1) Description of the proposed sanc-
tuary Include location, boundaries, size
and cost of acquisition, operation and de-
velopment. A map should be Included, as
well as an aerial photograph. If available.

(2) Claiffrtflcatlon of the proposed
sanctuary according to the biogeographic
scheme set forth In I 921.4.

(3) Description of the major physical,
geographic and biological characteristics
and resources of the proposed sanctuary.

(4) Identification of ownership pat-
terns; proportion of land already In the
public domain.

(5) Description of Intended research
uses, potential research organizations or
agencies and benefits to the overall
coastal zone management program.

(6) Demonstration of necessary au-
thority to acquire or control and manage
the sanctuary.

(7) Description of proposed manage-
ment techniques, including the manage-
ment agency, principles and proposed
budget Including both State and Federal
shares.

(8) Description of existing and poten-
tial uses of and conflicts within the area
If It were not declared an estuarlne sanc-
tuary; potential use, use restrictions and
conflicts if the sanctuary is established.

(1) Assessment of the environmental
and socio-economic Impacts of declaring
the area an estuarlne sanctuary, Includ-
ing the economic Impact of such a desig-
nation on the surrounding community
and Its tax base.

(9) Description of planned or antici-
pated land and water use and controls
for contiguous lands surrounding the
proposed sanctuary (Including If appro-
priate an analysis of the desirability of
creating a marine sanctuary In adjacent
areas).

(10) List of protected sites, either
within the estuarlne sanctuaries program
or within other Federal, State or private
programs, which are located in the same
regional or biogeographlc classification.

(U It Is essential that the opportunity
be provided for public involvement and
input In the development of the sanctu-
ary proposal and application. Where the
application Is controversial or where
controversial Issues are addressed, the
State should provide adequate means to
ensure that an interested parties have
the opportunity to present their views.
This may be In the form of an adequately
advertised public hearing,

(ID During the development of an
estuarlne sanctuary application, all land-
owners within the proposed boundaries
should be Informed in writing of the pro-
posed grant application.

(ill) The application should indicate
the manner in which the State solicited
the views of all Interested parties prior
to the actual submission of the appli-
cation.

(a) la order to develop a truly repre-
sentative scheme of estuarlne cangftt*

IULES AND REGULATIONS

arles, the States should attempt to coor-
dinate their activities. This will help to
minimi** the possibility of similar estu-
arlne types being proposed for designa-
tion in the same region. The application
should Indicate the extent to which
neighboring States were consulted.

(X) Discussion, including cost and
feasibility, of alternative methods for
acquisition, control and protection of the
area to provide rimttar uses. Use of the
Marine Sanctuary authority and funds
from the Land and Water Conservation
Fund Act should be specifically ad-
dressed.

§ 921.22 Application for subsequent de-
velopment and operation grant*.

(a) Although the Initial grant appli-
cation for creation of an estuarlne sanc-
tuary should Include Initial development
and operation costs, subsequent appli-
cations may be submitted following ac-
quisition and establishment of an estua-
rlne sanctuary for additional develop-
ment and operation funds. As indicated
in I 921.11, these costs may Include ad-
ministrative costs necessary to monitor*
the sanctuary and to protect the integ-
rity of the ecosystem. Extensive manage-
ment programs, capital expenses, or re-
search will not normally be funded by.
section 312 grants.

(b) After the creation of an estuarlne
sanctuary established under this pro-

- gram, applications for such development
and operation grants should include at
least the following Information:

(1) Identification of the boundary.

(2) Specifications of the management
program, including managing agency and
techniques.

(3) Detailed budget. .

(4) Discussion of recent and projected
use of the sanctuary.

(5) Perceived threats to the integrity
of the sanctuary.

§ 921.13 Federally owned lands.

(a) Where Federally owned lands are
a part of or adjacent to the area pro-
posed for designation as an estuarlne
sanctuary, or where the control of land
and water uses on such lands is neces-
sary to protect the natural system within
the sanctuary, the State should contact
the Federal agency maintaining control
of the land to request cooperation in pro-
viding coordinated management policies.
Such lands and State request, and the
Federal agency response, should be iden-
tified and conveyed to the Office of
Coastal Zone Management.

(b) Where such proposed use or con-
trol of Federally owned lands would not
conflict with the Federal use of then-
lands, such cooperation and coordination
la encouraged to the maximum extent
feasible.

(c) Section 312 grants may not be
awarded to Federal agencies for creation
of estuarlne sanctuaries in Federally
owned lands: however, a ntmllar status
may be provided on a voluntary basis for
Federally owned lands under the provi-
sions of the Federal Committee on Eco-
logical Preserves program.

Subpart C— Selection Criteria

§ 921.20 Criteria for selection.

Applications for grants to establish
estuarlne sanctuaries will be reviewed
and judged on criteria including:

(a) Benefit to the coastal zone man-
agement program. Applications should
demonstrate the benefit of the proposal
to the development or operations of the
overall coastal zone management pro-
gram, including how well the proposal
fits into the national program of repre-
sentative estuarlne types; the national
or regional benefits; and the usefulness
in research.

(b) The ecological characteristics of
the ecosystem. Including its biological
productivity, diversity and representa-
tiveness. Extent of alteration of the
natural system. Its ability to remain a
viable and healthy system In view of the
present and possible development of ex-
ternal stresses.

(c) Size and choice of boundaries. To
the extent feasible, estuarlne sanctuaries
should approximate a natural ecological
unit. The minimal acceptable size will
vary greatly and will depend on the na-
ture of the ecosystem.

(d) Cost. Although the Act limits the
Federal share of the cost for each sanc-
tuary to $2,000,000. It is anticipated that
in practice the average grant will be sub-
stantially less than this.

(e) Enhancement of non-competitive
uses.

(f) Proximity and access to existing
research facilities.

(g) Availability of suitable alternative
sites already protected which might be
capable of providing the same use or
benefit. Unnecessary duplication of ex-
isting activities under other programs
should be avoided. However, estuarlne
sanctuaries might be established adja-
cent to existing preserved lands where
mutual enhancement or benefit of each
might occur.

(h) Conflict with existing or potential
competing uses.

(1) Compatibility with existing or pro-
posed land and water use in contiguous
areas.

If the Initial review demonstrates the
feasibility of the application, an environ-
mental impact statement will be pre-
pared by the Office of Coastal Zone Man-
agement In accordance with the National
Environmental Policy Act of 1969 and
implementing CEQ guidelines.

§ 921.21 Public participation.

Public participation will be an essen-
tial factor in the selection of estuarlne
sanctuaries. In addition to the participa-
tion during the application development
process (1921.11(e)), public participa-
tion will be ensured at the Federal level
by the NEPA process and by public hear-
ings where desirable subsequent to NEPA.
Such public hearings shall be held by the
Office of Coastal Zone Management In
the area to be affected by the proposed
sanctuary no sooner than 30 days after it
Issues a draft environmental Impact

SBttAl IfOISTU, VOL 39, NO. IOS — TUBOAY, jut*! 4, 1974

324
RULES AND REGULATIONS

statement on the sanctuary proposal It
will be the responsibility of the Office of
Coastal Zone Management, with the as-
sistance of the applicant State, to issue
adequate public notice of its intention
to hold a public hearing. Such public no-
tice shall be distributed widely, espe-
cially in the area of the proposed sanc-
tuary; affected property owners and
those agencies, organizations or individ-
uals with an identified interest in the
area or estuarine sanctuary program
shall be notified of the public hearing.
The public notice shall contain the
name, address and phone number of the
appropriate Federal and State officials to
contact for additional information about
the proposal

Subpart D— -Operation

§ 921.30 General

Management of estuarine sanctuaries *
shall be the responsibility of the appli-
cant State or its agent. However, the
research uses and management program
must be m conformance with these
guidelines and regulations, and others
implemented by the provisions of indi-
vidual grants. It Is suggested that prior
to the grant award, representatives of
the proposed sanctuary management
team and the Office of Coastal Zone Man-
agement meet to discuss management
policy and standards. 16 is anticipated
that the grant provisions wUl vary with
Individual circumstances and will be
mutually agreed to by the applicant and

the granting agency. As a minimum, the
grant document for each sanctuary
shall:

(a) Define the intended research pur-
poses of the estuarine sanctuary.

(b) Define permitted, compatible, re-
stricted and prohibited uses of the sanc-
tuary.

(c) Include a provision for monitoring
the uses of the sanctuary, to ensure com-
pliance with the intended uses.

(d) Ensure ready access to land use
of the sanctuary by scientists, students
and the general public as desirable and
permissible for coordinated research and
education uses, as well as for other com-
patible purposes.

(e) Ensure public availability and rea-
sonable distribution of research results
for timely use In the development of
coastal zone management programs.

(f) Provide a basis for annual review
of the status of the sanctuary, its value
to the coastal zone program.

(g) Specify how the integrity of the
system which the sanctuary represents
will be maintained.

<h) Provide adequate authority and
intent to enforce management policy and
use restrictions.

aancttsary

policy or

§ 921.31 Change* in tho
boundary, management

research program.

. (a) The approved sanctuary boundar-
ies; management policy, including per-
missible and prohibited uses; and re-

search program may only be changed
after public notice and the opportunity
of public review and participation such
as outlined in ! 921.21.

(b) Individuals or organizations which
are concerned about possible improper
use or restriction of use of estuarine
sanctuaries may petition the State man-
agement agency and the Office of Coastal
Zone Management directly for review of
the management program.

§ 921.32 Program review.

It is anticipated that reports will be
required from the applicant State on a
regular basis, no more frequently than
annually, on the status of each estuarine
sanctuary. The estuarine sanctuary
program will be regularly reviewed to
ensure that the objectives of the program
are being met and that the program it-
self is scientifically sound. The key to
the success of the estuarine sanctuaries
program is to assure that the results of
the studies and research conducted in
these sanctuaries are available in a
timely fashion so that the States can
develop and administer land and water
use programs for the coastal zone. Ac-
cordingly, all information and reports.
including annual reports, relating to
estuarine sanctuaries shall be part of
the public record and available at all
times for inspection by the public.
(7B Doc.74-13775 Piled 5-31-74;»:87 &mj

ROOM ttOtSTtt, VOL 3», NO. 10«— njfSOAY, JUNI 4, 1974

325

FRIDAY, SEPTEMBER 99 1977

PART IV

DEPARTMENT OF
COMMERCE

National Oceanic and
Atmospheric Administration

ESTUARINE SANCTUARY

Guidelines

326

DEPARTMENT OF COMMERCE

National Ocaanic and Atmospheric
Administration

[15 CFR Part 921]

ESTUARINE SANCTUARY GUIDELINES

Polities and Procedures for Selection

Acquisition and Management

AGENCY: National Oceanic and Atmos-
pheric Administration, Department of
Commerce.
ACTION: Proposed rule.

SUMMARY: This proposed rule will
allow the National Oceanic and Atmos-
pheric Administration to make a pre-
liminary acquisition grant to a State to
undertake a fair market value appraisal,
^nrf to develop a uniform relocation act
plan, a detailed management plan and a
research framework for a proposed estu-
arlne sanctuary, developed pursuant to
Section 315 of the Coastal Zone Manage-
ment Act of 1972, as amended.

DATE: Comments must be received on or
before October 1, 1977.

FOR FURTHKH INFORMATION CON-
TACT:

Robert R. Klfer. Physical Scientist,
Policy and Programs Development Of-
fice. Office of Coastal Zone Manage-
ment. 3300 Whitehaven Parkway, Page
One Building, Washington. D.C. 20235
(202-634-4241) .

SUPPLEMENTARY INFORMATION:
On June 4. 1974. The National Oce-
anic and Atmospheric Administration
(NOAA) published 15 CFR Part 921 en-
titled. -Estuarine Sanctuary Guidelines'*
pursuant to then section 312 of the
Coastal Zone Management Act of 1972.
as amended, for the purpose of establish-
ing policy and procedures for the selec-
tion, acquisition, and management of
estuarine sanctuaries.

Under new subsection 315(1) of the
Act. the Secretary of Commerce Is au-
thorized to make available to coastal
States grants of up to 50 per centum of
the cost of acquisition, development, and
operation of estuarine sanctuaries. In
general, subsection 315(1) provides that
grants may be awarded to States on a
matching basis to acquire, develop, and
operate natural areas as estuarine sanc-
tuaries in order that scientists and stu-
dents may be provided the opportunity
to examine over a period of time ecologi-
cal relationships within the area. The
purpose of these guidelines is to imple-
ment this program.

As a result of two years of program
implementation, the regulations are pro-
posed to be modified to specifically au-
thorize the granting of arTUisltton
money to States in two stages:

(1) An initial grant for such prelimi-
.nary purposes, as surveying and assess-
ing the land to be acquired, and the de-
velopment of management procedures
and research programs: and

(U) A second grant for the actual ac-
quisition of the land. The Federal share
of the sum of the two grants shall not

PROPOSED RULES

exceed 50 percent of the acquisition costs
involved. Any State receiving an initial
grant shall be obligated to repay it if.
due to any fault of the State, the sanctu-
ary is not established.

As a result of this new grant procedure,
much more information relating to costs,
values, management procedures, and re-
search programs wUl be available at the
time of the publication of a draft en-
vironmental impact statement. Proposals
made public to date in the form of an
Environmental impact Statement (EIS)
have been criticized for lack of specificity
in these areas. By making a small pre-
liminary acquisition grant to a State,
the estuarine sanctuary proposal can be
more fully developed and the public can
become more aware of the costs and the
exact nature of the long-term manage-
ment.

In response to State questions about
estuarine sanctuary research, the pro-
posed regulations provide that such re-
search can be funded if it can be shown
to be related to program administration.

NOAA has reviewed these proposed
regulations pursuant to the National En-
vironmental Policy Act of 1969 and has
determined that promulgation of these
regulations will have no significant im-
pact on the environment.

Compliance with Executive Order
11821. The economic and Inflationary
impact of these proposed regulations has
been evaluated in accordance with OMB
Circular A-107 and#lt has been deter-
mined that no major inflationary im-
pact will result.

Dated: August 26, 1977.

T. P. Gt.mteh.
Assistant Administrator
for Administration.

It Is proposed to amend 15 CFR Part
921 as follows:

(1) By revising the table of contents
and authority citation to read as follows:

See.

921.1 Policy and objectives.

921.3 T^rflTiltl""*

931.3 ObJtcttTes and implementation of

tns program.

931.4 Slogeogranbic clawlflratlon r
931 J Multiple m

931.8 Belstlonsbtp to otner provisions of
the Act and to manna sanctuaries.

931.10
931.11

931.13

931.13

921.14

) ft*,- Grants

Subpart 1

General.

Application for preliminary acquisi-
tion grants.

Application for land acquisition
grants,

Application for operational grants.

Federally-owned lands.

Criteria

Criteria for selection.
Public participation

931.30 General.

921-31 Cnanges in tne sanctuary boundary,
management policy, oi

93130
931.31

93133 Program review.

Avmoszrr: See. 3IB<1). Coastal Zone Man-
agement Act of 1972. as amended (90 Stat.
1030. (IS XJJXC. 1*01) PUD. L. 94-370).

(2) By revising Subpart B — Applica-
tion -for Grants — as follows:

Subpart B — Application for Grants

§ 92L10 General.

Section 315 authorizes Federal grants
to coastal States so that the States may
establish sanctuaries according to regu-
lations promulgated by the Secretary.
Coastal States may file applications for
grants with the Associate Administrator
for Coastal Zone Management (OCZM) .
Office of Coastal Zone Management. Page
1. 3300 Whitehaven Parkway NW. Wash-
ington. D.C. 20235. That agency which
has been certified to the Office of Coastal
Zone Management as the entity respon-
sible for administration of the State
coastal zone management program may
either submit an application directly, or
must endorse and approve applications
submitted by other agencies within the
State.

§ 921.11 Application for preliminary
acquisition grants.

(a) A grant may be awarded on a
mat^hiTig basis to cover costs necessary
to preliminary actual acquisition of land.
As match to the Federal grant, a State
may use money, the cost of necessary
services, the value of foregone revenue,
and/or the value of land either already
in its possession or acquired by the State
specifically for use in the sanctuary. If
the land to be used as match already is
in the State's possession and is in a pro-
tected status, the State may use such
land as match only to the extent of any
revenue from the land foregone by the
State in order to include it in the sanc-
tuary. Application for a preliminary ac-
quisition grant shall be made on form
SF 424 application for Federal assistance
(non-construction programs) .

(b) A preliminary acquisition grant
may be made for the defrayal of the
cost of:

(1) An appraisal of the land, or of the
value of any foregone use of the land.
to be used in the sanctuary:

(2) The development of a Uniform
Relocation Assistance and Real Property
Acquisition Policies Act plan:

(3) The development of a sanctuary
management plan;

(4) The development of a research and
educational program: and/or,

(5) Such other activity of a prelimi-
nary nature as may be approved in writ-
ing by OCZM. Any grant made pursuant
to this subsection shall be refunded by
the State to whatever extent it has spent
in relation to land not acquired for the
sanctuary, and if OCZM requests such
refund.

(c) The application should contain:

(1) Evidence that the State has con-
ducted a sciHitlflr evaluation of it= estu-
aries and selected one of those most rep-
resentative.

(2) Description of the proposed
sanctuary *n*uitu-ni location, proposed
boundaries, and size. A map<s) should
be included, as well as an aerial photo-
graph if available.

ffiDOKAL nOlSra. VOC 42. Ma I75— fUOAT. SSPTCMBCS 9, 1977

327

PROPOSED RULES

(3) Classification of the proposed
sanctuary according to the Die-geo-
graphic scheme set forth In 5 921.4.

(4) Description of the major physical,
geographic, biological characteristics and
resources of the proposed sanctuary.

(5) Demonstration of the necessary
authority to acquire or control and man-
age the sanctuary.

(6) Description of existing and poten-
tial uses of. and conflicts within, the
area if it were not declared an estuarine
sanctuary; and potential use restriction
and conflicts if the sanctuary Is estab-
lished.

(7) List of protected sites, either with-
in the estuarine sanctuaries program or
within other Federal. State, or private
prrmP""*, which are located In the same
region or biogeographic classification.

(8) The manner in which the State
solicited the views of interested parties.

(9) In addition to the standard A-9S
review procedures, the grant application
should be sent to the State Historic Pres-
ervation Office for comment to insure
compliance with section 106 of the Na-
tional Preservation Act of 1968.

< d) Xh order to develop a truly repre-
sentative scheme of estuarine sanctu-
aries, the States should coordinate their
activities. This will help to minimize the
possibility of rimilar estuarine types be-
ing proposed in the same region. The
extent to which neighboring States were
consulted should be Indicated.

§ 921.12 Application for land acquisi-
tion grants.

(a) Acquisition grants will be made to
acquire land and facilities for estuarine
sanctuaries that have been thoroughly
described in a preliminary acquisition
grant application, or where equivalent
information is available. Application for
an acquisition grant shall be made on
SF 424 application for Federal assist-
ance (construction program).

In general, lands acquired pursuant to
this subsection are legitimate costs and
their fair market value, developed ac-
cording to Federal appraisal standards,
may be included as match. The value of
lands donated to the State and cash do-
nations may also be used as match. If
tiie State already owns land which is to
be used in the sanctuary, the value of
any use of the land foregone by the State
in order to include such land In the
sanctuary, capitalized over the next 20
years, may be used by the State as
match The value of lands purchased by
a State within the boundaries of pro-
posed sanctuaries while an application
for a preliminary acquisition grant or
land acquisition grant is being consid-
ered may also be used as match,

(b) An acquisition application should
g"n*»jp the following information:

(1) Description at any changes in pro-
posed sanctuary from that presented in
the preliminary acquisition grant appli-
cation. If such an application has not
been made. then, information equivalent
to that required in such a grant applica-
tion should be provided.

(2) Identification of ownership pat-
terns, proportions of land Already in the.

public domain: fair market value ap-
praisal and Uniform Relocation Act plan.
T3> Description of research programs,
potential and committed research or-
ganizations or agencies, and benefits to
the overall coastal zone management
program.

(4) Description of proposed manage-
ment techniques, including the manage-
ment agency and proposed budget — in-
cluding both State and Federal shares.

(5) Description of planned or antici-
pated land and water use and controls
for contiguous lands surrounding the
proposed sanctuary (Including, if appro-
priate, an analysis of the desirability of
creating a marine sanctuary in adjacent
areas).

(6) Assessment of the environmental,
and socio-economic Impacts of declaring
the area an estuarine sanctuary, includ-
ing the economic impact on the sur-
rounding community and Its tax base.

(7) Discussion, Including cost and
feasibility of alternative methods for ac-
quisition and protection of the area.

for operation

§ 921.13 Application
grants.

(a) Although an acquisition grant ap-
plication for creation of an estuarine
sanctuary should include initial opera-
tion costs, subsequent applications may
be submitted following acquisition and
establishment of an estuarine sanctuary
for additional operational funds. As in-
dicated in 5 921.11, these costs may in-
clude administrative costs necessary to
monitor the sanctuary and to protect the
integrity of the ecosystem. Extensive
management programs, capital expenses.
or research will not normally be funded
by section 315 grants.

(b) After the creation of an estuarine
sanctuary established under this pro-
gram, applications (Form SF 424) for
Federal assistance (nan-construction
program), for such operational grants
should Include at least the following in-
formation:

(1) Identification of the boundary
(map).

(2) Specifications of the research and
management programs, including man-
aging agency and techniques.

(3) Detailed budget.

(4) Discussion of recent and projected
use of the sanctuary.

(5) Perceived threats to the integrity
of the sanctuary.

§ 921.14 Federally-owned lands.

(a) Where Federally-owned lands are
a part of or adjacent to the area proposed
for designation as an estuarine sanc-
tuary, or where the control of land and
water uses on such lands is necessary to
protect the natural system within the
sanctuary, the State should contact the
Federal agency maintaining control of
the land to request cooperation in provid-
ing coordinated management policies.
Such lands and State request, and the
Federal agency response, should be iden-
tified and conveyed to the Office of
Coastal Zone Management, •-..*•

(b) Where such proposed use or con-
trol of F*d^raily<*wned toads, soaid: note

conflict with the Federal use of their
lands, such cooperation and coordination
Is encouraged to the "ma-rimnm extent
feasible.

(c) Section 315 grants may not be
awarded ^/Federally -owned lands: how-
ever, a similar status may be provided on
a voluntary basis for Federally-owned
lands under the provisions of the Federal
Committee on Ecological Perserves
program.

§ 921.20 [Amended]

(4) Subpart C — Selection Criteria— is
amended by changing the first sentence
in i 921.20 to read: "Applications for
preliminary- acquisition or land acquisi-
tion grants to establish estuarine sanc-
tuaries will be reviewed and judged on
criteria including: "

(5) Section 921.21 Is revised, as fol-
lows:

§ 921.21 Public participation.

(a) Public participation in the selec-
tion of an estuarine sanctuary is re-
quired. In the selection process, the se-
lecting entity (see §921.10) shall seek
the views of possibly affected landown-
ers, local governments, and Federal
agencies, and shall seek the views of pos-
sibly interested other parties and orga-
nizations. The latter would include, but
need not be limited to. private citizens
and business, social, and environmental
organizations in the area of the site be-
ing considered for selection. This solici-
tation of views may be accomplished by
whatever means the selecting entity
deems appropriate, but shall include at
least one public hearing in the area. No-
tice of such hearing shall include infor-
mation as to the time, place, and subject
matter, and shall be published in the
principal area media. The hearing shall
be held no sooner than 15 days follow-
ing the publication of notice.

(b) The Office of CoastaJ Zone Man-
agement (OCZM) shall prepare draft
and final environmental impact state-
ments pertaining to the site finally se-
lected for the estuarine sanctuary fol-
lowing public participation in the selec-
tion of that site, and shall distribute
these as appropriate. OCZM may hold a
public hearing in the area of such site at
which both the draft environmental im-
pact statement (DEIS) and the merits
of the site selection may be addressed by
those in attendance. OCZM shall hold
such a hearing if: (1) In its view, the
DEIS is controversial, or (2) If there ap-
pears to be a need for further informing
the public with regard to either the DEIS
or one or more aspects of 'the site se-
lected, or (3) if such a hearing is re-
quested in writing (to either the select-
ing entity or (CZM) by an affected or in-
terested party, or (4) for other good
cause. If held, such hearing shall be held
no sooner than SO -days fallowing the is*
suance of the DEIS and so sooner than
15 days after appropriate notice of such
hearing has been given m the area by
OCZM with the assistance of the select-
ing entity.
t»iiS0oasisaeiflftiUBda-3-Tr:8:48 tm\

nOOAL MOISTS*. VOt. 42, NO. 175 — FRIDAY, SVTEMSft 9, 1977

328

APPENDIX 8
MEMORANDUM OF UNDERSTANDING AMONG
FIVE NEW YORK STATE AGENCIES

329

MEMORANDUM OF UNDERSTANDING

This Memorandum serves as an expression of intent among five
parties-in-interest hereinafter called the Signatories: the New York
State Department of Environmental Conservation (Lead Agency), the New
York State Office of General Services, the Palisades Interstate Park
Commission, the New York State Office of Parks, Recreation and Historic
Preservation, and the New York State Department of State.

Witnesseth:

WHEREAS, New York State has received a grant from the United States
Secretary of Commerce for acquisition, development and operation of
certain portions of the Hudson River Estuary (see Appendix A) as the
Hudson River National Estuarine Sanctuary (the Sanctuary), and

WHEREAS, the purpose of such grant is to create new opportunities
for coordinated Hudson River research and public education (the
Program) , and

WHEREAS, such Program has wide public support, and

WHEREAS, the Signatories have already evidenced support for such
Program through the formation in 1981 of a Hudson River Estuarine
Sanctuary Steering Committee which has met regularly to coordinate the
efforts of the Signatories in establishing the Sanctuary,

NOW THEREFORE, in consideration of the mutual benefits to be
derived from implementing this Program, the Signatories agree to the
following:

1. The lands described in Appendix A are hereby designated as the
Hudson River Estuarine Sanctuary.

2. There shall be a Management Plan for the Sanctuary, which
Management Plan shall provide a framework for conducting research and
educational programs. The Management Plan shall be developed by the
Estuarine Sanctuary staff and reviewed by the Steering Committee. Such
Management Plan shall set forth compatible and non-compatible uses for
each site in the Sanctuary. The Management Plan shall not take effect
except upon unanimous approval of the Signatories. The Management Plan
shall be reviewed annually and shall be revised as needed, but no
revisions shall take place except upon unanimous approval of the
Signatories.

3. No land ownership and management prerogatives in the Sanctuary
shall be changed except as specified in the Management Plan.

4. The purpose of the Program is the protection of such lands for
use as a natural field laboratory in which to gather data and make
studies of the natural and human processes occurring within the Hudson
River estuary.

330

5. The Signatories shall adhere to the Management Plan in their
land ownership and management activities within the Sanctuary.

6. Multiple uses of such lands are encouraged to the extent such
uses are compatible with the Program and its purpose as expressed in the
Management Plan. These areas are being managed to facilitate ecological
research and education. Uses and/or levels of use, which are not
compatible with the use of the Sanctuary as a natural field laboratory,
shall be prohibited or limited to the greatest extent feasible, by the
agency having jurisdiction.

7. Management Structure

a. There shall be a Sanctuary Steering Committee, comprised
of one member from each of the Signatories, which shall review the
recommendations of Sanctuary Advisory Committees and shall submit them
to the agencies having jurisdiction over lands in the Sanctuary. The
Steering Committee shall review the Management Plan annually and shall
advise the Lead Agency regarding its implementation. The chairman of
each Sanctuary Advisory Committee and a representative of the National
Oceanic and Atmospheric Administration shall serve as non-voting,
ex-officio representatives to the Steering Committee.

b. There shall be three Sanctuary Advisory Committees
appointed by the Lead Agency, in consultation with the Steering
Committee, which shall meet regularly to discuss the progress of the
Sanctuary and to make recommendations to the Steering Committee.

c. The Lead Agency shall implement the Program by hiring and
directing Estuarine Sanctuary staff, supervise and coordinate
implementation of the provisions of the Management Plan, and by
receiving and acting upon the recommendations of the Steering Committee.

d. The Estuarine Sanctuary staff, hired by and reporting to
the Lead Agency, is immediately responsible for Program coordination
with the agencies having jurisdiction over respective Sanctuary sites.

8. No projects shall be carried out on Sanctuary lands without the
approval of the agency having jurisdiction over such lands. Such agency
shall maintain all facilities built on its lands in furtherance of a
project, and shall cooperate with Sanctuary staff in carrying out the
Program.

9. The Lead Agency and the Department of State shall confer
regularly to ensure coordination between the Estuarine Sanctuary Program
and the Coastal Management Program.

10. This Memorandum shall not be construed so as to preclude
additional transfers of property among the Signatories, or to preclude
additions of appropriate lands to the Estuarine Sanctuary.

331

11. This Memorandum shall continue in effect in perpetuity;
additional Signatories may join by unanimous approval of existing
Signatories, and the Memorandum may be amended or terminated by majority
vote of the Signatories at any time. Nothing in this Memorandum shall,
however, preclude the unilateral withdrawal of any of the Signatories.
In such latter eventuality is understood that the lands of such
withdrawing Signatory would be dedesignated from the Sanctuary, and it
is understood that the federal Office of Management and Budget will take
appropriate action with respect to grant funds as may be indicated by
its regulations.

Signed,

Depar^ment/^f E^lronmen^al/Conservation

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Office of Parks, Recreation and Historic
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332

APPENDIX A

to the Memorandum of Understanding

(The following maps and their symbols are described fully
in Part II of this FEIS.)

Fig. 1 Stockport Flats Area, approximate property
ownerships. The Consolidated Rail Corp. corridor
is not shown. ( S ee Tables 1 and 2 .)
Adapted from USGS Hudson North, N.Y. quadrangle.)

Extent of
tidal influence

Proposed sanctuary boundary
Ownership boundary

Priming
Hook

334

Tivoli

Cruger Development Corp (Central Hudson Gas &

Electric Corp. corridor
— — — — — — ~ Proposed sanctuary boundary

— Ownership boundary

Fig. 2 Tivoli Bays Area. ( See Tables I and 2 .)
(Adapted from USGS Saugerties, NY. quadrangle.)

335

Trailside
Museums

Bear Mtn.

Doodletown
Bight

N

Dunderberg Mtn.

one mile

one km

— — — ■■ Proposed sanctuary boundary Fig. 3 lona Island Marsh Area ( See Tables 1 and 2 .)

(Adapted from USGS Peekskill, N.Y. quadrangle.)
Ownership all PIPC

N

j

Lamont
Doherty
Geological
Observatory

Ownership boundary

— * Proposed sanctuary boundary

x x x x x x Tenn. Gas Pipeline Co.
easement

one km

one mile

1 —

Fig. 4 Piermont Marsh Area. ( See Tables 1 and 2 .)
(Adapted from USGS Nyack, N.Y. — N.J. quadrangle.)

337

APPENDIX 9

Summary of Workshop to Generate
Ideas on Research and Education

338

Summary of a Conference held 8 June 1982 to Generate
Ideas on Research and Education Programs for the
Proposed Hudson River Estuarine Sanctuary

The conference was co-sponsored by the New York State Department
of Environmental Conservation, Bard College, and Hudsonia, and held
at Bard. It was chaired by Dr. Michael Rosenthal, Professor of
Chemistry at Bard, Affiliate of Hudsonia, and Chairman of the
Dutchess County Environmental Management Council. Most of the
conference was spent in general discussion of the Sanctuary program,
and the Hudson River proposal. The conference was attended by more
than 60 Hudson Valley scientists, educators, and conservationists.
At the close of the conference the chairman asked for a show of
hands to express support for the Hudson River Estuarine Sanctuary
proposal; support was nearly unanimous, no one expressed opposition.

This summary was prepared by Erik Kiviat and Jim Stapleton of
Hudsonia. The purpose is to highlight the discussion and select the
most relevant and constructive suggestions for the consideration of
the public agencies involved in the program. Special attention was
paid to ideas not covered in the DEIS. This summary represents
Hudsonia 's interpretation of the conference, and any inaccuracy is
the responsibility of Kiviat and Stapleton.

Four major ideas emerged from the discussion:

1. The Hudson River National Estuarine Sanctuary should provide
a meeting ground for cooperative effort among existing Hudson River
research, education, sportsmen and conservation groups.

2. Research in the sanctuary should address specific needs and
problems. Available information should not be duplicated. Data
collection on the Hudson River Estuary should be coordinated.

3. Research should solve problems perceived by decision makers
(e.g., local government officials) and the general public. If the
sanctuary does not contribute to problem-solving in coastal
management, it will be difficult to obtain long-range funding.

4. A stable long-range funding mechanism (or mechanisms)
is needed to ensure the continuation and continuity of research.
Long-term protection of the sites is critical , but not enough
without funding.

Additionally, a number of specific suggestions were made by
attendees and also verbally or in writing by persons invited who

339

could not attend. These suggestions are listed under the headings
"Research", "Education", and "General".

Research

1. The Estuarine Sanctuary can guarantee a researcher study sites
that will not be damaged in future. Long-term control over the sites
will allow many people to collaborate for a long time in collection

of data that will be very valuable for management and legal purposes.
Most research projects last for a year or two; 10 or 20- year projects
are rare and little information is available on changes in natural
systems over decade-length periods, with continuous data collection.

2. Unlike the well-studied saline-tidal ecosystems, very little
research has been done on freshwater-tidal and low salinity
brackish-tidal wetlands. The Hudson River sites are almost virgin
territory for science. What is the plant and animal productivity

of these systems, their relation to fisheries production, their
resource values?

3. The sanctuary could be a clearinghouse for scientific and
natural history information on the hudson River Estuary marshes
and shores, including bibliography, unpublished reports, and
records of observations. The sanctuary's permanence could support
a long-term effort to collect small pieces of information which
can eventually be synthesized into a meaningful picture. One
element of a clearinghouse could be a toll-free telephone number
and/or a pre-printed postcard reporting system for short-lived
phenomena and unusual observations (e.g., rare species, early and
late occurrences, extralimital occurrences, extremes of environ-
mental conditions, natural trauma or damage).

4. Institutions should cooperate not compete; the sanctuary can
catalyze collaboration. Existing facilities should serve (when
appropriate) as repositories for specimens or certain types of data,
or as facilities specializing in certain types of technology or
research. Avoid duplication of research facilities and services.
Colleges and research institutions near the sanctuary sites can
cooperate in sanctuary research through internships, theses,

sharing of equipment and workspace, snared time on vessels, etc.

5. The Estuarine Sanctuary should collaborate with other reserves,
parks and sanctuaries in research programs. Other sites, such as
Constitution Island Marsh, could be compared to the sanctuary sites

for insight into the effects of pollution and other stresses on

340

areas that have been more modified by human activities that the
sanctuary sites. Also, other sites may be used for research on
species or phenomena that do not occur at the sanctuary sites -
no selection of four sites can include all of the species of the
estuary. Areas outside the sanctuary could also provide information
on how much the results of research within the sanctuary may be
generalized.

6. The sanctuary sites should be thought of as a long-term
"control area" for evaluation of human-caused changes in other
sites outside the sanctuary.

7. The States 's Sanctuary Steering Committee should plan ahead
so that adequate funding is available after the 5-year federal
operations funding is used. Funding from Hudson Valley industries
should be explored, among oother potential sources. Incentives,
especially financial incentives, are needed to stimulate long-term
monitoring of the sanctuary environment.

8. Mechanisms are needed to insure that research findings become
useful in coastal management decision-making. The sanctuary staff
must be able to "translate" research results for decision makers

in local government, state agencies, and business-industry. Some
of the mechanisms for facilitating this communication could be
regular forums where management problems and research findings are
discussed by sanctuary staff, Sanctuary Advisory Committee members,
and other representatives of business, industry, sportsmen,
conservation groups and government; communication of research results
in non-technical language in the popular media including newspapers,
magazines, radio and television; efforts to publicize research
projects in progress on the sanctuary sites so that the public is
aware of what scientists are doing; and involvement of the public
and students in research through volunteer assistance and sharing
of information.

9. Sanctuary activities and programs should be evaluated at
regular intervals to see if program goals are being met. Such
evaluations should include the Steering Committee and the Advisory
Committee.

10. Concern was expressed about the possible impacts of research
and education activities upon the environment at the sanctuary sites.
Care must be taken in designing and siting facilities (e.g. the
boardwalk at Tivoli) and planning and carrying out projects to
minimize environmental impact.

341

11. A number of research questions or projects were mentioned:

How do educational experiences affect human behavior?
Sociology of Users of Marshes:

How does use of the marshes for education and researh affect the
environment?

Is there a role for marsh "creation" in the Hudson River Estuary?
Would it be feasible to reestablish shellfisheries in the lower
estuary?

What effect does fire have on marsh vegetation?

Nutrient cycles in tidal marshes.

Metals accumulation in tidal marshes and relation to sedimentation.

Role of plant communities in nutrient and metals distribution.

Effects of toxic substances on animals, e.g., cadminum at Constitution Island
Marsh.

Wild-rice is making a comeback in the Hudson - what conditions are favorable?

Purple loosestrife invasion of cattails.

Relation of fine grade suspended sediment transport and contaminant
distribution.

Lead shot ingestion by waterfowl.

Does acid precipitation affect the estuary?

Primary productivity of marsh plants.

Blue cr*b relation to salinity.

Damage done by dredge spoil disposal; how to manage disposal sites.

Bank erosion by tides and boat wakes.

Mapping glacial deposits.

A historical overview of utility - hudson River - fish interactions.

Potential peregrine falcon use of the marshes as feeding areas.

342

Erection of osprey nesting platforms in the marshes,

Archeological resources, past inhabitants of the areas, and past
ecological relationships; species that were formerly present.

12. The sanctuary should maintain an inventory of scientific
support services potentially available to researchers on the estuary,
for example, specimen collections, water quality laboratories, research
vessels.

13. Solid funding will ensure that useful research is conducted, that
researchers will collaborate, and that results will be interpreted for

the public.

Education

1. Several "target groups" were mentioned: elementary school classes,
high school students, non-school groups such as scouts and 4-H, sportmen,
other recreationists, decision makers and college students.

2. Several communications media were mentioned: a traveling exhibit for
museums and larger schools; short video programs; fact sheets for decision
makers such as legislators; a generalized publication to advertise the
sanctuary; and personal contact; a summer session for advanced high school
students; and self-guided trails.

3. Ways of bringing sportsmen and non-sportsmen users of the sites
together for education or work on projects could include: sportsmen taking
birdwatchers on boat tours (this is done at Stockport); non-sportsmen
joining fish and game clubs; interpretive articles in sportsmen's magazines.
Sportsmen and non-sportsmen could work together to protect habitats and
solve pollution problems and other probems in the sanctuary.

4. Access problems were discussed. Getting across the railroad at
Stockport is a problem. Transportation for school groups may not be
covered in school budgets. A user constituency for the sanctuary can

be built by improving access opportunities, for example, public boat
landings. Commercial tour boats might serve for viewing or access to
the sites.

5. There should be an education subcommittee of the Sanctuary
Advisory Committee.

6. There can be cooperation be between education and research
projects. This can be done by using high school students to make
environmental measurements under supervision of a scientist; by
establishing a "clearinghouse" system for receiving and analyzing
public observations on natural history; by using specimens obtained
from sportsmen's bags for scientific studies of animals; by using
sportmen and naturalists as "guides" for scientists; and by

press releases and interviews on the inception and progress of
research projects in the sanctuary.

343

7. The sanctuary's education program should stress public
obligations in land use decisions (e.g., State Environmental Quality
Review Act, various wetlands laws, zoning ordinances).

General

1. How can the Estuarine Sanctuary be used to take a positive
(constructive) approach to environmental management?

2. It is important to involve the public (including local
government, business-industry, sportsmen, etc.) in decisions about
the use and function of the sanctuary.

3. The Sanctuary Advisory Committee could assemble a research
agenda that meets the information needs of river users (industry,
sportsmen, etc.) and then help raise funds to get the research done.

4. The sanctuary will appeal more to the public through
involvement in community-action projects such as reconstructing
docks.

5. The Sanctuary could publish a newletter for a coalition of
Hudson River environmental organizations.

6. Good connections should be made with existing facilities such
as the Dutchess Community College Norrie Point Environmental Laboratory,
Columbia University Lamont-Doherty Geological Observatory, Stony Kill
Environmental Education Center, Bard College, and Columbia-Greene
Community College, for collaboration in research and education programs.

7. The sanctuary should be used as an example of the best
preserved wetlands.

8. The Estuarine Sanctuary program has a role - to make the
results of scientific research available locally to make a better
case for protecting wetlands outside of the sanctuary. How far
will this effect go beyond the sanctuary? Will there be spin-off to
the protection of wetland resources in general , on the Hudson and
along the Atlantic Coast?

A000070T40B20

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