![[logo] US EPA](http://www.epa.gov/epafiles/images/logo_epaseal.gif){kind=logo}
Draft Wildlife-Dependent Recreational Uses Policy Pursuant to the National Wildlife Refuge System Improvement Act of 1997
Note: EPA no longer updates this information, but it may be useful as a reference or resource.
[Federal Register: January 16, 2001 (Volume 66, Number 10)]
[Notices]
[Page 3681-3707]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr16ja01-118]
-----------------------------------------------------------------------
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service 1018-AG20
[1018-AG20]
Draft Wildlife-Dependent Recreational Uses Policy Pursuant to the
National Wildlife Refuge System Improvement Act of 1997
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notice.
-----------------------------------------------------------------------
SUMMARY: We propose to adopt a policy that will explain how we will
provide
[[Page 3682]]
visitors with high quality hunting, fishing, wildlife observation and
photography, and environmental education and interpretation
opportunities on units of the National Wildlife Refuge System (System).
The National Wildlife Refuge System Improvement Act of 1997 (NWRSIA-
1997), that amends the National Wildlife Refuge System Administration
Act of 1966 (NWRSAA-1966), defines and establishes that wildlife-
dependent recreational uses (hunting, fishing, wildlife observation and
photography, and environmental education and interpretation) are the
priority general public uses of the System and, if found compatible,
will receive enhanced and priority consideration in refuge planning and
management over other general public uses. This draft policy describes
how we will provide priority to these uses. We propose to incorporate
this policy as Part 605 Chapters 1-7 of the Fish and Wildlife Service
Manual.
DATES: Comments must be received by March 19, 2001.
ADDRESSES: You may submit comments on this draft wildlife-dependent
recreational uses policy by mail, fax or e:mail: by mail to Douglas
Staller, Acting Chief, Division of Visitor Services and Communications,
National Wildlife Refuge System, U.S. Fish and Wildlife Service, 4401
North Fairfax Drive, Room 670, Arlington, Virginia 22203; by fax to
(703) 358-2248; or by e:mail to Wildlife__Dependent__
Recreational__Uses__ Policy__Comments@fws.gov.
FOR FURTHER INFORMATION CONTACT: Douglas Staller, Acting Chief,
Division of Visitor Services and Communications, National Wildlife
Refuge System, U.S. Fish and Wildlife Service, Telephone (703) 358-
1744.
SUPPLEMENTARY INFORMATION: The NWRSIA-1997 amends and builds upon the
NWRSAA-1966 providing an ``Organic Act'' for the System. The NWRSIA-
1997 clearly establishes that wildlife conservation is the singular
System mission, provides guidance to the Secretary of the Interior
(Secretary) for management of the System, provides a mechanism for
refuge planning, and gives refuge managers uniform direction and
procedures for making decisions regarding wildlife conservation and
uses of the System.
The NWRSIA-1997 identifies six wildlife-dependent recreational uses
(hunting, fishing, wildlife observation and photography, and
environmental education and interpretation) as the priority general
public uses of the System. The NWRSIA-1997 also provides a set of
affirmative stewardship responsibilities regarding our administration
of the System. These stewardship responsibilities direct us to ensure
that these six wildlife-dependent recreational uses are provided
enhanced consideration and priority over other general public uses.
The Refuge Recreation Act of 1962 (RRA-1962) authorizes us to
administer the System for public recreation when the use is an
``appropriate incidental or secondary use.'' The RRA-1962 also requires
us to regulate or curtail public recreational uses in order to insure
accomplishment of our primary conservation objectives.
The six wildlife-dependent recreational uses are the priority
public uses of the System have been determined to be appropriate by law
and, when compatible, are to be facilitated. This Draft Wildlife-
Dependent Recreational Uses Policy, the Draft Appropriate Refuge Uses
Policy published concurrently in the notice section of this Federal
Register and our Final Compatibility Policy and Regulations published
in the October 18, 2000 Federal Register are key tools refuge managers
use together to fortify our commitment to provide enhanced
opportunities for the public to enjoy wildlife-dependent recreation
while at the same time ensuring that no refuge uses compromise the
System's wildlife conservation mission and the individual refuge
purpose(s). Through careful planning, consistent System-wide
application of regulations and policies, diligent monitoring of the
impacts of uses on natural resources, and by preventing or eliminating
uses not appropriate to the System, we can achieve our wildlife
conservation mission and individual refuge purposes while also
providing people with lasting opportunities for the highest quality
wildlife-dependent recreation.
Wildlife-Dependent Recreational Uses Policy
To ensure the primacy of the System wildlife conservation mission
as well as the individual refuge purpose(s), and to be sure we afford
priority to the six wildlife-dependent recreational uses within the
System, we are proposing to establish a policy on wildlife-dependent
recreational uses. Following is a summary of this policy.
Chapter 1 General Guidance provides Service policies, strategies,
and requirements concerning the management of recreation programs
within the System. National wildlife refuges are national treasures for
wildlife and for people who enjoy the wonders of the outdoors.
Wildlife-dependent recreation programs will promote understanding and
appreciation of natural and cultural resources and their management on
all lands included in the System. To assure that the System's fish,
wildlife, and plant resources endure, their needs must come first.
Thus, we only allow recreational uses on a refuge after we determine
that use to be appropriate and compatible. In addition, we manage
recreation in accordance with applicable Federal, State, and Tribal
laws [see Code of Federal Regulations (CFR), Title 50 subchapter C]. We
encourage refuge staff to develop and take full advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges. The policy outlined in this chapter applies to all
recreational use activities that occur within the System, including
wildlife-dependent and other appropriate recreational uses. Our general
policy is to provide the American public high-quality opportunities to
take part in wildlife-dependent recreation, regardless of age, race,
religion, color, sex, national origin, sexual orientation, or physical
or mental ability. To accomplish this policy, we ensure consistency and
professionalism in planning and implementing recreational use programs
and activities on System lands. Wildlife-dependent recreational uses
(hunting, fishing, wildlife observation and photography, and
environmental education and interpretation) are the priority general
public uses of the System and, when determined to be compatible, will
receive enhanced and priority consideration in refuge planning and
management over all other general public uses.
Chapter 2 Hunting provides Service policy governing the management
of recreational hunting within the System. The NWRSAA-1966 as amended
by the NWRSIA-1997 identifies hunting as a priority public use of the
System. Hunting programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. Hunting is also an integral part of a
comprehensive wildlife management program. When determined to be
compatible, refuge managers are strongly encouraged to provide to the
public high-quality hunting opportunities. We plan hunting programs in
consultation and cooperatively with appropriate State and Tribal
agencies, and we conduct them, to the extent practicable, in accordance
with applicable State and
[[Page 3683]]
Tribal regulations. We encourage refuge staff to develop and take full
advantage of opportunities to work with other partners who have an
interest in helping us promote high quality wildlife-dependent
recreational programs on refuges.
Chapter 3 Fishing provides Service policy governing the management
of recreational fishing within the System. The NWRSAA-1966 as amended
by the NWRSIA-1997 identifies fishing as a priority public use of the
System. Fishing programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. When determined to be compatible, refuge
managers are encouraged to provide to the public high-quality fishing
opportunities. We plan fishing programs in consultation and
cooperatively with the appropriate State and Tribal agencies. We base
fishing seasons on refuges on local conditions and biological
objectives. These seasons must, where practicable, conform with
appropriate Federal, State, and Tribal regulations. The Service's
Division of Fish and Wildlife Management Assistance has many field
offices with a broad range of expertise that are available to the
Refuge Manager when planning and managing fishing programs. We
encourage refuge managers to take advantage of this important resource.
We also encourage refuge staff to develop and take full advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges.
Chapter 4 Wildlife Observation provides Service policy governing
the management of recreational wildlife observation within the System.
The NWRSAA-1966 as amended by the NWRSIA-1997 identifies wildlife
observation as a priority public use of the System. Wildlife
observation programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. When determined to be compatible, refuge
managers are encouraged to provide to the public high quality wildlife
observation opportunities. Refuge managers are encouraged to coordinate
refuge wildlife observation programs with applicable Federal, State and
Tribal programs. We encourage refuge staff to develop and take full
advantage of opportunities to work with other partners who have an
interest in helping us promote high quality wildlife-dependent
recreational programs on refuges.
Chapter 5 Wildlife Photography provides Service policy governing
the management of recreational wildlife photography within the System.
The NWRSAA-1966 as amended by the NWRSIA-1997 identifies wildlife
photography as a priority public use of the System. Wildlife
photography programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. When determined to be compatible, refuge
managers are encouraged to provide to the public high quality wildlife
photography opportunities. Refuge managers are encouraged to coordinate
wildlife photography programs with applicable State programs. We
encourage refuge staff to develop and take full advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges.
Chapter 6 Environmental Education provides Service policy governing
the management of environmental education within the System. The
NWRSAA-1966 as amended by the NWRSIA-1997 identifies environmental
education as a priority public use of the System. Environmental
education programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. When determined to be compatible, refuge
managers are encouraged to provide to the public high quality
environmental education opportunities. Refuge managers will work with
local schools, citizen groups, and other organizations to provide these
programs. We encourage refuge managers to coordinate refuge
environmental education programs with applicable local, State and
Federal programs. We encourage refuge staff to develop and take full
advantage of opportunities to work with other partners who have an
interest in helping us promote high quality wildlife-dependent
recreational programs on refuges.
Chapter 7 Interpretation provides Service policy governing the
management of interpretation within the System. The NWRSAA-1966 as
amended by the NWRSIA-1997 identifies interpretation as a priority
public use of the System. Interpretation programs will promote
understanding and appreciation of natural and cultural resources and
their management on all lands included in the System. When determined
to be compatible, refuge managers are encouraged to provide to the
public high quality interpretation opportunities. We encourage refuge
staff to coordinate refuge interpretive programs and materials with
applicable local, State, and Federal programs. We encourage refuge
staff to develop and take full advantage of opportunities to work with
other partners who have an interest in helping us promote high quality
wildlife-dependent recreational programs on refuges.
Fish and Wildlife Service Directives System
Because many of our field stations are in remote areas across the
United States, it is important that all employees have available and
know the current policy and management directives that affect their
daily activities. The Fish and Wildlife Service Directives System,
consisting of the Fish and Wildlife Service Manual (Service Manual),
Director's Orders, and National Policy Issuances, is the vehicle for
issuing the standing and continuing policy and management directives of
the Service. New directives are posted on the Internet upon approval,
ensuring that all employees have prompt access to the most current
guidance.
The Service Manual contains our standing and continuing directives
with which our employees comply. We use it to implement our authorities
and to ``step down'' our compliance with statutes, executive orders,
and Departmental directives. It establishes the requirements and
procedures to assist our employees in carrying out our authorities,
responsibilities, and activities.
Director's Orders are limited to temporary policy, procedures,
delegations of authority, emergency regulations, special assignments of
functions, and initial functional statements on the establishment of
new organizational units. All Director's Orders must be converted as
soon as practicable to appropriate parts of the Service Manual or
removed. Material appropriate for immediate inclusion in the Service
Manual generally is not issued as a Director's Order.
National Policy Issuances promulgate the Director's national
policies for managing the Service and its programs. These policies are
necessarily broad and generally require management discretion or
judgment in their implementation. They represent the Director's
expectations of how the Service and its employees will act in carrying
out their official responsibilities.
The Service Manual, Director's Orders, and National Policy
Issuances are available on the Internet at http://www.fws.gov/
directives/direct.html. When finalized, we will incorporate this
[[Page 3684]]
wildlife-dependent recreational uses policy into the Service Manual as
Part 605 Chapters 1-7.
Comment Solicitation
We seek public comments on this draft wildlife-dependent
recreational uses policy and will take into consideration comments and
any additional information received during the 60-day comment period.
You may submit comments on this draft appropriate refuge uses policy by
mail, fax or e:mail: by mail to Douglas Staller, Acting Chief, Division
of Visitor Services and Communications, National Wildlife Refuge
System, U.S. Fish and Wildlife Service, 4401 North Fairfax Drive, Room
670, Arlington, Virginia 22203; by fax to (703)358-2248; or by e:mail
to Wildlife__Dependent__ Recreational__Uses__ Policy__Comments@fws.gov.
Please submit Internet comments as an ASCII file avoiding the use of
special characters and any form of encryption. Please also include:
``Attn: 1018-AG18'' and your name and return address in your Internet
message. If you do not receive a confirmation from the system that we
have received your Internet message, contact us directly at (703)358-
1744. Finally, you may hand-deliver comments to the address mentioned
above.
Our practice is to make comments, including names and home
addresses of respondents, available for public review during regular
business hours. Individual respondents may request that we withhold
their home address from the record, which we will honor to the extent
allowable by law. In some circumstances, we would withhold from the
record a respondent's identity, as allowable by law. If you wish us to
withhold your name and/or address, you must state this prominently at
the beginning of your comment. However, we will not consider anonymous
comments. We will make all submissions from organizations or businesses
and from individuals identifying themselves as representatives or
officials of organizations or businesses, available for public
inspection in their entirety.
We published a notice in the Federal Register on January 23, 1998
(63 FR 3583) notifying the public that we would be revising the Service
Manual, establishing regulations as they relate to the NWRSIA-1997, and
offering to send copies of specific draft Service Manual chapters to
anyone who would like to receive them. We will mail a copy of these
draft Service Manual wildlife-dependent recreational uses chapters to
those who requested one. In addition, these draft Service Manual
wildlife-dependent recreational uses chapters will be available on the
Internet at http://www.fws.gov/directives/library/frindex.html during
the 60-day comment period.
Required Determinations
We have analyzed the impacts of this final policy in concert with
the draft appropriate refuge uses policy published concurrently in the
today's issue of the Federal Register. For compliance with applicable
laws and executive orders affecting the issuance of polices, see the
SUPPLEMENTARY INFORMATION section of the draft appropriate refuge uses
policy notice.
Available Information for Specific National Wildlife Refuges
Individual national wildlife refuge headquarters retain information
regarding public use programs and the conditions that apply to their
specific programs, and maps of their respective areas.
You may also obtain information from the Regional Offices at the
addresses listed below:
Region 1--California, Hawaii, Idaho, Nevada, Oregon, and
Washington. Regional Chief, National Wildlife Refuge System, U.S. Fish
and Wildlife Service, Eastside Federal Complex, Suite 1692, 911 N.E.
11th Avenue, Portland, Oregon 97232-4181; Telephone (503) 231-6214;
http://pacific.fws.gov.
Region 2--Arizona, New Mexico, Oklahoma and Texas.
Regional Chief, National Wildlife Refuge System, U.S. Fish and Wildlife
Service, Box 1306, Albuquerque, New Mexico 87103; Telephone (505) 248-
7419; http://southwest.fws.gov.
Region 3--Illinois, Indiana, Iowa, Michigan, Minnesota,
Missouri, Ohio and Wisconsin. Regional Chief, National Wildlife Refuge
System, U.S. Fish and Wildlife Service, Federal Building, Fort
Snelling, Twin Cities, Minnesota 55111; Telephone (612) 713-5300;
http://midwest.fws.gov.
Region 4--Alabama, Arkansas, Florida, Georgia, Kentucky,
Louisiana, Mississippi, North Carolina, South Carolina, Tennessee,
Puerto Rico and the Virgin Islands. Regional Chief, National Wildlife
Refuge System, U.S. Fish and Wildlife Service, 1875 Century Boulevard,
Room 324, Atlanta, Georgia 30345; Telephone (404) 679-7166; http://
southeast.fws.gov.
Region 5--Connecticut, Delaware, District of Columbia,
Maine, Maryland, Massachusetts, New Hampshire, New Jersey, New York,
Pennsylvania, Rhode Island, Vermont, Virginia and West Virginia.
Regional Chief, National Wildlife Refuge System, U.S. Fish and Wildlife
Service, 300 Westgate Center Drive, Hadley, Massachusetts 01035-9589;
Telephone (413) 253-8306; http://northeast.fws.gov.
Region 6--Colorado, Kansas, Montana, Nebraska, North
Dakota, South Dakota, Utah and Wyoming. Regional Chief, National
Wildlife Refuge System, U.S. Fish and Wildlife Service, 134 Union
Blvd., Lakewood, Colorado 80228; Telephone (303) 236-8145; http://
www.r6.fws.gov.
Region 7--Alaska. Regional Chief, National Wildlife Refuge
System, U.S. Fish and Wildlife Service, 1011 E. Tudor Rd., Anchorage,
Alaska 99503; Telephone (907) 786-3545; http://alaska.fws.gov.
Primary Author
Deb Steen, Outdoor Recreation Planner and Dennis Prichard, Outdoor
Recreation Planner, National Wildlife Refuge System, U.S. Fish and
Wildlife Service, are the primary authors of this notice.
Draft General Guidance Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 1 General Guidance 605 FW 1.1
1.1 What is the purpose of this chapter? This chapter provides
Fish and Wildlife Service (Service) policies, strategies, and
requirements concerning the management of recreation programs within
the National Wildlife Refuge System (System).
1.2 What is the System's general recreation management policy?
National wildlife refuges are national treasures for wildlife and for
people who enjoy the wonders of the outdoors. To assure that the
System's fish, wildlife, and plant resources endure, their needs must
come first. Thus, we only allow recreational uses on a refuge after we
determine that use to be appropriate and compatible. In addition, we
manage recreation in strict accordance with applicable Federal, State,
and Tribal laws [see Code of Federal Regulations (CFR), Title 50
subchapter C]. We encourage refuge staff to develop and take full
advantage of opportunities to work with other partners who have an
interest in helping us promote high quality wildlife-dependent
recreational programs on refuges. The policy outlined in this chapter
applies to all recreational use activities that occur within the
System, including wildlife-dependent and other appropriate
[[Page 3685]]
recreational uses. Our general policy is to provide the American public
high-quality opportunities to take part in wildlife-dependent
recreation, regardless of age, race, religion, color, sex, national
origin, sexual orientation, physical or mental ability. To accomplish
this policy, we ensure consistency and professionalism in planning and
implementing recreational use programs and activities on System lands.
1.3 What authorities allow recreation use to occur on the Refuge
System? The following are laws and executive orders that regulate
recreational use on System lands:
A. Laws
(1) Alaska National Interest Lands Conservation Act of 1980 (16 U.S.C.
410 hh-3233 and 43 U.S.C. 1602-1784)
(2) Alaska Native Claims Settlement Act (43 U.S.C. 1601-1624)
(3) Antiquities Act of 1906 (16 U.S.C. 431-433)
(4) Archaeological Resources Protection Act of 1979 (16 U.S.C. 470aa-
470mm)
(5) Fish and Wildlife Act of 1956 (16 U.S.C. 742a-742j) as amended.
(6) Fish and Wildlife Conservation Act (16 U.S.C. 2901-2911), as
amended
(7) Fish and Wildlife Improvement Act of 1978 (16 U.S.C. 7421)
(8) Land and Water Conservation Fund [16 U.S.C. 460(l-4)-(l-11)],as
amended.
(9) National Wildlife Refuge System Administration Act of 1966 (16
U.S.C. 668dd-668ee), as amended
(10) Refuge Recreation Act of 1962 (16 U.S.C. 460k-460k-4) as amended
(11) Wild and Scenic Rivers Act (16 U.S.C. 1271-1287), as amended.
(12) Wilderness Act of 1964 (16 U.S.C. 1131-1136)
(13) Endangered Species Act of 1973 (16 U.S.C. 1531-1544)
B. Executive Orders
(1) 11593--Protection and Enhancement of the Cultural Environment
(2) 11644--Use of Off-road Vehicles on the Public Lands
(3) 12996--Management and General Public Use of the National Wildlife
Refuge System
(4) 13007--Indian Sacred Sites
(5) 12962--Recreational Fisheries
1.4 How do we define the following terms? The following are
definitions of terms used throughout this chapter.
A. Priority wildlife-dependent recreational use and priority
wildlife-dependent recreation. The National Wildlife Refuge System
Administration Act of 1966, as amended, specifies that there are six
priority general public uses of the National Wildlife Refuge System.
The uses are hunting (605 FW 2), fishing (605 FW 3), wildlife
observation (605 FW 4), wildlife photography (605 FW 5), environmental
education (605 FW 6) or environmental interpretation (605 FW 7).
B. Other recreational use. A recreational use of the System that is
not one of the priority wildlife-dependent uses, but we may allow it if
it is appropriate and compatible.
C. Public use. Any use of the System by the public, including, but
not limited to, those recreational uses and priority wildlife-dependent
uses described above.
1.5 What tools can we use to help us implement and manage a
recreational use program? Refuge managers have various tools available
to them to implement recreational use programs on refuges. These
include, but are not limited to: building successful refuge support
groups, building successful volunteer programs, implementing a user fee
program, conducting meetings, highlighting refuge attributes through
exhibits and brochures, hiring staff, training personnel, registering
users, and issuing special use permits. We determine overall
effectiveness of the programs by evaluating factors such as improved
resource protection, the success of refuge support groups, the quality
of the visitor's experience, and visitor compliance.
1.6 How do we promote the mission of the System? We can promote
the mission of the System through special events on both a local and
national scale to showcase the System's roles in conservation efforts.
These events can enhance public understanding and appreciation for
conservation, and encourage broader public enjoyment of natural
resources. We encourage Refuge managers to host special events for
National Wildlife Refuge Week, International Migratory Bird Day,
National Hunting and Fishing Day, Youth Hunting Days, National Fishing
Week, and celebrations on refuge anniversaries, where appropriate. We
also encourage Refuge managers to look for ways to introduce new
sectors of the public to the System during these celebrations. By
reaching out to new sectors, we lay the foundation to expand support
for the System, understanding of wildlife conservation and management,
and participation in wildlife dependent recreation.
1.7 What management techniques are available to help us administer
recreation programs? We will successfully administer recreational
programs through the use of:
A. Monitoring. Refuge managers, with help and support from Regional
Offices as well as the public, must adequately monitor recreational
activities on System lands. Monitoring programs must focus on the
impacts of recreational activities on wildlife, habitat, and the
quality of experience for the public. By implementing successful
monitoring techniques, we can evaluate and adaptively manage to meet
established standards and ensure that activities continue to be
appropriate and compatible.
B. Resolving conflicts. Refuge managers may establish use limits
and/or zones for specific activities, disperse or restrict use, or use
other means to minimize or eliminate conflict between uses that occur
at refuges. We will ensure that non-priority uses, if allowed, do not
interfere with or diminish the opportunity for or quality of priority
wildlife-dependent recreational uses. Through the use of zones or the
establishment of acceptable limits, we can generally provide a balanced
recreation program and avoid favoring one priority recreational
opportunity over another when both are compatible. We recognize,
however that some refuges can support no public use; many refuges only
support limited public use; and that not every priority use can be
accommodated on every refuge.
C. Closure of sensitive areas. Once opened to public use, the
Refuge Manager may make a determination to close all or part of a
refuge for public health and human safety reasons or to protect fish,
wildlife, or plant resources. During non-emergency closure situations,
the public will be notified and have the opportunity to participate in
the decision-making process. During emergency closures, we will make
every effort to keep the public informed of management decisions and,
where possible, the basis for the closure.
1.8 How do we address special requests and temporary situations?
The System's recreational use policy must be flexible enough to address
special requests or temporary situations. We accommodate these requests
only if they are appropriate, compatible, and there are clear benefits
to the Service for allowing the use. Provided the use is determined to
be both appropriate (reference Appropriate Uses Chapter, 603 FW 1) and
compatible, the Refuge Manager, with guidance from the Regional Office,
may issue a one-time or short-term permit for recreational activities
not generally allowed (e.g., an overnight activity or use of an
historic structure). We must keep written justification documenting the
analysis on file for an adequate period of time.
[[Page 3686]]
1.9 What are the general recreation guidelines for the System?
Hunting, fishing, wildlife observation, wildlife photography,
environmental education, and interpretation are priority wildlife-
dependent recreational uses of the System. Refuge managers must
facilitate wildlife/outdoor experiences that provide visitors with high
quality experiences and help them understand and appreciate the value
of the individual refuge and its role in the System. Refuge managers
must analyze the effects of the priority wildlife-dependent
recreational uses and must, unless there is a valid reason not to,
provide for those priority uses determined to be compatible. Not all
refuges will be able to support each, or even any, of the six priority
wildlife-dependent recreational uses. If it is determined that a refuge
can support one or more of these uses, the priority wildlife-dependent
recreational use must receive preferential consideration in refuge
planning and management before the Refuge Manager analyzes other
appropriate recreational opportunities. These uses provide
opportunities for visitors to become interested in and enjoy quality
wildlife/outdoor experiences and learn about, understand, and support
resource management programs. Refuge managers should produce programs
that not only inform visitors about the System but emphasize the
specific role of the individual refuge. Refuge managers should explore
partnerships with Federal, State, Tribal, and local agencies to enhance
wildlife-dependent recreation programs. Refuge managers should look for
ways to encourage priority wildlife-dependent recreation uses, however,
if little or no demand exists for a priority use, we do not require
Refuge managers to provide that use. The following general guidelines
apply to recreation management throughout the System:
A. Recreational uses that enable priority wildlife-dependent
recreational uses. Refuge managers may allow (with written
justification) other compatible recreational uses that are necessary to
facilitate the priority wildlife-dependent recreational uses. We can
allow non-wildlife-dependent activities when needed to provide access
to, help implement, or sustain a priority use when no other way is
practicable. Refuge managers must determine the appropriateness as well
as compatibility of such uses before allowing them to occur on System
lands. For example, camping may be necessary to facilitate hunting on
large remote refuges but may not be necessary to facilitate hunting on
refuges near developed areas where camping or other lodging is
available.
B. After hours recreational use. We may, on occasion, allow
activities to occur on a refuge at night if it is appropriate and
compatible with the purpose(s) of the refuge and the System mission. An
example might be night fishing. Allowing night activities on the refuge
often requires increased management and law enforcement capability, and
the manager must consider these factors in assessing the effect of the
action on wildlife goals and objectives. A use should not be allowed
simply because it is a historical use.
C. Non-priority recreational uses. When considering non-priority
public uses, Refuge managers must refer to the Appropriate Uses Chapter
(603 FW 1).
D. Access to sacred sites. Refuge managers will accommodate access
to and ceremonial use of sacred sites by religious practitioners of
recognized Native American Tribes and Native Hawaiians in accordance to
Executive Order 13007 or 614 FW 1-5. Refuge managers, with help from
their regional cultural resource staff, must familiarize themselves
with Executive Order 13007, which clarifies and highlights procedures
to execute this policy. Refuge managers should understand that these
sites are sensitive, and allowing uncontrolled access by the general
public to them is unacceptable. Refuge managers must ensure the
physical integrity of the sites, including maintaining appropriate
location confidentiality. Refuge managers will utilize formal
agreements to outline the responsibilities of all parties involved in
implementing the Executive Order.
1.10 Are there general criteria that we can use to decide which
recreational activities to allow? The following general criteria will
help Refuge managers decide what recreational activities to allow,
encourage, or develop, and at what level. Refuge managers must
eliminate, with adequate consultation, documentation and cooperation
with affected Federal, State, Tribal, local authorities, and groups,
programs that do not meet these criteria.
A. Ensure appropriateness. Refuge managers, in consultation with
Regional Offices when deemed necessary, must first consider if a use is
appropriate on System lands. Refuge managers must be able to show why
the requested use supports the System mission and the purpose of the
refuge before investing additional resources for a compatibility
determination.
B. Ensure compatibility. Refuge managers must:
(1) Exercise sound professional judgment. Compatibility
determinations are inherently complex and require the Refuge Manager to
consider their field experiences and knowledge of a refuge's resources,
particularly its biological resources, and make conclusions that are
consistent with principles of sound fish and wildlife management and
administration, available scientific information, and applicable laws.
(2) Consider the extent to which available resources (funding,
personnel, and facilities) are adequate to develop, manage, and
maintain the proposed use so as to ensure compatibility. The Refuge
Manager must make reasonable efforts to ensure that the lack of
resources is not an obstacle to permitting otherwise compatible
wildlife-dependent recreational uses (hunting, fishing, wildlife
observation, wildlife photography, environmental education, and
interpretation).
(3) Under no circumstances (except emergency provisions necessary
to protect the health and safety of the public or any fish or wildlife
population) authorize any use not determined to be compatible.
C. Focus on wildlife. Wildlife conservation is the first priority
of the System, and new and ongoing recreational use programs should
help visitors focus on wildlife and other natural resources. Activities
should make visitors aware of the most important resource issues at the
refuge, be supportive of management plans that address those issues,
and show how the refuge contributes to the mission of the System.
D. Tailor programs to refuge needs and ability to administer the
program. Refuge Managers will determine and document:
(1) The design and scope of a refuge recreational use program after
evaluating the wildlife-dependent uses that are appropriate,
compatible, and practical at that refuge; the amount and type of
visitation; constraints of the location; traditions/viewpoints of the
local populace; legal commitments; other opportunities in the area;
public interest; resource management concerns; and other criteria.
(2) A realistic demand for the activity. This is important because
activities generally are harder to curtail or stop than to begin.
Refuge Managers must have an eye to the future and be ready for
possible changes in staffing, funding, or other program elements that
may occur.
E. Follow an approved plan. Before administering priority uses or
identifying and allowing mandated or non-priority uses at a refuge, the
Refuge Manager should consult the refuge's CCP, visitor service
management plan,
[[Page 3687]]
and other applicable step-down plans. The documents will outline
program objectives and other specific information that will provide the
guidance needed to manage these activities.
F. Ensure adequate resources. Refuge managers will:
(1) Offer wildlife-dependent recreational use programs only to the
extent that staff and funds are sufficient to develop, operate, and
maintain the program to safe, high quality standards. Refuge managers
should remember that, in general, the greater the scope and complexity
of a program, the greater the need for staff and money. Where wildlife-
dependent recreational uses cannot occur at a refuge due to
insufficient resources, Refuge managers will try to facilitate these
programs through user fee programs and cooperative efforts, including
memorandums of understanding, cost share agreements, sharing personnel
with nearby refuges, and others. Conservation partnerships or other
groups can help Refuge managers more effectively finance and administer
recreational use programs on refuges by providing labor, funds, or
other types of support. Where available and appropriate, Refuge
managers should work with cooperating associations, volunteers,
contractors, businesses, local communities, educational institutions,
State and Tribal governments, other Federal agencies, conservation
groups, other organizations, and the public, to minimize or reduce the
costs of conducting recreational use programs. The community relations
benefits of such an approach are effective and far-reaching.
(2) Seek opportunities to develop formal agreements, contracts,
cooperative ventures, and community sponsorships to fund equipment and
supplies, maintain facilities, conduct training, provide technical
assistance, and help with other aspects of a quality recreational use
program. Refuge managers should not enter into agreements that
unnecessarily encumber lands and facilities or hinder meeting resource
management objectives at the refuge.
1.11 Have we identified visitor service requirements on refuges?
Yes. Service employees, volunteers, concessionaires, and other
cooperators should conform to the following standards in planning,
conducting, and evaluating all visitor services activities and
facilities at refuges. These standards replace those outlined in the
Public Use Minimum Requirements Handbook adopted by the Service in
1984.
A. Requirement 1. Develop a Visitor Services Plan. Through CCP's
and visitor services plans, we will set goals, determine measurable
objectives, identify strategies, and establish evaluation criteria for
all visitor services. Careful planning provides the visiting public
with opportunities to enjoy and appreciate fish, wildlife, and plants
and other resources. As a result, the visiting public will develop an
understanding and will build an appreciation of each individual's role
in the environment today and into the future.
B. Requirement 2. Welcome and Orient Visitors. We will assure that
national wildlife refuges are welcoming, safe, and accessible. We
should regularly schedule some refuge staff to work weekends, and
holidays (except Thanksgiving, Christmas, and New Years Day) and other
anticipated periods of high public recreational use. We will provide
visitors with clear information so they can easily determine where they
can go, what they can do, and how to safely and ethically engage in
recreational and educational activities. Facilities will be high
quality, clean, well-maintained, and accessible. We will treat visitors
with courtesy and in a professional manner.
C. Requirement 3. Provide quality hunting opportunities. Hunting is
an appropriate use of wildlife resources of the System when compatible.
Hunting programs will be of the highest quality, conducted in a safe
and cost-effective manner, and, to the extent practicable, carried out
in accordance with State regulations. (Reference 605 FW 2).
D. Requirement 4. Provide quality fishing opportunities. Fishing is
an appropriate use of wildlife resources on units of the National
Wildlife Refuge System when compatible. Fishing programs will be of the
highest quality, conducted in a safe and cost-effective manner, and, to
the extent practicable, carried out in accordance with State
regulations. (Reference 605 FW 3).
E. Requirement 5. Provide quality wildlife observation and wildlife
photography opportunities. Wildlife observation and wildlife
photography (reference 605 FW 4 and 605 FW 5 respectively) are
appropriate wildlife-dependent recreational uses of System lands when
compatible. Visitors of all ages and abilities will have an opportunity
to observe and photograph key wildlife and habitat resources of the
refuge. Viewing and photographing wildlife in natural or managed
environments will foster a connection between visitors and natural
resources.
F. Requirement 6. Develop and implement a quality environmental
education program. Through formal, curriculum-based environmental
education tied to national and State education standards, we will
advance public awareness, understanding, appreciation, and knowledge of
key fish, wildlife, plant, and resource issues. Each refuge staff
person will assess their potential to work with schools in providing an
appropriate level of environmental education. We may support
environmental education through the use of facilities, equipment,
educational materials, teacher workshops, and study sites that are safe
and conducive to learning. (Reference 605 FW 6).
G. Requirement 7. Interpret key resources and issues. We will
communicate the most important fish, wildlife, habitat and other
resource issues to visitors of all ages and abilities through effective
interpretation. We will tailor messages and delivery methods to
specific audiences and present them in appropriate locations. Through
heightened awareness, we will inspire visitors to take positive actions
supporting refuge goals and the System mission. (Reference 605 FW 7).
H. Requirement 8. Manage for appropriate recreational
opportunities. The National Wildlife Refuge System Administration Act
as amended by the National Wildlife Refuge System Improvement Act of
1997 states that compatible wildlife-dependent recreational uses are
the priority public uses of the National Wildlife Refuge System
(hunting, fishing, wildlife observation, wildlife photography,
environmental education, and interpretation) and will receive enhanced
consideration over other general public uses. Volunteers, partners,
recreation fees and concessions are tools available to assist us in
managing these uses. We will only permit other uses when we determine
that they are legally mandated, provide benefits to the Service, occur
due to special circumstances, or facilitate one of the priority
wildlife-dependent recreational uses. (Reference 605 FW 1).
I. Requirement 9. Communicate key issues with off-site audiences.
Effective outreach depends on open and continuing communication between
the refuge and the public. This communication involves determining and
understanding the issues, identifying audiences, crafting messages,
selecting the most effective delivery techniques, and evaluating
effectiveness. Achieved results will further the mission of the System
and purpose(s) of the refuges. See the National Outreach Strategy: A
Master Plan for Communicating in the U.S. Fish
[[Page 3688]]
and Wildlife Service, and America's National Wildlife Refuge System:
100 on 100 Outreach Campaign.
J. Requirement 10. Build volunteer programs and partnerships with
refuge support groups. Volunteer and refuge support groups fortify
refuge staffs with their gift of time, skills, and energy and are
integral to the future of the System. Refuge staff will initiate and
nurture relationships with volunteers and refuge support groups, and
will continually support, monitor, and evaluate these groups with the
goal of fortifying important refuge activities. The National Wildlife
Refuge System Volunteer and Community Partnership Enhancement Act of
1998 (P.L. 105-242) strengthens the System's role in developing
effective partnerships with various community groups. Whether through
volunteers, refuge support groups, or other important partnerships in
the community, refuge personnel will seek to make the refuge an
integral part of the community, giving rise to a stronger System.
Draft Hunting Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 2 Hunting 605 FW 2.1
2.1 What is the purpose of this chapter? This chapter provides the
Fish and Wildlife Service's (Service) policy governing the management
of recreational hunting on units of the National Wildlife Refuge System
(System or we).
2.2 To what programs does this chapter apply? The policies
contained in this chapter apply to recreational hunting within the
System. Refer to other chapters or regulations governing policies and
procedures addressing related activities such as guiding (604 FW 7) and
field trials (631 FW 5).
2.3 What is our policy on hunting on refuge lands? The overarching
goal of our priority public use policies is to enhance opportunities
and access to high quality visitor experiences on national wildlife
refuges while not compromising wildlife conservation. We recognize
hunting as a healthy, traditional outdoor pastime, deeply rooted in
American heritage, and when managed appropriately, can instill a unique
understanding and appreciation of wildlife, their behavior, and their
habitat needs. Hunting also is an important wildlife management tool on
refuges. Hunting is a legitimate and appropriate public use of the
System, and along with the five other priority public uses in the
Refuge Improvement Act, will receive enhanced consideration over other
uses. This means we will invest our resources and imagination in
providing high quality hunting experiences for refuge visitors. When
determined to be compatible, refuge managers are strongly encouraged to
provide public hunting opportunities. Hunting programs will promote
understanding and appreciation of natural and cultural resources and
their management on all lands included in the System. We rely on close
cooperation and coordination with State fish and wildlife management
agencies in managing hunting opportunities on refuges and in setting
refuge population management goals and objectives. Regulations
permitting hunting of resident wildlife within the System shall be, to
the extent practicable, consistent with State fish and wildlife laws,
regulations, and management plans. We encourage refuge staff to develop
and take full advantage of opportunities to work with other partners
who have an interest in helping us promote high quality hunting
programs on refuges.
2.4 What are the objectives for our hunting programs? The
objectives of the System hunting program are to promote public
understanding of and increase public appreciation for America's natural
resources, to manage wildlife populations at optimum levels, and to
provide opportunities for high-quality recreational and educational
experiences.
2.5 What are the authorities that allow hunting on the System?
Refer to 605 FW 1 for laws that govern hunting on System lands.
2.6 Do we have common definitions for hunting terms? Yes. The
following are definitions of terms used in reference to hunting.
A. Open to the public. Open to public hunting means we allow
individuals who hold, if required, valid licenses, permits, stamps or
other documents to enter and take specific wildlife species. Areas open
to hunting may differ from areas open to the general public for other
recreational activities. We note this distinction on signs and in
outreach materials, such as general refuge or hunting brochures.
B. Quality hunting experience. A quality hunting experience is one
that:
(1) Maximizes safety for hunters and other visitors;
(2) Encourages the highest standards of ethical behavior in taking
or attempting to take wildlife;
(3) Is available to a broad spectrum of the hunting public;
(4) Contributes positively to or has no adverse affect on
population management of resident or migratory species;
(5) Reflects positively on the individual refuge, the System, and
the Service;
(6) Provides hunters uncrowded conditions by minimizing conflicts
and competition among hunters;
(7) Provides reasonable challenges and opportunities for taking
targeted species under the described harvest objective established by
the hunting program. It also minimizes the reliance on motorized
vehicles and technology designed to increase the advantage of the
hunter over wildlife;
(8) Minimizes habitat impacts;
(9) Creates minimal conflict with other priority wildlife-dependent
recreational uses or refuge operations; and
(10) Incorporates a message of stewardship and conservation in
hunting opportunities.
C. Special weapons hunts. Special weapons hunts limit the choice of
weapons individuals can use in the field to take big game (e.g., elk,
deer). Bows, shotguns, and black powder guns may be classified as
special weapons. We generally authorize special weapons hunts with
appropriate conditions, such as ``Archery Only,'' ``Primitive Weapons
Only,'' or ``Shotgun Only,'' unless these hunts are spatially separated
by season.
D. Inviolate sanctuaries. A national wildlife refuge, or portions
thereof, acquired or established in one of the following ways:
(1) Acquired with the approval of the Migratory Bird Conservation
Commission (MBCC) for the purpose of an inviolate sanctuary;
(2) Established by an instrument or document that states that we
intend to manage the area as an ``inviolate sanctuary for migratory
birds'' or to fulfill the purpose of the Migratory Bird Conservation
Act.
E. Tournament hunting. A hunting competition for monetary or other
prizes, such as a ``Big Buck'' contest.
2.7 When do we address the decision to allow hunting for proposed
additions to the National Wildlife Refuge System? When lands and waters
are under consideration for addition to the System, the Refuge Manager
will make an interim compatibility determination on any existing
priority public uses. The record of decision establishing or expanding
hunting on the refuge must document the completion of such
determinations. The results of these determinations are in effect until
the completion of a Comprehensive Conservation Plan (CCP). It is during
the development of the CCP and implementation of the National
[[Page 3689]]
Environmental Policy Act (NEPA) that we accept and incorporate public
comments into the hunting decision on the refuge.
2.8 How do we open System lands to hunting? The decision to open a
refuge to hunting depends on the provisions of laws and regulations
applicable to the specific refuge and a determination by the Refuge
Manager that opening an area to hunting will be compatible. This
decision must also be consistent with the principles of sound wildlife
management, applicable wildlife objectives, and otherwise be in the
public interest (see 50 Code of Federal Regulations (CFR) 32.1).
A. Specific conditions. The following conditions apply to hunting
on certain units of the System.
(1) Inviolate sanctuaries. We may allow hunting of migratory game
birds on no more than 40 percent of the total area unless the Secretary
finds that taking of any such species in more than 40 percent of such
area would be beneficial to the species (NWRSAA). If we open only 40
percent of an inviolate sanctuary to migratory bird hunting, the opened
area could conceivably contain 100 percent of the habitat for migratory
birds and comply with the law. However, we must first determine if the
proposal is compatible with the purposes of the refuge and the System
mission. Before we can open more than 40 percent of an inviolate
sanctuary to hunting, we must publish the reasons for doing so in the
Federal Register. Because of this requirement, the Director, under
delegation from the Secretary, must approve all proposals to open more
than 40 percent of an inviolate sanctuary to migratory bird hunting.
Regional Directors retain the authority to open more than 40 percent of
areas on refuges that are not inviolate sanctuaries. Refuge managers
must carefully evaluate all such proposals to ensure the proposed
action will be compatible. Inviolate sanctuary classification imposes
no limits on hunting non-migratory birds or other game species.
(2) Waterfowl Production Areas (WPAs). WPAs are open to hunting in
accordance with State law (50 CFR 32.1) as long as it is compatible. A
hunting plan or rulemaking document is not necessary to open these
areas to hunting. We may restrict WPA hunting programs and under 50 CFR
32.1, we may also close WPAs to hunting and other public use if
circumstances warrant.
(3) Wetland easements. We have no authority over hunting on wetland
easements, which we most often acquire as part of the Small Wetland
Acquisition Program, unless we purchased specific rights with the
easements. For these easements, the landowner has usually retained all
rights to control public access, including for hunting and other
recreational uses.
(4) Easement refuges. The rights acquired with the individual
easement refuge determines our control of hunting on easement refuges.
The Regional Director is responsible for determining the extent of our
control over hunting on these areas. If we control hunting, the Refuge
Manager must follow all procedures required to open a refuge to
hunting.
(5) Farm Service Agency Easements formerly Farmers Home
Administration (FmHA)). We have no authority over hunting or other
forms of public use on easements obtained through the various Farm
Service Agency inventory property easement programs of 1985, 1990, and
1996. The landowner retains the right to control access for hunting and
other recreational uses.
(6) National wildlife refuges in Alaska. The Alaska National
Interest Lands Conservation Act (ANILCA) (16 U.S.C. 410hh-3233 and 43
U.S.C. 1602-1784) opens all national wildlife refuges in Alaska to
hunting under applicable Federal and State law as long as it is
compatible (50 CFR 36.32). A hunting plan or rulemaking document is not
necessary to permit hunting on these refuges. We may prohibit or
restrict the taking of wildlife only in conjunction with notices and
hearings under the requirements of 50 CFR 36.42 regarding public
participation and closure procedures. Local rural residents may hunt
wildlife for subsistence uses in compliance with applicable Federal and
State laws. Under ANILCA, non-wasteful subsistence use of wildlife by
rural residents has priority over other consumptive uses permitted on
national wildlife refuges in Alaska.
B. Evaluation criteria for hunting programs. We will use the
following criteria and standards to evaluate hunting programs on units
of the System:
(1) Compatibility. A hunting program must be compatible with the
purpose(s) of the refuge and the System mission.
(2) Biological integrity, diversity, and environmental health. We
maintain, or contribute to the maintenance of, populations of native
species. We design our wildlife population management strategies to
support accomplishing refuge purposes while maintaining or restoring
biological integrity, diversity, and environmental health (see 601 FW
3). We formulate refuge goals and objectives for population management
by considering natural densities, social structures, and population
dynamics at the refuge level and population objectives set by national
plans and programs--such as the North American Waterfowl Management
Plan--in which the System is a partner.
(3) Relationship with other public use programs. An integrated
approach to providing opportunities for compatible wildlife-dependent
recreational uses will minimize conflicts between individuals
participating in these uses. We will evaluate time and space scheduling
and zoning as methods to ensure opportunities for quality experience
among different user groups.
(4) Resources. Providing quality recreational experiences for the
public requires appropriate funding, facilities, and staff. The House
Report accompanying the House of Representatives version of the
National Wildlife Refuge System Improvement Act of 1997 (H. Rpt. 105-
106) encourages refuge managers to take reasonable steps to obtain
outside assistance from States and other conservation interests, if
adequate financial resources are not available to manage a priority use
in a compatible manner. Refuge managers should work closely with State,
community, and conservation partners to help obtain necessary resources
to manage the priority wildlife-dependent recreational use programs.
Potential sources of support include the following: hunting
organizations, user fees for hunting; cooperating with State, local, or
Tribal agencies; and assistance from refuge support groups or
volunteers. We encourage refuge managers to seek and implement other
opportunities to obtain additional resources as they become available.
(5) Evaluation and monitoring. Refuge managers must monitor and
evaluate their hunting programs regularly. Refuge managers should
evaluate both the quality of the recreation experience and the effects
of the activity on refuge resources. A wide variety of evaluation tools
exist, from simply asking the hunting public how they rate their
experience to contracting with a university or private company to
conduct a formal survey. If a Refuge Manager decides to use a survey to
evaluate the hunting experience, he or she must receive approval from
the Office of Management and Budget on the information collection
process before conducting any public surveys.
C. Consultation and coordination. (1) Coordination with states.
When a refuge, or portion thereof, is open to hunting, we allow hunting
within the
[[Page 3690]]
framework of applicable State regulations. We consult with the State,
Tribes, and other appropriate authorities during the development of
hunting programs and whenever we plan significant changes. Refuge
regulations must be consistent with State regulations, to the extent
practicable. The use of more restrictive regulations requires
consultation with the State. We must list regulations that are more
restrictive than State regulations, such as seasons and fishing hours
as refuge-specific regulations in 50 CFR part 32. Refuge-specific
regulations must not weaken existing State laws and regulations. We
must justify deviations from State regulations in the refuge hunting
plan or amendments to that plan.
(2) Endangered species consultation. We will review all hunting
programs annually to determine if they may affect, adversely or
beneficially, threatened or endangered species and their habitats. The
Refuge Manager will initiate consultation as appropriate, under Section
7 of the Endangered Species Act and intra-Service consultation
procedures.
(3) Public involvement. The appropriate level of public involvement
must accompany new or significant changes to existing hunting programs.
Refuge managers must plan efforts well in advance of the proposed
changes in order to obtain as much involvement from groups and
individuals as possible. A variety of methods are available for the
Refuge Manager to use to involve and inform the public, including
public meetings, workshops, news releases, and mailings to interested
groups. We encourage refuge managers to continue to use these and other
methods. We require an outreach plan developed in coordination with
Regional External Affairs Offices for new hunting programs or any major
changes affecting existing programs.
D. Documentation required to open a refuge to hunting. The Refuge
Manager must submit the following documents to the appropriate staff in
the Regional Office to open a refuge to hunting. The Regional Office
then forwards a copy of these documents to the National Wildlife Refuge
System Headquarters for preparation of a rulemaking document.
(1) Step-down hunting plan. This plan should be a step-down plan of
the refuge's CCP which must include a compatibility determination on
the hunting program. If the unit has not yet completed a CCP, the step-
down hunting plan must contain a compatibility determination until the
CCP is completed. The hunting plan should be an appendix to the overall
plan for providing public uses on refuges. The plan will provide
documentation of the hunting allowed on a refuge, including the
relationship of hunting to refuge purpose(s), goals, and objectives and
the System mission. The suggested format for a refuge hunting plan is
labeled as Exhibit 1 in this chapter.
(2) Appropriate NEPA documentation.
(3) Appropriate decision documentation.
(4) Section 7 evaluation. (See Exhibit 2 for information on Section
7 evaluation.)
(5) Copies of letters requesting State, and, where appropriate,
tribal involvement and the results of the request.
(6) Draft news release.
(7) Outreach plan. (We label a Directorate-approved outline for an
Outreach Plan as Exhibit 3.)
2.9 Who prepares and reviews a refuge hunting plan? The Refuge
Manager, with technical assistance as needed from the Regional Office
and State and Tribal wildlife agencies, is responsible for preparation
of the hunting plan. The Regional Director approves the plan before the
rulemaking process begins. The Regional Office sends copies of the
approved hunting plans to Headquarters (including the approved outreach
plan) for concurrence. During the rulemaking process, Headquarters
staff use the hunting plan as reference material and supporting
documentation. The Refuge Manager must annually review hunting plans
for each refuge where we allow hunting. The Refuge Manager must refer
to this plan in the Refuge Public Use Plan or CCP and provide overall
documentation of the hunting allowed on a refuge.
2.10 What information do we need for publication in the Federal
Register? The Refuge Manager must submit information about what species
we propose to open for hunting and the conditions of the proposed hunt
once we determine the proposal to be compatible and document the
results in an approved hunting plan. The Regional Liaison must forward
copies of this information to the Federal Register Liaison at
Headquarters for the development of the proposed and final refuge-
specific regulations (codified in 50 CFR), which we publish in the
Federal Register. If a Refuge Manager proposes to open more than 40
percent of an inviolate sanctuary to migratory game bird hunting, we
must also publish the justification in the Federal Register.
2.11 What is the refuge-specific regulations process? The refuge-
specific regulation process is outlined below:
A. Headquarters must publish in the Federal Register, proposed
refuge-specific regulations pertaining to a refuge's hunting program
that are necessary to conduct that program prior to them becoming
effective. Refuge managers must forward all refuge-specific regulations
through appropriate channels to Headquarters for clearance and
submission to the Federal Register. The refuge is open to hunting
officially after the effective date of the final rule. Hunting can
begin concurrently with or after the opening of the State season.
B. Refuge managers must review these regulations and the refuge
hunting plan annually to ensure compatibility and consistency of the
hunting program with existing laws and regulations. Refuge managers
must submit any amendments (additions, deletions, or modifications)
each year to the designated regional hunting and fishing program
coordinator who, in turn, sends that information to Headquarter's
Federal Register Liaison for inclusion in the rulemaking documents for
publication in the Federal Register. Headquarter's Federal Register
Liaison must receive this information by January 31 each year to allow
sufficient time for compilation and review by concerned program offices
and the Solicitor, signature by the Assistant Secretary, and the
Departmental review for both proposed and final rules. This includes a
30-day public comment period on the proposed rule. We cannot publish a
refuge opening without the complete hunting package. If no amendments
are necessary, refuge managers should submit a negative response to
that effect to the Regional Office (to the attention of the hunting and
fishing program coordinator). Refuge-specific regulations should be
standard and consistent in format throughout the System. We include
guidelines for preparing and submitting regulations and amendments in
Exhibit 4.
2.12 How do we revise a hunting plan? The Refuge Manager may
approve all revisions in hunting plans except major revisions. Major
revisions in hunting plans (e.g., addition of big game to a hunting
program, designating hunts for special weapons use only) must occur as
an amendment to the hunting plan unless the original plan included
specific conditions under which that revision could occur. The
preparation and approval of amendments follows the same guidelines as
preparation and approval of the original plan. Submit only the revised
portion of the plan for approval to the Regional Office. The
[[Page 3691]]
Regional Director approves revisions only when Headquarters has already
listed the refuge in 50 CFR as open to that particular category of
hunting. Otherwise, refuge managers must submit the amended hunting
plan for rulemaking. Opening a refuge to new categories requires the
appropriate National Environmental Policy Act (NEPA) findings.
2.13 What are the guidelines for refuge hunting programs? We should
plan, manage, conduct, and evaluate refuge hunting programs on a
consistent basis in ways that ensure hunter and visitor safety, and
promote positive values such as fair chase, high ethical standards, and
respect for the resource. Hunting on refuges must have the attributes
of a quality hunt as defined in section 2.6B. The following guidelines
should help ensure quality opportunities are available.
A. Permits. We require hunters to have all applicable Federal,
State, and Tribal licenses or stamps in their possession. We can issue
refuge permits to limit participation or gather information. If we use
refuge permits to limit hunter numbers, we will issue them on a random
basis to the public. Refuge managers should avoid complicated
application processes that require additional resources. Application
processes should be flexible to provide an opportunity to all potential
hunters. Under ANILCA, qualified rural subsistence hunters are given a
preference to harvest game on Alaska refuges as outlined by the rules
and regulations established by the Federal Subsistence Board. We should
coordinate with Tribal and State application and lottery processes
where practicable.
B. Fees. The Refuge Manager makes the decision to charge a fee in
coordination with the Regional Office. We have the authority to charge
fees for applications, refuge permits, and the use of facilities (i.e.,
hunting blinds) under existing recreation fee programs. We use fees
collected for visitor service enhancement projects, and resource
protection. The authority under which we collect fees contains
stipulations on how we may reinvest the monies. The Regional Fee
Coordinator can assist with the approval of fees as well as provide
information on the appropriateness of fund distribution.
C. Zoning recreational use. We desire a balanced hunting program
that allows a variety of quality hunting opportunities. For example,
designating areas for youth hunts, establishing areas that provide
access for hunters with disabilities, establishing ``special weapons''
areas, designating areas for seasonal or daily closures for consumptive
and non-consumptive use, designating areas for non-motorized boat use,
and establishing areas where hunters use methods to reduce crippling
loss, help us achieve a balanced hunting program and increase the
quality of the experience. We can also use zoning to reduce conflicts
between hunters and other users.
D. Law enforcement. Law enforcement is an important part of any
hunting program. It is used to ensure legal and equitable utilization
of fish and wildlife resources on refuges, as prescribed by law. Law
enforcement is also used to obtain compliance with laws and regulations
necessary for proper administration, management, and protection of the
System. The effort invested should be sufficient to protect human
safety, wildlife populations, and ensure compliance with regulations
based on past experiences and current circumstances.
E. Hunter access and vehicle control. Refuge managers must
carefully plan, manage, and evaluate access and vehicle control to
retain high levels of undisturbed opportunities. Refuge managers should
strongly encourage those opportunities not dependent upon the use of
motorized vehicles. We can make exceptions to general access
restrictions for hunters with disabilities when necessary to facilitate
their experience, and when compatible with resource management
objectives. For example, refuge managers may issue special use permits
to hunters with certain disabilities for access to hunt blinds, or
retrieval of downed game. Refuge managers could require specific
physician's documentation before providing the disabled hunter a
special use permit.
F. Camping. We may allow camping on refuges when it is necessary to
support hunting opportunities. Camping is appropriate only when no
reasonable (based on time, distance and expense) lodging opportunities
are available off-refuge and when staff resources needed to manage
camping do not detract from the quality of another priority wildlife-
dependent recreational use. Large refuges in the western United States,
refuges in Alaska, and some remote refuges allow camping under this
criteria. See the Appropriate Refuge Uses chapter (603 FW 1) for
additional information.
G. Hunting by service staff. Service employees are subject to the
same rules and regulations as the general public. If only limited
hunting opportunities exist, refuge managers should discuss with
Service employees the need to be sensitive to the possibility of the
public perception of conflict of interest. We never authorize Service
employees to wear uniform components outside of their official
capacity. When employees participate in off-duty hunting opportunities,
they are not authorized and, therefore, should never wear uniform
components (e.g., uniform ball caps, uniform jeans). When Service
employees actively participate in assigning limited hunting permits,
they will not participate in that particular hunt on those affected
refuge lands. In addition, personnel may not use means of access to
hunt in areas that are not available to the general public.
H. Communication materials. Professionally developed outreach
materials will benefit refuge managers by providing clear and thorough
information to hunters. Brochures must conform with the U.S. Fish and
Wildlife Service Graphics Standards and be consistent with refuge-
specific regulations. Contact your Regional Publications Coordinator
for graphic standards. Refuge managers do not need to include
regulations and dates that are identical to State seasons. Include
information that encourages hunters to hunt safely and ethically. We
encourage refuge managers to use electronic media, such as the
Internet, to distribute information. Refuge managers should work with
Regional Office staff to provide information on standards and
guidelines for all communications materials.
I. Equipment. Refuge managers may place limits on certain equipment
such as decoys, boats, tree stands, and type of firearm or ammunition
if they determine that such limits reduce crippling loss, resource
damage, hunter conflicts, or improve the quality of the hunt.
J. Boundary hunting. We discourage boundary hunting adjacent to
closed areas of refuges. We can alter boundary lines or habitat, or
eliminate parking areas and access roads, to distribute hunters or
modify wildlife use patterns in ways that make boundary hunting less
appealing. Refuge managers must use retrieval zones sparingly and only
to prevent waste by allowing the retrieval of dead or crippled game.
Prior to establishing these zones, managers should consider adjusting
hunt boundaries as well as the cost of signing and enforcing
restrictions. Limit the entry of hunters into closed areas wherever
possible. Retrieval of big game may require entry, with permission,
into closed areas.
K. Check stations. Use check stations only as a means to monitor
the hunt, gather important information that we cannot obtain in a less
expensive
[[Page 3692]]
manner, or gather biological information about animal populations.
Refuge managers should evaluate the continued use of check stations
periodically to determine if there is a more cost-effective means of
providing quality hunting services. Use permanent check stations only
to control the hunting area access and not to enforce hunting
regulations.
L. Data collection. Refuge managers should evaluate hunting
programs to determine if we are meeting objectives. Refuge managers
should consult with the State regarding data collection needs and
survey methods.
M. Proficiency testing. Generally, we will not require mandatory
testing or qualifications above State requirements. If a Refuge Manager
wants to implement a proficiency test more restrictive than that
required by the State, the Refuge Supervisor must approve the test. For
example, if hunters were not allowed to take black ducks or mallard
hens on a refuge but were permitted to take gadwalls, the hunter could
be required to show proficiency in the identification of gadwalls and
other waterfowl.
N. Hunting with dogs. The use of properly trained dogs is an
important part of the American hunting tradition, enhances the quality
of the hunting experience, and can reduce the loss of crippled game. We
recognize the long relationship between dogs and hunters. However, in
our effort to emphasize high-quality visitor experiences which minimize
visitor use conflicts and wildlife disturbance, we must make
distinctions between various uses of dogs for hunting. Not all uses of
dogs for hunting will fit with System quality hunting experience goals.
We do not allow hunting dogs in areas closed to hunting or other
public use and we only allow their use in the following circumstances:
(1) Retrievers. We encourage the use of trained retrieving dogs for
waterfowl. Emphasize the value of trained retrievers in reducing the
loss of downed birds in outreach materials promoting the hunting
program.
(2) Pointing and flushing dogs. Typically, hunters use pointing and
flushing dogs in pursuit of upland game birds. Well-trained pointing
and flushing dogs enhance a hunting experience by creating more
opportunities and finding and retrieving downed birds.
(3) Pursuit hounds. Refuge managers will carefully consider the
impacts of the use of pursuit hounds on the refuge. When evaluating
compatibility of hunting with pursuit hounds, a Refuge Manager will
include the following discussion points in the compatibility
determination:
(a) The likelihood of pursuit hounds injuring or annoying wildlife
to such an extent as to significantly disrupt normal behavioral
patterns of non target species;
(b) The likelihood of pursuit hounds interfering with the quality
of the experience of other refuge visitors;
(c) The likelihood of pursuit hounds venturing out of open hunting
areas and entering closed areas or adjacent private lands; and
(d) The effects of pursuit hounds ranging out of the hunter's
control and being left on the refuge for an extended period of time.
O. Special weapons hunts. We offer hunting opportunities to as
broad a spectrum of the public as possible. Consider special weapons
hunts, as defined in section 2.6C, under some of the following
conditions:
(1) Safety. Extremely dense cover, agricultural fields, or other
vegetation characteristics may create situations where rifles are not
appropriate. Configuration of hunt areas, such as long, narrow
corridors or occupied inholdings, may also create situations where we
should only allow specific weapons due to safety considerations.
(2) Limited harvest. In cases where there are relatively low
populations or other limited harvest opportunities, offering special
weapons hunts could be a method to provide hunting opportunities where
they would otherwise not exist.
(3) State seasons for special weapons. In some States, the State
designates separate seasons for specific weapons. When the State
conducts archery, black powder, and other special seasons, it may be
appropriate for refuge hunts to accommodate them. The decision as to
whether a special weapons hunt approved by the State is compatible on
the refuge lies with the Refuge Manager.
P. Falconry. If falconry is deemed appropriate and compatible on
the refuge, it must be conducted under applicable Federal, State, and
Tribal regulations. Refuge managers should consider:
(1) Will the refuge falconry hunting area provide a quality and
safe falconry experience? For example, is the area large enough for a
raptor to fly, stoop, and capture prey and be unobstructed by barbed
wire fences or power lines?
(2) Will endangered or threatened species be harassed (see 50 CFR
17.11)?
(3) Will falconry negatively impact adjacent land uses (e.g., a
nearby poultry farm) or will adjacent land uses affect the falconry on
the refuge (e.g., a neighboring race track)?
Q. Nontoxic shot. Hunters may possess only nontoxic shot that
conforms with the standards identified in 50 CFR 32.2(k) while hunting
with shotguns or muzzle loaders on WPA's, or on certain other areas of
the System. This regulation does not apply to turkey and deer hunters
using buckshot or slugs, except as specifically limited by refuge-
specific regulations.
R. Night hunting. We allow night hunting when it is appropriate and
compatible with the purpose(s) of the refuge and the mission of the
System. If a refuge is generally not open after sunset, refuge managers
may make an exception and allow night hunting. Refuge managers must
base the decision on specific refuge objectives and not historical use.
Reference the General Recreation Guidance Chapter, 605 FW 1, for
additional information about after-hours activities.
S. Tournament hunting. We prohibit this type of hunting on System
lands and waters unless we make a specific determination that the event
builds appreciation for and an understanding of fish and wildlife
resources, does not reasonably interfere with other refuge visitors,
and if prizes of only nominal value are awarded. Refer to the
Appropriate Uses Chapter (603 FW 1) for additional discussions of
competitive events.
T. Youth hunting. We encourage refuge managers to set aside areas
or times to promote hunting by children or under represented groups.
Experiencing hunting in a safe environment and exposure to proper
hunting methods is important to developing life skills and public
support for healthy ecosystems. Refuge managers should take advantage
of these opportunities to educate young hunters and their parents about
the importance of wildlife management.
2.14 How do we close a refuge to hunting? The Refuge Manager may
close all or any part of a refuge that we have opened to hunting
whenever necessary to protect the resources of the area or in the event
of an emergency endangering life, property, or any population of
wildlife, fish or plants (50 CFR 25.21).
A. Emergency closure. We do not require advance public notice for
closure under emergency conditions. We will notify the public of such
closures by signs, special maps, or other appropriate methods.
B. Non emergency closure. We will evaluate non-emergency closure of
a refuge hunting program for impacts on wildlife populations,
ecosystems, and priority recreation uses. If the impacts are likely to
be major or controversial, we will prepare an environmental assessment
and follow the public
[[Page 3693]]
participation process identified in the National Environmental Policy
Act (NEPA). We will evaluate the impacts of the decisions and give
appropriate notification to the public. In Alaska, temporary closures
or restrictions relating to the taking of wildlife will not be
effective prior to the notice and hearing that we will conduct for an
emergency closure in the vicinity of the affected area(s) and may not
exceed 12 months.
Exhibit 1--Refuge Hunting Plan Format
I. Introduction
Include a general description of the refuge and information
pertinent to the planned hunting program. If a Refuge Manager
develops this hunting plan as a portion of an integrated public use
plan, we may not require this information. Include non repetitive
general information in the Comprehensive Conservation Plan.
II. Conformance with Statutory Authorities
Explain how the program will be compatible with the System
mission, the goals and objectives of the refuge, and the purpose(s)
for which the refuge was established. Include projections of the
resources (staff and funding) needed to conduct the program and
their sources. Include an explanation of how the program will
address the requirements of applicable authorities.
III. Statement of Objectives
List the major refuge objectives and the specific objectives of
the hunting program. Describe how hunting will impact the refuge
objectives.
IV. Assessment
Evaluate the hunting resources on the refuge populations and
habitats. Points to discuss include, but are not limited to, the
following:
a. Will populations sustain hunting and still support other
wildlife-dependent priority uses?
b. Do target species and other wildlife compete for habitat?
c. Do target species prey on other species at unacceptable
levels?
V. Description
Describe the program in detail, using graphics as needed. The
description should include:
a. Areas of the refuge that support target species.
b. Areas of the refuge to be opened to hunting.
c. Species designated for hunting and hunting periods.
c. Justification of permit system, if required.
d. Consideration of user fees.
e. Consultation and coordination procedures with States,
including justification of refuge-specific regulations.
f. Methods of control and enforcement.
g. Staffing and funding needs.
h. Consideration of providing opportunities for hunters with
disabilities.
VI. Measures Taken To Avoid Conflicts With Other Management Objectives
a. Biological conflicts. Include section 7 consultation, and
other measures proposed to minimize or eliminate conflicts with
endangered species or non target species.
b. Social conflicts. Include proposed measures that minimize or
eliminate conflicts with other user groups.
VII. Hunt Specifics
a. Refuge-specific regulations.
b. Outreach plan.
c. Hunter application and registration procedures (if needed).
d. Description of hunter selection process (if needed).
e. Draft news release regarding the hunting program.
f. Description of hunter orientation, including pre hunt
scouting opportunities.
g. Hunter requirements:
(1) State determined age requirement.
(2) Allowable equipment.
(3) Licensing and permits.
(4) Reporting requirements.
(5) Hunter training and safety.
(6) Other information (use of dogs, falconry, etc.)
VIII. Compatibility Determination
IX. Appropriate NEPA Documents
X. Evaluation
a. Monitoring and reporting use levels and trends.
b. Surveying needs of the hunting visitor.
c. Are we meeting program objectives?
d. Do we need to resolve any conflicts?
e. Refuge/Regional Office review schedule.
Exhibit 2--Priority Wildlife-Dependent Recreation (Hunting)
Use the following terminology for your Section 7 determination
as to whether the opening of your refuge to hunting and/or fishing
will affect the continued existence of any endangered or threatened
species or result in the destruction or adverse modification of
habitat of such species within the System.
Types of Effects
1. No effect: The appropriate conclusion when the Service
determines that a proposed Service action will not affect a listed
species or designated critical habitat.
2. Is not likely to adversely affect: The appropriate conclusion
when effects on listed species are expected to be discountable,
insignificant, or completely beneficial. Beneficial effects are
contemporaneous positive effects without any adverse effects to the
species. Insignificant effects relate to the size of the impact and
should never reach the scale where take occurs. Discountable effects
are those extremely unlikely to occur. Based on best judgment, a
person would not (1) be able to meaningfully measure, detect, or
evaluate insignificant effects; or (2) expect discountable effects
to occur.
3. Is likely to adversely affect: The appropriate finding in a
biological assessment (or conclusion during information
consultation) if any adverse effect to listed species may occur as a
direct or indirect result of the proposed Service action or its
interrelated or interdependent actions, and the effect is not:
discountable, insignificant, or beneficial (see definition of ``is
not likely to adversely affect''). In the event the overall effect
of the proposed Service action is beneficial to the listed species
but is also likely to cause some adverse effects, then the proposed
Service action ``is likely to adversely affect'' the listed species.
If incidental take is anticipated to occur as a result of the
proposed action, an ``is likely to adversely affect'' determination
should be made. This determination requires the initiation of formal
intra-Service section 7 consultation (see definition of ``informal
intra-Service consultation'').
4. May affect: The appropriate conclusion when a proposed action
may pose any effects on listed species or designated critical
habitat. When the Federal agency (in this case the Service)
proposing the action determines that a ``may affect'' situation
exists, then the Service must initiate formal consultation or seek
written concurrence from the involved Service programs that the
action ``is not likely to adversely affect'' listed species.
5. Is likely to jeopardize proposed or candidate species/
adversely modify proposed critical habitat: The appropriate
conclusion when the Service identifies situations where the proposed
Service action is likely to jeopardize the continued existence of a
species proposed for listing or a candidate species, or adversely
modify an area proposed for designation as critical habitat. If this
conclusion is reached, intra-Service conference is required.
Types of Consultation
1. Formal intra-Service consultation: A process between a
Service program authorizing an action and another Service program
affected by that action that: (1) Determines whether a proposed
Service action is likely to jeopardize the continued existence of
listed species or destroy or adversely modify designated critical
habitat; (2) begins with the Service program that authorizes the
action providing a written request and submitting a complete
initiation package to the affected Service program; and (3)
concludes with the issuance of a biological opinion and incidental
take statement by the affected Service program. If a proposed
Service action may affect a listed species or designated critical
habitat, formal intra-Service consultation is required (except when
the involved Service programs concur, in writing, that a proposed
action ``is not likely to adversely affect'' listed species or
designated critical habitat). (50 CFR 402.02; 50 CFR 402.14)
2. Informal intra-Service consultation: An optional process that
includes all discussions and correspondence between Service
programs, prior to formal intra-Service consultation, to determine
whether a proposed Service action may affect listed species or
critical habitat. This process allows the Service to utilize its in-
house expertise to evaluate a Service program's assessment of
potential effects or to suggest possible modifications to the
proposed action
[[Page 3694]]
which could avoid potentially adverse effects. If a proposed Service
action may affect listed species or designated critical habitat,
formal intra-Service consultation is required (except when the
involved Service programs concur, in writing, that a proposed action
``is not likely to adversely affect'' listed species or designated
critical habitat). (50 CFR 402.02; 50 CFR 402.13)
Exhibit 3--Outreach Plan Summary
I. Issue: (State the issue in one or two sentences.)
II. Basic Facts About the Issue:
III. Communication Goals:
IV. Message:
V. Interested Parties:
VI. Key Date:
VII. Strategy:
Exhibit 4--Guidelines for Preparation of Refuge-Specific Hunting
Regulations
Hunting regulations on national wildlife refuges accomplish
three major purposes: They protect the resource, manage it, and
ensure safety. State hunting regulations generally provide the
framework for meeting these three criteria. When State regulations
fall short of meeting these criteria, refuge-specific regulations
are necessary. These regulations should focus primarily on
management of the wildlife resource and should be enforceable. For
example, if we require permits on a specific refuge, a statement
that we require special refuge permits is all that is necessary.
Details are not appropriate in the regulations. Address details in a
leaflet or the permit application. Also, do not submit text for your
refuge unless it represents a CHANGE to the existing language in
part 32. If you are adding conditions to those already published,
state that these are ``adds'' and indicate where you want them
inserted in the text.
Duplications of existing 50 CFR provisions. When writing your
regulations, check 50 CFR to avoid duplication. For example, in Part
27, Prohibited Acts, Section 27.31 restricts motor vehicles to
``designated routes of travel. * * * delineated on maps by the
Refuge Manager;'' Section 27.81 adequately covers possession of
alcohol; and Section 27.95 prohibits setting fires.
Duplication of State regulations. 50 CFR 32.2 (d) states ``Each
person shall comply with the applicable provisions of the laws and
regulations of the State wherein any area is located unless further
restricted by Federal law or regulation.'' Therefore, do not repeat
State bag limits, seasons, etc., in the refuge-specific regulations.
Indicate differences in a cover memo that justifies differences and
deviations.
Preparation of refuge-specific regulations. List shell limits,
bag limits, seasons, and hours that differ from the State's in the
refuge-specific regulations.
Use the following as an example for your submission for
modifications to existing text:
Section 32.42 Minnesota.
Big Stone National Wildlife Refuge
B. Upland Game Hunting.
Replace the preamble to read as follows:
You may hunt partridge, pheasant, wild turkey, gray and fox
squirrel, cottontail and jack rabbit, red and gray fox, raccoon, and
striped skunk on designated areas of the refuge subject to the
following conditions:
Add new conditions B.2. and B.3. to read as follows:
B.2. You may hunt fox, raccoon, and striped skunk only during
open seasons for other small game species. You may not use dogs
while raccoon hunting.
B.3. You may hunt turkey only if you have a valid State turkey
hunting permit in your possession.
Use the following example for an addition of a refuge to part
32:
Section 32.20 Alabama.
Grand Bay National Wildlife Refuge
A. Hunting of Migratory Game Birds. We allow hunting of geese,
ducks, and coots on designated areas of the refuge subject to the
following condition: We require a refuge permit.
B. Upland Game Hunting. We allow hunting of squirrel and rabbits
on designated areas of the refuge subject to the following
condition: We require a refuge permit.
C. Big Game Hunting. We allow hunting of white-tailed deer on
designated areas of the refuge subject to the following conditions:
We require a refuge permit.
D. Sport Fishing. [Reserved]
Draft Recreational Fishing Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 3 Recreational Fishing 605 FW 3.1
3.1 What is the purpose of this chapter? This chapter provides the
Fish and Wildlife Service's (Service) policy governing the management
of recreational fishing on units of the National Wildlife Refuge System
(System or we).
3.2 To what programs does this chapter apply? The policies
contained in this chapter apply to recreational fishing on national
wildlife refuges, waterfowl production areas, and coordination areas,
which are all units of the System.
3.3 What is our policy on fishing on refuge lands? The overarching
goal of our priority public use policies is to enhance opportunities
and access to high quality visitor experiences on national wildlife
refuges while not compromising wildlife conservation. We recognize
fishing as a traditional outdoor pastime that is deeply rooted in
America's natural heritage. Fishing is a legitimate and appropriate
public use of the System, and along with the five other priority public
uses in the Refuge Improvement Act, will receive enhanced consideration
over other uses. This means we will especially invest our resources in
providing high quality fishing experiences for refuge visitors. When
determined to be compatible, refuge managers are strongly encouraged to
provide to the public fishing opportunities. Our fishing programs will
promote understanding and appreciation of natural and cultural
resources and their management on all lands included in the System. The
Service's Division of Fish and Wildlife Management Assistance and
Habitat Restoration has many field offices with a broad range of
expertise that are available to the Refuge Manager when planning and
managing fishing programs. We encourage refuge managers to take
advantage of this important resource. We rely on close cooperation and
coordination with State fish and wildlife management agencies in
managing fishing opportunities on refuges and in setting refuge
population management goals and objectives. Regulations permitting
fishing within the System shall be, to the extent practicable,
consistent with State fish and wildlife laws, regulations, and
management plans. We encourage refuge staff to take advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges.
3.4 What are the objectives for our fishing programs? The
objectives of the System's fishing program are to: effectively maintain
healthy and diverse fish population resources through the use of
scientific management techniques; to promote public understanding of,
and increase public appreciation for, America's natural resources and
the Service's role in managing the System; to provide opportunities for
high-quality recreational and educational experiences; and to minimize
conflicts between anglers and other visitors.
3.5 What are the authorities that allow fishing on the System?
Refer to 605 FW 1 for laws and Executive orders that govern fishing on
System lands.
3.6 Do we have common definitions for fishing terms? The following
are definitions of terms used in reference to fishing.
A. Open to the public. Open to the public for fishing means we
allow fishing by any individual who holds, if required, a valid
license, permit(s), stamp(s) or other document allowing the taking of a
specific species of fish on System waters. Areas open to fishing may
differ from areas open to the general public for other recreational
activities. We note this distinction through the use of signs and
outreach materials, such as general refuge brochures or fishing
brochures.
[[Page 3695]]
B. Quality fishing experience. A quality fishing experience is one
that contributes to management objectives and accomplishes the
following:
(1) Maximizes safety for anglers and other visitors;
(2) Causes no adverse impact on populations of resident or
migratory species, native species, threatened and endangered species,
or habitat;
(3) Encourages the highest standards of ethical behavior in regard
to catching, attempting to catch, and releasing fish;
(4) Is available to a broad spectrum of the public that visits, or
potentially would visit, the refuge;
(5) Provides reasonable accommodations for individuals with
disabilities to participate in refuge fishing activities;
(6) Reflects positively on the System;
(7) Provides uncrowded conditions;
(8) Creates minimal conflict with other priority wildlife-dependent
recreational uses or refuge operation;
(9) Provides reasonable challenges and harvest opportunities; and
(10) Increases the visitors understanding and appreciation for the
fisheries resource.
C. Native fisheries. Fish that, other than as a result of an
introduction, historically occurred in a specific watershed. By
``historically'' we mean a period identified as time before European
contact or settlement.
D. Tournament fishing. A fishing competition for monetary or other
prizes.
E. Shellfish harvest. The recreational harvest of abalone, clams,
crabs, crayfish, lobster, mussels, oysters, scallops, shrimp, or other
marine and freshwater invertebrates.
F. Nontoxic tackle. A weighted tackle (jigs and sinkers) made of
materials other than lead or lead alloys.
G. Nonnative/alien species. Any species, including its seeds, eggs,
spores, or other biological material capable of propagating that
species, that is not native to that ecosystem.
H. Set tackle. Any fishing hook(s), devices, or lines that are not
hand held or not attached to a fishing rod, reel, or pool under the
immediate control of the user (excludes rod and pole holders and ice
fishing tip-ups). In general terms, set tackle is any fishing tackle
designed, rigged, floating or tied off for the purposes of catching
fish while ``unattended'' by the fishing visitor (e.g., trotlines,
setlines).
I. Natural bait. Any natural live aquatic organism used to catch
target fish.
3.7 When do we address the decision to allow fishing for proposed
additions to the System? When lands or waters are under consideration
for addition to the System, the Refuge Manager will make an interim
compatibility determination on any existing priority public use. The
record of decision establishing fishing on the refuge must document the
completion of such determinations. The results of these determinations
are to be in effect until the completion of a Comprehensive
Conservation Plan (CCP). It is during the development of the CCP and
implementation of National Environmental Policy Act (NEPA) that we
accept public comments and incorporate them into the decision to allow
fishing on the refuge. Refer to the Comprehensive Conservation Planning
Process Chapter (602 FW 3) for detailed information on this process.
3.8 What are the procedures for opening System waters to fishing?
The decision to open a refuge to fishing depends on the provisions of
laws and regulations applicable to the specific refuge and a
determination by the Refuge Manager that opening the area to fishing or
harvest of other aquatic species will be compatible. This decision must
also be consistent with the principles of sound fishery management,
applicable fisheries objectives, and otherwise be in the public
interest (see 50 Code of Federal Regulations (CFR) 32.4).
A. Specific conditions. The following conditions apply to fishing
on certain units of the System:
(1) Waterfowl Production Areas (WPAs). WPAs are open to fishing
subject to State law (50 CFR 32.4) as long as it is compatible. A
rulemaking document is not necessary to open these areas to fishing
since they are open unless closed. We may restrict WPA fishing programs
by following the procedures established for refuges. Under 50 CFR 32.4,
we may also temporarily close WPAs to fishing and other public use if
circumstances warrant.
(2) Wetland easements. We have no authority over fishing on wetland
easements, which we most often acquire as part of the Small Wetland
Acquisition Program, unless we purchased specific rights with the
easements. For these easements, the landowners has usually retained all
rights to control public access, including access for fishing and other
recreational uses.
(3) Easement refuges. The rights acquired with the individual
easement refuge determine our control over fishing on easement refuges.
The Regional Director is responsible for determining the extent of
control over fishing on these areas. If we control fishing, the Refuge
Manager must follow all procedures required to open a refuge to
fishing.
(4) Farm Service Agency Easements (formerly Farmers Home
Administration (FmHA)). We have no authority over fishing or other
forms of public use on easements obtained through the various Farm
Service Agency inventory property easement programs of 1985, 1990, and
1996. The landowner retains the right to control access for fishing and
other recreational uses.
(5) National wildlife refuges in Alaska. The Alaska National
Interest Lands Conservation Act (16 U.S.C. 410hh-3233 and 43 U.S.C.
1602-1784) opens all national wildlife refuges in Alaska to fishing
under applicable Federal and State law as long as it is compatible (50
CFR 36.32). A fishing plan or rulemaking document is not necessary to
permit fishing on these refuges. We may prohibit or restrict the taking
of fish only in conjunction with notices and hearings under the
requirements of 50 CFR 36.42 regarding public participation and closure
procedures. Local rural residents may fish and gather shellfish for
subsistence uses in compliance with applicable Federal and State laws.
Non-wasteful subsistence use of wildlife by local rural residents has
priority over other consumptive uses permitted on national wildlife
refuges in Alaska.
B. Evaluation criteria for fishing programs. We will use the
following criteria and standards to evaluate fishing programs on units
of the System:
(1) Compatibility. A fishing program must be compatible with the
purpose(s) of the refuge and the System mission.
(2) Biological integrity, diversity, and environmental health.
Fishing programs must maintain, or contribute to the maintenance of,
viable populations of native species. We design our fishing programs to
support accomplishing refuge purposes while maintaining or restoring
biological integrity, diversity, and environmental health (see 601 FW
3). We will not establish fishing programs when there is a high
potential to adversely affect a significant biological component of an
existing native fish population, either by taking fish from that
population or by introducing non-native species.
(3) Relationship with other public use programs. An integrated
approach to providing opportunities for compatible wildlife-dependent
recreational uses will minimize conflicts. The Refuge Manager will
evaluate time and space scheduling and zoning as methods to ensure
opportunities for a quality experiences among different user groups. In
the case of conflicts between priority wildlife-dependent recreational
[[Page 3696]]
use, the Refuge Manager will make the final decision on which use to
allow and which to curtail.
(4) Resources. Providing quality recreational experiences for the
public requires appropriate funding, facilities, and staff. The House
Report accompanying the House of Representatives version of the
National Wildlife Refuge System Improvement Act of 1997 (H. Rpt. 105-
106) encourages refuge managers to take reasonable steps to obtain
outside assistance from States and other conservation interests, if
adequate financial resources are not available to manage a priority use
in a compatible manner. Refuge managers should work closely with State,
community, and conservation partners to help obtain necessary resources
to manage the priority wildlife-dependent recreational use programs.
Potential sources of support include the following: angling
organizations, user fees for hunting; cooperating with State, local, or
Tribal agencies; and assistance from refuge support groups or
volunteers. We encourage refuge managers to seek and implement other
opportunities to obtain additional resources as they become available.
(5) Evaluation and monitoring. Refuge managers must monitor and
evaluate their fishing programs regularly. Refuge managers must
evaluate both the quality of the recreation experience and the effects
of the activity on refuge resources. A wide variety of evaluation tools
exist, from simply asking the fishing public how they rate their
experience to contracting with a university or private company to
conduct a formal survey. If a Refuge Manager decides to use a survey to
evaluate the fishing experience, he or she must receive approval from
the Office of Management and Budget before conducting any public
surveys.
C. Consultation and coordination.
(1) Coordination with states and tribes. When a refuge, or portion
thereof, is open to fishing, we generally allow fishing within the
framework of applicable State and Tribal regulations. We consult with
the State, Tribes, and other appropriate authorities during the
development of fishing programs and whenever we plan significant
changes. Refuge regulations must be consistent with State and Tribal
regulations, to the extent practicable. The use of more restrictive
regulations requires consultation with the State or Tribe. We must list
regulations that are more restrictive than State or Tribal regulations,
such as seasons and fishing hours as refuge-specific regulations in 50
CFR part 32. Refuge-specific regulations must not weaken existing State
or Tribal laws and regulations. We must justify deviations from State
or Tribal regulations in the refuge fishing plan or amendments to that
plan. Refuge managers should discuss refuge-specific regulations with
peer-level State or Tribal administrators.
(2) Endangered species consultation. Refuge managers will review
all fishing programs annually to determine if they may affect,
adversely or beneficially, threatened or endangered species and their
habitats. The Refuge Manager will initiate consultation, as
appropriate, under Section 7 of the Endangered Species Act and intra-
Service consultation procedures, consistent with the ``Policy for
Conserving Species Listed or Proposed for Listing Under the Endangered
Species Act While Providing and Enhancing Recreational Fishing
Opportunities,'' and Section 305 (b)(1)(A) of the Magnuson-Stevens
Fishery Conservation and Management Act (Pub. L. 94-265) regarding
effects on ``essential fish habitat.''
(3) Public involvement. The appropriate level of public involvement
must accompany new or significant changes (e.g., boundary change,
change of species fished, bait restrictions) to existing fishing
programs. We plan efforts well in advance of the proposed changes in
order to obtain as much involvement from the public as possible. A
variety of methods are available for the Refuge Manager to use to
involve and inform the public, including public meetings, workshops,
news releases, and mailings to targeted groups. We encourage refuge
managers to continue to use these and other methods. We require an
outreach plan for new fishing programs or any significant changes
affecting existing programs. We develop these plans in coordination
with Regional External Affairs Offices for new fishing programs or any
major changes affecting existing programs.
D. Documentation required to open a refuge to fishing. The Refuge
Manager must submit the following documents to the appropriate staff in
the Regional Office. This individual then forwards a copy to the
National Wildlife Refuge System Headquarters for preparation of a
rulemaking document:
(1) Fishing plan. This plan should be a step-down plan of the
refuge's CCP, which must include a compatibility determination on the
fishing program. If the unit has not yet completed a CCP, the step-down
fishing plan must contain a compatibility determination(s) until the
CCP is completed. Cover fishing and shellfish harvest in separate
compatibility determinations. The plan must provide overall
documentation of the fishing allowed on a refuge, including the
relationship of fishing to refuge purpose(s), goals, and objectives of
the refuge and the System mission. We label a suggested format for a
refuge fishing plan as Exhibit 1 in this chapter.
(2) Appropriate NEPA documentation.
(3) Appropriate decision documentation.
(4) Section 7 evaluation. (See Exhibit 2 for information on Section
7 evaluation.)
(5) Copies of letters requesting state, and where appropriate,
tribal involvement and the results of the request.
(6) Draft news release.
(7) Outreach plan. (We label a Directorate-approved outline for an
Outreach Plan as Exhibit 3).
3.9 Who prepares and reviews a refuge fishing plan? The Refuge
Manager, with technical assistance as required from Service fisheries
biologists, State wildlife agencies, and, where appropriate, Tribal
governments, is responsible for preparation of the fishing plan. The
Regional Director approves the plan before the rulemaking process
begins. During the rulemaking process, Headquarter's staff reviews the
fishing plan and supporting documents. The Refuge Manager will annually
review the fishing plan on the refuge where we allow fishing.
3.10 What information do we need for publication in the Federal
Register? The Refuge Manager will determine the compatibility of
conducting a fishing program on the refuge and will document the
results in an approved fishing plan. After the Refuge Manager
determines that the proposal is compatible, he or she will submit
information about whether a refuge will open for fishing and the
conditions of that fishing proposal to the Federal Register Liaison at
the Headquarters. We will use this information to develop the proposed
and final refuge-specific regulations for publication in the Federal
Register and for codification in 50 CFR.
3.11 What is the refuge-specific regulation process? The refuge-
specific regulation process is outlined below:
A. The Headquarters must publish in the Federal Register any
proposed and final refuge-specific regulations pertaining to a refuge's
fishing program and that are necessary to conduct that program prior to
them becoming effective. Forward all refuge-specific regulations and
any changes to 50 CFR part 32 through appropriate channels to the
Headquarter's Federal Register Liaison for clearance and submission to
the Federal Register. The refuge is open
[[Page 3697]]
to fishing officially after the effective date of the final rule.
Fishing can begin concurrently or after the opening of the season under
the published regulations.
B. Refuge managers must review these regulations and the refuge
fishing plan annually to ensure compatibility and consistency of the
fishing program with existing laws and regulations. Regional Offices
must submit any amendments (additions, deletions, or modifications)
each year to their designated regional hunting and fishing program
coordinators who, in turn, send that information to the Headquarter's
Federal Register Liaison for inclusion in the rulemaking documents for
publication in the Federal Register. The Headquarter's Federal Register
Liaison must receive this information by January 31 each year to allow
sufficient time for compilation and review by concerned program offices
and the Solicitor, signature by the Assistant Secretary, and the
Departmental review for both proposed and final rules. This includes a
30-day public comment period on the proposed rule. We cannot publish a
refuge opening without the complete fishing package. If no amendments
are necessary, refuge managers should submit a negative response to
that effect to the Regional Office. Refuge-specific regulations should
be standard and consistent in format throughout the System. We include
guidelines for preparing and submitting regulations and amendments in
Exhibit 4.
3.12 How do we revise a fishing plan? The Refuge Manager may
approve all revisions in fishing plans except major revisions. Major
revisions in fishing plans (e.g., addition of new bodies of water or
new species available for taking to a fishing program) can occur only
as an amendment to the fishing plan unless the original plan included
specific conditions under which the revision could occur. Preparation
and approval of amendments follow the same guidelines as preparation
and approval of the plan. Refuge managers will submit only the revised
portion of the plan for approval to the Regional Office. The Regional
Director approves revisions only if we have already listed the Refuge
in 50 CFR as open to fishing. Otherwise, the Regional Office will
submit the amended fishing plan to Headquarters to begin the rulemaking
process described in section 3.11.
3.13 What are the guidelines for refuge fishing programs? We
should plan, manage, conduct, and evaluate refuge fishing programs on a
consistent basis in ways that protect habitat, fish and wildlife,
ensure angler and visitor safety, and promote positive values such as
high ethical standards and respect for the resource. Fishing on refuges
must have the attributes of a quality fishing program listed in section
3.6. The following guidelines should help ensure that quality
opportunities are available.
A. Permits. We require anglers to have all applicable Federal,
Tribal, and State licenses, permits, or stamps in their possession. We
can issue refuge permits to limit access, regulate methods, or gather
information. If we use refuge permits to limit angler numbers, we will
issue them on a random basis to the public. Refuge managers should
avoid complicated application processes that require additional
resources. Application processes should be flexible to provide an
opportunity to all potential anglers. We should coordinate with Tribal
and State application and lottery processes where practicable.
B. Fees. We can charge fees for applications, refuge permits, and
the use of facilities (e.g., boat ramps) under existing recreation fee
programs. We use fees collected to enhance visitor facilities, to
protect resources, and to educate visitors. The Regional Fee
Coordinator can assist with the approval of fees.
C. Zoning recreational use. We desire a balanced fishing program
that allows a variety of angling opportunities and contributes to the
quality of a fishing experience. We can use zoning of boat types and
motor horsepower to help achieve a balance of allowed uses and to
reduce conflicts between anglers and other users. We can also use
zoning to provide less competition for youth fishing events, anglers
with disabilities, and those using non motorized boats and/or methods
that reduce fish mortality, such as catch and release.
D. Law enforcement. Law enforcement is an important part of any
fishing program. The effort invested should be sufficient to protect
human safety, fish populations, and ensure compliance with regulations
based on past experiences and current circumstances.
E. Angler access and vehicle vessel control. Refuge managers should
carefully plan, manage, and evaluate angler access and vehicle/vessel
control to retain quality opportunities. We should balance ``walk-in''
and remote fishing opportunities with easily accessible fishing
opportunities. We can make exceptions to general access restrictions
for anglers with disabilities when necessary to facilitate their
experience and when compatible with resource management objectives.
F. Camping. We may allow camping on refuges when we have determined
it to be a secondary compatible use that is necessary to support
fishing opportunities. Camping is only appropriate when no reasonable
(based on time, distance, and expense) lodging opportunities are
available off-refuge and when staff resources needed to manage camping
do not detract from the quality of another priority wildlife-dependent
recreational use [refer to the Appropriate Uses Chapter (603 FW1) for
information on non priority uses]. Large refuges in the western United
States, refuges in Alaska, and some remote refuges allow camping under
these criteria..
G. Fishing by service staff. Service employees are subject to the
same rules and regulations as the general public. If only limited
fishing opportunities exist, refuge managers should discuss with
Service employees the need to be sensitive to the possibility of the
public perception of conflict of interest. We never authorize Service
employees to wear uniform components outside of their official
capacity. When employees participate in off-duty fishing opportunities,
they are not authorized and, therefore, should never wear uniform
components (e.g., uniform ball caps, uniform jeans). In addition,
personnel may not use means of access to fish in areas that are not
available to the general public. This policy does not apply to the
collection of fish by refuge staff for the purpose of monitoring
specific fish populations.
H. Communication materials. Professionally developed outreach
materials will assist refuge managers by providing clear and thorough
information to anglers. Brochures must conform to the U.S. Fish and
Wildlife Graphics Standards and be consistent with refuge-specific
regulations. Contact your Regional Publications Coordinator for graphic
standards. Refuge managers do not need to include regulations and dates
that are identical to State seasons. Include information that
encourages anglers to fish safely and ethically, and use equipment that
reduces injury to released fish (such as barbless hooks). If we develop
informational signs, they will conform with the Service's Sign Manual.
I. Tournament fishing. We prohibit this type of fishing on System
lands and waters unless we make a specific determination that the event
builds appreciation for and an understanding of fish and wildlife
resources, does not reasonably interfere with other refuge visitors,
and if prizes of only nominal value are awarded. Refer to the
Appropriate Uses Chapter (603 FW 1) for additional discussions of
competitive events.
[[Page 3698]]
J. Special fishing areas. Our policy is to offer fishing
opportunities to as broad a spectrum of the general public as possible.
Generally, fishing programs should consider any legal means of fishing,
as defined by the State and is determined to be appropriate and
compatible and not inconsistent with System policy.
K. Nonnative bait. We will allow no live, nonnative bait (defined,
with respect to a particular ecosystem, any species, including its
seeds, eggs, spores, or other biological material capable of
propagating that species) on System waters where we have jurisdiction.
We will generally refer to the individual State's definition of native
on System waters.
L. Natural bait methods. Throw nets, minnow traps, and other means/
methods of taking natural bait will be done under State regulations
unless we list more restrictive regulations in the refuge-specific
regulations. We will limit bait collection on refuges to the
recreational harvest of natural bait for personal use only; we will
allow no commercial harvest of natural bait in waters under the
jurisdiction of the System.
M. Limited harvest. We may offer special opportunities to a limited
number of anglers in cases where there is a relatively small area of
water to fish or we have a relatively low number of fish that are
available for harvest.
N. Youth fishing. We encourage refuge managers to set aside areas
or times to promote fishing by children or under represented groups.
Experiencing the thrill of the catch and exposure to proper fishing
methods through programs such as ``Pathways to Fishing'' and National
Fishing Week is important to developing life skills and public support
for healthy ecosystems. Refuge managers should take advantage of these
opportunities to educate young anglers and their parents about the
importance of fisheries management, the need for slot sizes,
consumptive and non consumptive fishing opportunities and quality
fishing experiences.
O. Barbless hooks. We encourage the use of these devices in our
fishing program and recognize the importance of this method in reducing
mortality of fish not intended for consumption (e.g. fish outside of
the slot size range). As more anglers raise concern over the state of
America's fisheries, refuge managers should take the lead in
introducing methods that not only promote the experience but educate
the angler. By promoting the use of barbless hooks in our brochures and
other information sheets, we can, in some cases, avoid the need for
increasing seasonal closures.
P. Data collection. Refuge managers should consult with the
Service's Fisheries Program Specialist, States, Tribes, and other
appropriate entities regarding data collection needs and survey
methods.
Q. Nontoxic tackle. Refuge managers may restrict the use of
specific types of tackle (e.g., lead fishing weights) in System waters
to protect certain species (e.g., loons).
R. Unattended tackle. The use of trotlines, setlines, gillnets,
giglines, jug lines, soap lines, snaglines and other unattended tackle,
may be allowed if authorized by State fishing regulations. We prohibit
the use of unattended tackle by commercial operators on System waters
under our jurisdiction except when used as a management tool. We must
strictly monitor the unattended tackle program and document the
results. The only exception to this policy is found in the Alaska
National Interest Lands Conservation Act (ANILCA) under subsistence
uses. We do not consider tip-ups used for ice fishing unattended tackle
for the purpose of this policy.
S. Ice fishing. We recognize ice fishing as an appropriate fishing
opportunity. Refuge managers should encourage this activity where it is
compatible and can be conducted in a safe manner. We prohibit the use
of long-term structures or structures suitable for overnight occupancy.
T. Night fishing. We allow night fishing when it is appropriate and
compatible with the purpose(s) of the refuge and the System's mission.
If a refuge generally is not open after sunset, refuge managers may
make an exception and permit night fishing. Refuge managers must base
the decision on specific refuge objectives and not historical use.
Refer to the General Guidance Chapter, 605 FW 1, for additional
information about after-hours activities.
3.14 How do we close a refuge to fishing? The Refuge Manager may
close all or any part of a refuge that we have opened to fishing
whenever necessary to protect the resources of the area or in the event
of an emergency endangering life, property, or any population of fish,
wildlife, or plants.
A. Emergency closure. We do not require advance public notice for
closure under emergency conditions. We notify the public of such
closures by signs, special maps, or other appropriate methods.
B. Non-emergency closure. We evaluate non-emergency closure of a
refuge fishing program for impacts on wildlife populations, ecosystems,
and priority recreation uses. If the impacts are likely to be major or
controversial, we prepare an environmental assessment and follow the
public participation process identified in the National Environmental
Policy Act (NEPA). In Alaska, we do not implement temporary closures
(not exceeding 12 months) or restrictions relating to the taking of
wildlife prior to the notice and hearing that we will conduct an
emergency closure in the vicinity of the affected area(s).
Exhibit 1--Refuge Fishing Plan Format
I. Introduction
Include a general description of the refuge and information
pertinent to the planned fishing program. If refuge managers develop
this fishing plan as a portion of an integrated public use plan, we
do not require this information. Include non repetitive general
information in the Comprehensive Conservation Plan.
II. Conformance with Statutory Authorities
Explain how the program will be compatible with the System
mission and the purpose(s) for which the refuge was established.
Include projections of the resources (staff and funding) needed to
conduct the program and their sources. Include an explanation of how
the program will address the requirements of applicable authorities.
III. Statement of Objectives
List the major refuge objectives and the specific objectives of
the fishing program. Describe how fishing will impact the refuge
objectives.
IV. Assessment
Evaluate the fishing resources on the refuge populations and
habitat. Points to be discussed include, but are not limited to, the
following:
a. A biological evaluation.
b. Will populations sustain fishing and still support other
wildlife-dependent priority uses?
c. Do fished species and other wildlife compete for habitat?
d. Do fished species prey on other species at unacceptable
levels?
V. Description
Describe the program in detail using graphics as needed. The
description should include:
a. Areas of the refuge that support fished species.
b. Areas of the refuge you intend to open to fishing.
c. Species for which you will allow fishing and fishing periods.
d. Justification of permit system, if required.
e. Consideration of user fees.
f. Consultation and coordination procedures with States and
Tribes, including justification of refuge-specific regulations.
g. Methods of control and enforcement.
h. Consideration of providing opportunities for anglers with
disabilities and youth anglers.
[[Page 3699]]
VI. Measures Taken to Avoid Conflicts With Other Management Objectives
a. Biological conflicts. Include Section 7 consultation, and
other measures proposed to minimize or eliminate conflicts with
endangered species or nontarget species.
b. Social Conflicts. Include proposed measures that minimize or
eliminate conflicts with other user groups.
VII. Program Specifics
a. Refuge-specific regulations.
b. Outreach plan.
c. Angler application and registration procedures (if needed).
d. Description of angler selection process (if needed).
e. Draft news release regarding the fishing program.
f. Angler requirements.
(1) Age of angler.
(2) Allowable equipment.
(3) Licensing and permits.
(4) Reporting requirements.
(5) Angler training and safety.
(6) Other information (use of boats, motors, etc.).
VIII. Compatibility Determination
IX. Appropriate NEPA Documents
X. Evaluation
a. Monitoring and reporting use levels and trends.
b. Surveying needs of the fishing visitor.
c. Are we meeting program objectives?
d. Do we need to resolve any conflicts?
e. Refuge/Regional Office review schedule.
Exhibit 2--Priority Wildlife-Dependent Recreation (Fishing)
Use the following terminology for your section 7 determination
as to whether the opening of your refuge to hunting and/or fishing
will affect the continued existence of any endangered or threatened
species or result in the destruction or adverse modification of
habitat of such species within the System.
Types of Effects
1. No effect: The appropriate conclusion when the Service
determines that a proposed Service action will not affect a listed
species or designated critical habitat.
2. Is not likely to adversely affect: The appropriate conclusion
when effects on listed species are expected to be discountable,
insignificant, or completely beneficial. Beneficial effects are
contemporaneous positive effects without any adverse effects to the
species. Insignificant effects relate to the size of the impact and
should never reach the scale where take occurs. Discountable effects
are those extremely unlikely to occur. Based on best judgment, a
person would not (1) be able to meaningfully measure, detect, or
evaluate insignificant effects; or (2) expect discountable effects
to occur.
3. Is likely to adversely affect: The appropriate finding in a
biological assessment (or conclusion during information
consultation) if any adverse effect to listed species may occur as a
direct or indirect result of the proposed Service action or its
interrelated or interdependent actions, and the effect is not:
discountable, insignificant, or beneficial (see definition of ``is
not likely to adversely affect''). In the event the overall effect
of the proposed Service action is beneficial to the listed species
but is also likely to cause some adverse effects, then the proposed
Service action ``is likely to adversely affect'' the listed species.
If incidental take is anticipated to occur as a result of the
proposed action, an ``is likely to adversely affect'' determination
should be made. Such a determination requires the initiation of
formal intra-Service section 7 consultation (see definition of
``informal intra-Service consultation'').
4. May affect: The appropriate conclusion when a proposed action
may pose any effects on listed species or designated critical
habitat. When the Federal agency (in this case the Service)
proposing the action determines that a ``may affect'' situation
exists, then the Service must initiate formal consultation or seek
written concurrence from the involved Service programs that the
action ``is not likely to adversely affect'' listed species.
5. Is likely to jeopardize proposed or candidate species/
adversely modify proposed critical habitat: The appropriate
conclusion when the Service identifies situations where the proposed
Service action is likely to jeopardize the continued existence of a
species proposed for listing or a candidate species, or adversely
modify an area proposed for designation as critical habitat. If this
conclusion is reached, intra-Service consultation is required.
Types of Consultation
1. Formal intra-service consultation: A process between a
Service program taking/authorizing an action and another Service
program affected by that action that: (1) determines whether a
proposed Service action is likely to jeopardize the continued
existence of listed species or destroy or adversely modify
designated critical habitat; (2) begins with the Service program
taking the action providing a written request and submittal of a
complete initiation package to the affected Service program; and (3)
concludes with the issuance of a biological opinion and incidental
take statement by the affected Service program. If a proposed
Service action may affect a listed species or designated critical
habitat, formal intra-Service consultation is required (except when
the involved Service programs concur, in writing, that a proposed
action ``is not likely to adversely affect'' listed species or
designated critical habitat). [50 CFR 402.02; 50 CFR 402.14]
2. Informal intra-service consultation: An optional process that
includes all discussions and correspondence between Service
programs, prior to formal intra-Service consultation, to determine
whether a proposed Service action may affect listed species or
critical habitat. This process allows the Service to utilize its in-
house expertise to evaluate a Service program's assessment of
potential effects or to suggest possible modifications to the
proposed action that could avoid potentially adverse effects. If a
proposed Service action may affect listed species or designated
critical habitat, formal intra-Service consultation is required
(except when the involved Service programs concur, in writing, that
a proposed action ``is not likely to adversely affect'' listed
species or designated critical habitat). [50 CFR 402.02; 50 CFR
402.13]
Exhibit 3--Outreach Plan Summary
I. Issue: (State the issue in one or two sentences.)
II. Basic Facts About the Issue:
III. Communication Goals:
IV. Message:
V. Interested Parties:
VI. Key Date:
VII. Strategy:
Exhibit 4--Guidelines for Preparation of Refuge-Specific Fishing
Regulations
Fishing regulations on national wildlife refuges accomplish
three major purpose(s): They protect the resource, manage it, and
ensure safety. State fishing regulations generally provide the
framework for meeting these three criteria. When State regulations
fall short of meeting these criteria, refuge-specific regulations
are necessary. These regulations should focus primarily on
management of the wildlife (fisheries) resource and should be
enforceable. For example, if we require permits on a specific
refuge, a statement that we require special refuge permits is all
that is necessary. Details are not appropriate in the regulations.
Address details in a leaflet or the permit application. Also, do not
submit text for your refuge unless it represents a CHANGE to the
existing language in part 32. If you are adding conditions to those
already published, state that these are ``adds'' and indicate where
you want them inserted in the text.
Duplication of existing 50 CFR provisions. When writing your
regulations, check 50 CFR to avoid duplication. For example, in Part
27, Prohibited Acts, Section 27.31 restricts motor vehicles to
``designated routes of travel. * * * delineated on maps by the
Refuge Manager;'' Section 32.2(j) adequately covers possession of
alcohol; and Section 27.95 prohibits setting fires.
Duplication of State regulations. 50 CFR 32.2 states ``(d) Each
person shall comply with applicable provisions of the laws and
regulations of the State wherein any area is located unless further
restricted by Federal law or regulation.'' Therefore, do not repeat
State creel limits, seasons, etc., in the refuge-specific
regulations. Refuge managers will justify why refuge-specific
regulations deviate from State laws and regulations in a cover memo
to the appropriate regional office representative.
Preparation of refuge-specific regulations. List tackle limits,
creel limits, seasons, and hours that differ from the State's in the
refuge-specific regulations. Please use the following examples for
your submission for changes or additions to part 32:
For modifications to existing text in part 32:
Section 32.32 Illinois.
Chautauqua National Wildlife Refuge
D. Sport Fishing.
[[Page 3700]]
Replace condition D.1. with the following:
You may fish on Lake Chautauqua from January 15 through October
15. You may not fish in the Waterfowl Hunting Area during waterfowl
hunting season.
Delete condition D.2.
Renumber conditions D.3., D.4., and D.5., to become D.2., D.3.,
and D.4., respectively.
To add a refuge that is opening for fishing for the first time:
Section 32.63 Texas
Lower Rio Grande Valley National Wildlife Refuge
D. Sport Fishing. We allow sport fishing on designated areas of
the refuge subject to the following conditions:
1. We only allow fishing at the three designated access sites on
the Boca Chica Tract.
2. You must adhere to all applicable State fishing regulations.
Draft Wildlife Observation Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 4 Wildlife Observation 605 FW 4.1
4.1 What is the purpose of this chapter? This chapter provides the
Fish and Wildlife Service's (Service) policy governing the management
of recreational wildlife observation on units of the National Wildlife
Refuge System (System).
4.2 What programs does this chapter apply to? The policies
contained in this chapter apply to recreational wildlife observation
within the System.
4.3 What is our policy regarding wildlife observation on refuge
lands? The overarching goal of our priority public use policies is to
enhance opportunities and access to high quality visitor experiences on
national wildlife refuges while not compromising wildlife conservation.
Wildlife observation is a legitimate and appropriate public use of the
System, and along with the five other priority public uses in the
Refuge Improvement Act, will receive enhanced consideration over other
uses. This means we will especially invest our resources in providing
high quality wildlife observation experiences for refuge visitors. When
determined to be compatible, refuge managers are strongly encouraged to
provide to the public wildlife observation opportunities. Our wildlife
observation programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. We encourage refuge staff to coordinate refuge
wildlife observation programs with applicable local, State, and Federal
programs. We also encourage refuge staff to take advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges.
4.4 What are the objectives of our wildlife observation program?
The objectives of the System wildlife observation program are to
promote public understanding of and increase public appreciation for
America's natural resources and the System by providing safe,
enjoyable, attractive and accessible wildlife viewing opportunities and
facilities.
4.5 What authorities allow us to support wildlife observation
activities on National Wildlife Refuge System lands? Reference 605 FW 1
for laws that govern wildlife observation on System lands.
4.6 What are the elements that constitute quality wildlife
observation opportunities? Essential elements of a quality wildlife
observation experience include the following:
A. Observations occur in a primitive setting or use safe facilities
and provide an opportunity to view wildlife and its habitat in a
natural environment;
B. Observation facilities or programs maximize opportunities to
view the spectrum of wildlife species and habitats of the refuge.
C. Observation opportunities, in conjunction with interpretive and
educational opportunities, promote public understanding of and increase
public appreciation for America's natural resources and the role of the
System in managing and protecting these resources;
D. Viewing opportunities are tied to interpretive and educational
messages related to stewardship and key resource issues;
E. Most facilities blend with the natural setting, station
architectural style, and provide viewing opportunities for all
visitors, including persons with disabilities;
F. Design of observation facilities minimize disturbance to
wildlife while facilitating the visitor's views of the spectrum of
species found on the refuge;
G. Observers understand and follow procedures that encourage the
highest standards of ethical behavior;
H. Viewing opportunities exist for a broad spectrum of the public;
and
I. Observers have minimal conflict with other priority wildlife-
dependent recreational uses or refuge operations.
4.7 How do we address the quality of our wildlife observation
programs when funding is an issue? Limited funding and staff may affect
the quality of the wildlife observation experience that a refuge is
able to offer the public. Refuge managers must scrutinize the impacts
that lack of resources will have on the ability to provide quality
wildlife observation opportunities to the public. It is appropriate to
concentrate resources on fewer, high quality opportunities or seek
partnerships to provide opportunities rather than offer many wildlife
viewing opportunities that lack quality. When a refuge accepts funding
to improve wildlife observation opportunities from partnership
organizations, the Refuge Manager must ensure that the opportunity is
provided in the most appropriate location.
4.8 How do we foster public stewardship in our wildlife observation
programs? Refuge managers provide opportunities for the public to
observe wildlife in order to instill in them an appreciation for the
value of and need for fish and wildlife habitat conservation. Refuges
provide enhanced opportunities to view wildlife in their natural
habitat by identifying viewing areas, providing platforms, viewing
equipment, providing brochures and interpreters, and designing tour
routes. Refuge managers should seek to develop partnerships with
organizations that promote wildlife observation and take steps toward
conserving such resources. We encourage Refuge managers to design local
``hands-on'' activities that inspire participants to become involved in
habitat restoration and other outreach programs. These opportunities
foster a sense of stewardship for the System, wildlife, and habitat
resources through direct association.
4.9 Is there a special need to provide safety and accessibility
within our wildlife observation programs? Key issues for providing a
quality wildlife observation program include accessibility and public
safety. They are two of our highest priorities when evaluating our
programs.
A. The Refuge Manager will ensure wildlife observation
opportunities are accessible to a broad spectrum of visitors. Refuge
managers must locate and design wildlife observation facilities to meet
the needs of visitors with different abilities. The wildlife
observation program fulfills accessibility standards and requirements
by adhering to the Architectural Barriers Act of 1968 (42 U.S.C. 51,
Sec. 4151), the 1984 Uniform Federal Accessibility Standards (UFAS),
and the Americans with Disabilities Act of 1990 (42 U.S.C. 126). These
acts specify physical accessibility in all construction and renovation
projects funded wholly or in part by the Federal government. Also, the
Rehabilitation Act Amendments of 1998, (29 U.S.C.
[[Page 3701]]
791 et seq.), require accessibility for all programs receiving Federal
funds.
B. Visitor safety at refuges is a high priority. The Refuge Manager
will construct pullouts and overlooks to reduce vehicular hazards. The
Refuge Manager will provide visitors information regarding specific
hazards and animal behavior if there is a concern about visitor safety.
We may also use environmental education and interpretive programs to
alert visitors about safety issues.
4.10 How should we address visitor conflicts? Wildlife observation
opportunities must be compatible with the purpose(s) of the refuge and
the System mission. Increased visitation to refuges, in many cases,
will cause user conflicts and may create unavoidable wildlife
disturbances. The Refuge Manager may impose use limits or establish
zones of use to reduce conflicts. The Refuge Manager determines which
uses to allow when conflicts exist between priority recreation uses.
4.11 What are some examples of tools we can use to support our
wildlife observation program? The following are examples of tools that
we can use to support wildlife observation. The Refuge Manager should
consider these as guidelines and continually use creativity and
ingenuity when providing opportunities that highlight the uniqueness of
a particular refuge.
A. Information. Information distribution is an invaluable
management tool as well as a means to promote wildlife observation
opportunities. Information, distributed through various media, should
communicate what wildlife observation opportunities are available, best
viewing times, techniques that emphasize respect for wildlife through
the minimization of visitor impacts on wildlife, access point
information, viewer etiquette, regulations, restrictions, management
concerns, and management objectives. Examples of ways to provide
information include bird/plant/mammal check lists, brochures, maps,
books, watchable wildlife recreation symbols to help identify wildlife
viewing opportunities, wildlife viewing guides, movies, slide shows,
talks, guided walks, staffed information desks, roving interpreters,
formal environmental education classes, teacher workshops, and
interpretive exhibits. Distributing information is a way to direct
public use to appropriate areas, provide managers with the opportunity
to present the refuge, System, and Service messages to visitors, and
foster public appreciation and stewardship.
B. Developed observation sites. Developing specific areas for
visitors to view wildlife enhances wildlife observation and limits
disturbances of wildlife and habitat. During the planning process,
Refuge managers must consider constructing viewing areas at sites that
are less sensitive to the impacts of visitors. Refuge managers may
consider hardening sites (e.g., adding gravel, asphalt, wood chips,
etc.) as a method of reducing impacts. Developed observation sites
provide a centralized area for visitors to receive information and
education needed to produce a safe, high quality experience. Examples
of such developments include trails, boardwalks in wet areas,
observation platforms, blinds, vehicle pullouts, information kiosks,
identification signs, and automobile tour routes. When modifications to
facilities to increase accessibility for people with disabilities will
deleteriously impact the setting's appearance, environmental features
or historic character, we will make efforts to permit people with
disabilities alternative access to the activity.
C. Specialized tools. In cases where direct wildlife viewing would
be detrimental to sensitive species or habitats, Refuge managers may
develop methods that provide remote viewing opportunities. Spotting
scopes provide viewing opportunities from a distance. Remote cameras
allow for viewing during especially sensitive periods such as nesting.
Pictures from remote cameras link with the System's electronic field
trip programs and long-distance environmental learning projects. Videos
shown in the visitor center highlight wildlife and the purpose of the
refuge. The videos aid those who visit the refuge outside of the
optimum viewing season. Photographs incorporated into interpretive
signs show visitors wildlife and habitats they may encounter. We should
consider specialized tools as supplements to and not replacements for
direct viewing opportunities. Consider using these tools to provide
opportunities that might otherwise be unavailable.
D. Habitat enhancements. There may be situations where it is not
feasible for viewers to get to an area for viewing because of cost,
remoteness, accessibility problems, safety concerns or sensitivity to
disturbance. In such cases, simple enhancement techniques in suitable
and more accessible locations may be a solution. Examples of these
techniques include creating a pond or wetland environment or creating
bird habitat by planting cover vegetation in places where wildlife
viewing is more accessible. Refuge managers must adhere to appropriate
National Environmental Policy Act procedures before artificially
creating habitat. Refuge managers must weigh both the benefits of
enhancements to wildlife viewing against the change or elimination of
the existing habitat and the potential harm the enhancement activity
may have on wildlife.
E. Partners. Partnerships with other Federal and State agencies,
Tribes, organizations, industry, local communities and others produce
significant contributions to our wildlife observation programs. Refuge
managers should contact potential cooperators and demonstrate the
advantages associated with being a refuge supporter. Partnerships can
develop through the sharing of expertise, personnel, materials, or
money, and includes the ``sharing'' of wildlife and habitat. Wildlife
does not observe property lines or agency boundaries. Sharing viewing
areas may reduce human pressure from one spot or eliminate uses from
sensitive spots by providing them off-site on shared areas. Partnering
is an excellent way of fostering a sense of ownership and stewardship
of natural resources among a variety of groups.
F. Evaluations. Refuge managers must monitor and evaluate their
wildlife observation programs regularly. Refuge managers should
evaluate both the quality of the resource experience and the effects of
the activity on refuge resources. A wide variety of evaluation tools
exist, from simply asking visitors how they rate their viewing
experience to contracting with a university or private company to
conduct a formal survey. If a Refuge Manager decides to use a survey to
evaluate the visitor's wildlife experience, he or she must receive
approval from the Office of Management and Budget (OMB) before
conducting any public surveys (use of an existing Fish and Wildlife
Service OMB-approved customer service evaluation card does not require
additional OMB approval). We should have the refuge wildlife
observation program reviewed by others to determine the quality of the
program, if the program is meeting the specific objectives, and if it
is meeting the needs of visitors.
4.12 Can we close a refuge to wildlife observation? The Refuge
Manager may close all or any part of a refuge that is open to the
public whenever it is necessary to protect resources of the area, to
prevent potential emergency situations, or in the event of an actual
emergency endangering life or property (i.e., severe weather
conditions). These closures do not require advance public
[[Page 3702]]
notice to be implemented. We notify the public of such closures by
signs, special maps, or other appropriate methods. When considering
possible long-term closures, Refuge managers must follow procedures for
public involvement as identified in the National Environmental Policy
Act (NEPA).
Draft Wildlife Photography Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 5 Wildlife Photography 605 FW 5.1
5.1 What is the purpose of this chapter? This chapter provides
Service policy governing the management of recreational wildlife
photography on units of the National Wildlife Refuge System.
5.2 What programs does this chapter apply to? The policies
contained in this chapter apply to recreational wildlife photography
within the System. Reference the guide chapter (604 FW 7) for policies
and procedures related to activities such as professional guide
services. Reference the Audio Visual Productions chapter (604 FW 10)
for policies and procedures related to activities associated with
commercial filming and news photography.
5.3 What is our policy regarding wildlife photography on refuge
lands? The overarching goal of our priority public use policies is to
enhance opportunities and access to high quality visitor experiences on
national wildlife refuges while not compromising wildlife conservation.
Wildlife photography is a legitimate and appropriate public use of the
System, and along with the five other priority public uses in the
Refuge Improvement Act, will receive enhanced consideration over other
uses. This means we will especially invest our resources in providing
high quality wildlife photography experiences for refuge visitors. When
determined to be compatible, refuge managers are strongly encouraged to
provide to the public wildlife photography opportunities. Our wildlife
photography programs will promote understanding and appreciation of
natural and cultural resources and their management on all lands
included in the System. We encourage refuge staff to coordinate refuge
wildlife photography programs with applicable local, State, and Federal
programs. We also encourage refuge staff to take advantage of
opportunities to work with other partners who have an interest in
helping us promote high quality wildlife-dependent recreational
programs on refuges.
5.4 What are the objectives of our wildlife photography program?
The objectives of the System wildlife photography program are to
promote public understanding and increase public appreciation for
America's natural resources by providing safe, attractive and
accessible wildlife photography opportunities and facilities.
5.5 What authorities allow us to support wildlife photography
opportunities on National Wildlife Refuge System lands? Reference 605
FW 1 for laws that govern wildlife photography on System lands.
5.6 Have we defined common photographic terms? Yes. The following
are definitions of terms used in reference to wildlife photography.
A. Film. Film is still photographs, motion pictures, and videotapes
in digital and analog formats.
B. Recreational photography. Recreational photography is any type
of visual recording on film performed by amateur owner/operators of
photographic equipment. Casual photography is considered recreational
photography and follows this policy (e.g., visitors taking photographs
for their own use, non-commercial recreational photo contests).
C. News photography. News photography includes audio-visual
productions for news and public affairs, stills, motion-pictures,
video, records and audio tapes, such as those produced for television,
newspapers, and magazines. News photography on System lands is for the
benefit of the general public. Examples of news events are emergencies,
special events, or appearances by public figures or other unusual, non-
recurring natural phenomenon. News photography will not require a
permit but some restrictions may be placed on the activity by the
Refuge Manager to protect the resource and/or the individuals
associated with the media. Refer to the audio-visual chapter for
additional information on this subject (604 FW 10).
D. Commercial photography. Commercial photography is visual
recordings by firms or individuals (other than news media
representatives) who intend to distribute their photographic content
for money or other consideration. We include the creation of
educational, entertainment, or commercial enterprises in this category.
We also include advertising audio-visuals for the purpose of paid
product or services, publicity and commercially-oriented photo contests
under this section. We cover commercial photography permit requirements
under the audio-visual chapter of this manual (604 FW 10).
5.7 Have we defined a quality wildlife photography opportunity?
Yes. The following are essential elements of a quality photographic
opportunity and facility.
A. Photographic opportunities occur in or use safe facilities;
B. Photographic opportunities promote public understanding and
increases public appreciation of America's natural resources and our
role in managing and protecting these resources;
C. Photographic opportunities occur in places that have the least
amount of disturbance to wildlife;
D. Photographers understand and follow procedures that encourage
the highest standards of ethical behavior;
E. Opportunities are available to a broad spectrum of the
photographing public;
F. Facilities, if provided, are fully accessible, reflect
positively on us and blend with the natural setting;
G. Photographic opportunities incorporate a message of stewardship
and conservation;
H. Photographic opportunities create minimal conflicts with other
priority wildlife-dependent recreational uses or refuge operations.
5.8 How do we address the quality of our wildlife photography
programs when funding is an issue? Limited funding and staff may affect
the quality of the experience. Managers must scrutinize the impacts of
lack of resources on quality. It is appropriate to concentrate
resources on fewer, high quality opportunities or seek partnerships to
provide opportunities rather than offer photographic experiences that
are lower in quality.
5.9 How do we address public stewardship in our wildlife
photography programs? We provide opportunities to the public in order
to develop an appreciation for the value of, and need for, fish, plant
and wildlife conservation. These opportunities should also foster a
sense of stewardship for the System and its wildlife and habitat
resources through direct association.
5.10 Is there a special need to provide safety and accessibility
within our wildlife photography programs? Not only are public safety
and accessibility key to a quality wildlife photography program, they
must be two of our highest priorities when evaluating our programs. We
construct pullouts and overlooks to reduce vehicular hazards to
photographers. We give our visitors
[[Page 3703]]
information regarding specific hazards and animal behavior if we have a
concern about visitor safety. Environmental education and interpretive
programs may also be used to bring safety concerns to the attention of
photographers. We will make every effort to ensure wildlife
photographic opportunities are accessible to a broad spectrum of
visitors.
5.11 How should we address user conflicts? Wildlife photography
opportunities must be compatible with the purpose of the refuge and the
System mission. Increased visitation to refuges will cause user
conflicts and may create unavoidable wildlife disturbances. Refuge
managers may impose use limits or establish zones of use to reduce
conflicts. As an example, casual wildlife observers may disturb
photographers at a specific site that provides the best opportunity on
the refuge to observe bald eagles. The Refuge Manager may work out a
partnership with the State to provide a roadside viewing point just off
the refuge along the highway for general observation. The Refuge
Manager may then decide to limit the area within the refuge to
photographers or those wanting to use photography blinds.
5.12 Can we close a refuge to photography? As long as a refuge is
open to the public, we cannot close it specifically to photography. The
Refuge Manager may close all or any part of a refuge that is open to
the public whenever it is necessary to protect resources of the area or
in the event of an emergency endangering life or property (i.e., severe
weather conditions). We do not require advance public notice for
closure under emergency conditions. The public is notified of such
closures by signs, special maps, or other appropriate methods. When
considering possible long term closures, refuge managers must follow
procedures for public involvement as identified in the National
Environmental Policy Act (NEPA).
Draft Environmental Education Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 6 Environmental Education 605 FW 6
6.1 What is the purpose of this chapter? This chapter identifies
Service policy and guidance governing environmental education (EE) as a
priority wildlife-dependent use of the National Wildlife Refuge System.
6.2 What is the scope of this chapter? This chapter applies to
Refuge System environmental education programs and services. Along with
this policy guidance, we will use other documents including but not
limited to Connecting People to Wildlife, Environmental Education in
the National Wildlife Refuge System, an environmental education
guidance document for the Refuge System (Appendix 1).
6.3 What is our policy for environmental education? The overarching
goal of our priority public use policies is to enhance opportunities
and access to high quality visitor experiences on national wildlife
refuges while not compromising wildlife conservation. Environmental
education is a legitimate and appropriate public use of the System, and
along with the five other priority public uses in the Refuge
Improvement Act, will receive enhanced consideration over other uses.
This means we will especially invest our resources in providing high
quality environmental education experiences for refuge visitors. When
determined to be compatible, refuge managers are strongly encouraged to
provide to the public environmental education opportunities. Our
environmental education programs will promote understanding and
appreciation of natural and cultural resources and their management on
all lands included in the System. We will work with local schools,
citizen groups, and other organizations to provide programs and
assistance that promote awareness, appreciation, and understanding of
the role the System plays in the conservation of fish, wildlife,
plants, and cultural and historical resources. We encourage refuge
managers to coordinate refuge environmental education programs with
applicable local, State and Federal programs. We also encourage refuge
staff to take advantage of opportunities to work with other partners
who have an interest in helping us promote high quality wildlife-
dependent recreational programs on refuges.
6.4 What are our objectives for environmental education programs on
refuges? Our environmental education programs:
A. Will provide appropriate materials, equipment, facilities, and
study locations to support environmental education, where compatible;
B. Will allow program participants to demonstrate learning through
refuge-specific stewardship tasks as well as projects that they can
carry over into their everyday lives;
C. Will establish partnerships to support environmental education
on refuges open to the public;
D. Will incorporate local, State, and national educational
standards in our programs with an emphasis on wildlife conservation;
E. Will assist refuge staff and volunteers to attain the knowledge,
skills, and abilities to support environmental education at the minimum
or higher levels as defined in Section 6.7C(1) below;
F. Will teach awareness, understanding and appreciation of our
trust resources: and
G. Will serve as a means by which refuge employees are seen as role
models for environmental stewardship through a continually developing
positive relationship with the community.
6.5 What is our legislative authority for environmental education?
Reference 605 FW 1 for laws that govern environmental education on
Refuge System lands.
6.6 What are some of the terms we use in this chapter? The
following are definitions of terms used in this chapter.
A. Environmental education (EE). Activities that use a planned
process to build knowledge, skills and abilities in students and
others, about wildlife-related environmental topics. EE often follows
sequential learning strategies to promote specific learning outcomes.
B. Educational assistance. Either on- or off-site, making EE
expertise from Service staff available to schools and teachers, Service
entities, government agencies, private groups, and individuals.
C. Outdoor classrooms. Sites of structured EE activities that:
(1) Focus on the natural environment;
(2) Come from an approved course of study with identified learner
outcomes; and
(3) Are hands on, involving Refuge System lands.
6.7 How will we develop and implement this chapter? In this
chapter we present guidance for planning, implementing, and evaluating
EE programs within the Refuge System. Connecting People to Wildlife,
the EE guidance document for the Refuge System, curriculum guides, and
other documents created for regions or at refuges contain additional
guidance.
A. Program support. The Office of the Chief, National Wildlife
Refuge System, is responsible for overall guidance, implementation, and
management of EE within the Refuge System. Regional Directors designate
EE coordinators to assist refuges with education programs and products.
The National
[[Page 3704]]
Conservation Training Center (NCTC) offers several EE training courses
and model programs as well as program support for our EE programs.
Refuge managers plan, develop, and implement EE programs that increase
public knowledge, understanding and support for refuge resources.
B. Program planning. Each field station designs its EE objectives
and strategies when they develop their Comprehensive Conservation Plan
(CCP) or step-down visitor services plan. Managers and staff analyze
their EE program potential and determine their educational objectives
and develop an interim program if they are not scheduled to develop a
CCP within 2 years. In either of these planning processes, refuge staff
:
(1) Determine if current or proposed educational sites, programs,
and activities are compatible with the Refuge System mission, the
purpose(s) of the refuge, and the goals and objectives established for
the refuge;
(2) Identify staffing, funding, and other requirements for an EE
program, enhancing our EE offerings by working with volunteers and
through partnerships with educators;
(3) Identify ecosystem characteristics, endangered species,
cultural resources, wilderness, and fish, wildlife, plants, cultural
and historical resources that are key resource issues for each field
station. Working with educators, we use this assessment to identify
target audiences and look for creative ways to tie resource priorities
to local educational needs and curricula;
(4) Collect and consistently update data identifying teachers,
community resources, transportation constraints, and history of use by
educational groups;
(5) Identify current or potential outdoor classroom facilities; and
(6) Identify educational needs and educational outreach
opportunities for our staff, volunteers and partners, particularly
activities involving nontraditional audiences.
C. Program development and priorities. Field stations establish
educational program priorities based on their objectives and mandates,
as well as local, State and national priorities. As part of our
planning we evaluate educational programs and offer differing levels of
EE based in part on the number of staff with public use duties as well
as other available resources. Other factors that determine our level of
involvement include demand for educational programs, the number of
schools near a refuge, and their willingness to participate. We can
place our environmental education programs in one of four levels of
service. Each field station will use components of one, or a
combination of these levels, to design their educational programs to
meet local needs, and where possible will strive to include components
from the next higher level.
(1) Refuges that have staffs of less than 5 FTEs, and do not have
any positions solely dedicated to public use activities. At the minimum
level, field station EE programs include:
(a) Creating or providing a lending library of materials and
resources for teachers and other educators;
(b) Designating a trained staff contact person for EE;
(c) Designating a study site and providing stewardship
opportunities;
(d) Helping local educators identify refuge resources and develop
programs;
(e) Forming partnerships or recruiting and training volunteers
including senior citizens and/or people with disabilities to conduct EE
activities.
(2) Refuges that have staffs of approximately 5-9 FTEs, do not have
any positions solely dedicated to public use, and have a Refuge Manager
position at the GS 11-12 level. At the standard level, we encourage
field stations to:
(a) Conduct and/or host teacher training workshops;
(b) Provide educators with refuge-specific curriculum, activities
and lesson plans;
(c) Develop accessible outdoor classrooms;
(d) Establish formal partnerships with school districts and/or
community groups to assist with development and implementation of
refuge EE programming;
(e) Recruit and train volunteers to assist in developing and
presenting EE programming;
(f) Conduct regular EE program evaluation;
(g) Provide opportunities to contribute to refuge management goals
through learning and stewardship activities;
(h) Establish a lending library of educational materials, including
but not limited to book, trunk, and multimedia resources;
(i) Conduct some on-site and occasional off-site EE programming;
and
(j) Employ key staff who have acquired the skills to develop and
conduct EE activities.
(3) Refuges that have staffs of approximately 10-14 FTEs with 1
position solely dedicated to public use, and have a Refuge Manager at
the GS 12-13 level. At the enhanced level, we encourage field station
EE programs to:
(a) Develop a multi-disciplinary EE program with integrated
curricula meeting national and State educational standards;
(b) Adapt the refuge's program to increase participant learning and
connect environmental health with quality of life;
(c) Develop multiple facilities or study sites, with materials and
equipment, that support refuge goals and objectives;
(d) Seek to hire professionally trained refuge EE staff;
(e) Conduct refuge-specific workshops; special events; symposia,
including day camps, after-school, and off-site programs; elder
hostels; and extended learning opportunities;
(f) Provide EE training and mentoring opportunities for educators,
Service staff, and others;
(g) Have an EE program that demonstrates student learning through
measurable objectives;
(h) Create an extensive EE outreach program for reaching
participants outside the local area;
(i) Allow our EE staff to continue to develop professionally by
attending training;
(j) Use technology to interface with off-site participants through
the Internet, distance learning and websites; and
(k) Establish partnerships beyond local communities.
(4) Refuges that have staffs of approximately 15 FTEs or more with
1 or more positions solely dedicated to public use, have a visitor
center, and have a Refuge Manager at the GS 13-14 level. The
``flagship'' level applies to stations with EE as part of their
purpose(s). Other stations with an enhanced EE program can operate at
this level. In addition to items at the enhanced level, we encourage
refuges at the flagship level to:
(a) Develop and pilot new programs with broad applications across
the Refuge System;
(b) Host local, State or national events/projects such as State
duck stamp contests;
(c) Serve as a development site for entry level employees,
detailees, and Student Career Experience Program participants;
(d) Become a community or State leader in EE;
(e) Have staff present papers at national conferences;
(f) Have staff serve as mentors or instructors for EE courses and
course development;
(g) Perform peer review of other stations' EE program;
(h) Have year-round facilities that support all aspects of the EE
program;
(i) Become centers for distance learning;
[[Page 3705]]
(j) Develop interactive curricula on refuge/Service websites;
(k) Develop multi-cultural programs as needed; and
(l) Develop outreach and partnerships that have regional focus.
D. Refuge-specific guidelines for developing EE programs: We
advance and support the National Wildlife Refuge System mission and
goals by developing programs based on the following guidelines. EE
programs in the Refuge System strive to:
(1) Connect people's lives to the health of the environment;
(2) Advance science literacy through an interdisciplinary
educational approach;
(3) Strengthen the Refuge System through science learning;
(4) Help participants experience the wonder of fish, wildlife,
plants, cultural and historical resources;
(5) Stress the role and importance of refuges and emphasize the
relationship between wildlife and associated ecosystems;
(6) Be outcome-based, going beyond attending a program to resulting
in something of value for both refuge resources and participants;
(7) Pursue outreach and partnership opportunities enhancing
programs on and off refuges and expanding our levels of educational
expertise and staffing;
(8) Include lesson plans and refuge activity guides that
incorporate, complement and focus on local school curricula allowing
participants to utilize refuges as living laboratories;
(9) Train educators, volunteers, and partners in resource issues in
order to multiply our efforts across a broader spectrum of students;
(10) Establish, maintain, and promote environmental study sites and
outdoor classrooms where they are compatible with refuge purpose(s),
goals, and objectives;
(11) Involve under-served populations like urban or rural schools,
Native Americans, non-English speaking populations, senior citizens,
people with disabilities, and groups in the educational community other
than K-12 such as colleges and universities;
(12) Expand our capability through technology such as web pages and
electronic field trips; and
(13) Use appropriate formats for visitors with disabilities
(learning, visual, hearing).
6.8 How do we evaluate EE programs? We evaluate environmental
education programs in the following manner:
A. Refuge staff should annually evaluate the program and make
necessary changes to strengthen it.
B. As part of our Refuge Management Information System (RMIS), each
year we report the number of people taking part in four educational
categories: teachers participating in workshops, students taught on-
site by staff or volunteers, students taught off-site by staff or
volunteers, and non-staff conducted EE. These statistics provide some
information about program activity, and we can use the data to identify
trends and give an indication of program involvement.
C. Regardless of the level of EE program involvement, we should
develop evaluation tools to measure program effectiveness. One simple
tool is a comment form given to the leader after an educational field
trip. Another way may be to measure the instances of littering,
vandalism, or poaching, or compliance with refuge regulations. Refuge
staff may consider implementing more detailed evaluation tools to
measure learning outcomes and concept retention. Regional or Washington
Office staff can assist with developing and analyzing the results of
these evaluation tools.
Draft Interpretation Policy
Fish and Wildlife Service
Priority Wildlife-Dependent Recreation
Part 605 Fish and Wildlife Service Manual
Chapter 7 Interpretation 605 FW 7
7.1 What is the purpose of this chapter? This chapter identifies
Service policy and guidance governing interpretation as a priority
wildlife-dependent use of the National Wildlife Refuge System.
7.2 What is the role of interpretation? As one of the six priority
wildlife-dependent uses of the Refuge System, interpretation connects
people (visitors) to resources providing opportunities for them to
develop an understanding and appreciation for natural and cultural
resources. Visitors will receive messages about Refuge System resources
through a variety of media including interpretive trails and
boardwalks, wildlife centers, talks and walks, audio-visual
productions, publications, and exhibits that communicate to a wide
spectrum of visitors.
7.3 What is our policy for interpretation? The overarching goal of
our priority public use policies is to enhance opportunities and access
to high quality visitor experiences on national wildlife refuges while
not compromising wildlife conservation. Interpretation is a legitimate
and appropriate public use of the System, and along with the five other
priority public uses in the Refuge Improvement Act, will receive
enhanced consideration over other uses. This means we will especially
invest our resources in providing high quality interpretation
experiences for refuge visitors. When determined to be compatible,
refuge managers are strongly encouraged to provide to the public
interpretation opportunities. Our interpretation programs will promote
understanding and appreciation of natural and cultural resources and
their management on all lands included in the System. We encourage
refuge staff to coordinate refuge interpretive programs and materials
with applicable local, State, and Federal programs. We also encourage
refuge staff to take advantage of opportunities to work with other
partners who have an interest in helping us promote high quality
wildlife-dependent recreational programs on refuges.
7.4 What are our objectives for interpretive programs on refuges?
We will develop and maintain interpretive programs on refuges to:
A. Increase public understanding and support for the Refuge System;
B. Develop a sense of stewardship leading to actions and attitudes
that reflect concern and respect for wildlife resources, cultural
resources, and the environment;
C. Provide an understanding of the management of our natural and
cultural resources.
D. Provide safe, enjoyable, accessible, meaningful, and high
quality experiences for visitors increasing their awareness,
understanding, and appreciation of fish, wildlife, plants, and their
habitats.
7.5 What is our legislative authority for interpretation? Reference
605 FW 1 for laws that govern interpretation on Refuge System lands.
7.6 Do we have common definitions for interpretive terms? Yes. The
following are definitions of terms used in reference to interpretation.
A. Interpretive plans. Interpretive plans are documents (see
Exhibit 1) outlining key resources, visitor profiles, facilities,
budget needs, and development plans as part of a refuge Comprehensive
Conservation Plan or visitor services plan. The documents include
interpretive objectives, themes, and activities presented at a refuge.
B. Interpretive objectives. Desired, measurable outcomes of an
interpretive activity.
C. Interpretive themes. Central messages we strive to communicate.
All interpretive activities should have messages relating back to
overall field station interpretive subjects or topics as well as
Service and/or Refuge System themes.
[[Page 3706]]
D. Interpretive activities/tools. The ways we convey interpretive
messages to visitors, on-site or off-site, such as, but not limited to,
tours, talks, slide presentations, brochures, self-guided trails, audio
tapes, videos, and exhibits.
7.7 What are some standards and requirements for interpretive
programs? When we develop interpretive programs, we will utilize the
following:
A. Principles of interpretation. Our interpretive activities will
utilize the principles included in published materials describing the
art of interpretation such as Freeman Tilden's ``Interpreting Our
Heritage'' or others. We link the resources of the Refuge System with
the concepts and values visitors bring to our sites. Specifically, we
strive to:
(1) Relate what we display or describe to each visitor's
expectations and experience;
(2) Motivate and reveal;
(3) Inspire and develop curiosity, not solely instruct;
(4) Relate enough of the story to introduce concepts and ideas,
pique visitor's interest, allow visitors to develop their own
conclusions; and
(5) Organize activities around central themes with measurable
objectives.
B. Interpretation as a management tool. Well-designed interpretive
services can be our most effective and inexpensive resource management
tool. For many visitors, taking part in one or more interpretive
activities is their primary contact with refuge staff, their chance to
find out about refuge messages, and could be their first contact with
the refuge, conservation, and wildlife. Through these contacts, we have
the opportunity to influence visitor's attitudes toward the Service and
their behaviors when visiting units of the Refuge System. Interpretive
planning and subsequent activities and products can:
(1) Help visitors understand the impacts of their actions,
minimizing unintentional resource damage and wildlife disturbance;
(2) Communicate rules and regulations so they relate to visitors,
solving or preventing potential management problems; and
(3) Help us make management decisions and build public support by
providing insight into management practices.
C. Assuring highest levels of quality: We carefully consider
personnel, locations, and types of programs and products in order to
provide high quality interpretive services.
(1) Staff conducting interpretive services must have more than
subject matter knowledge. For example, the skill required to write text
for interpretive exhibits and brochures differs from technical writing
skills. We strive to select dynamic people who enjoy interacting with
visitors, demonstrate organizational and communications skills, and act
professionally.
(2) Often, sensitive habitats are the most attractive places to
visit and best places to interpret. To minimize impacts on sensitive
habitats we: use staff and/or trained volunteers to lead activities;
limit group size; select certain times of day for programs; design
facilities and activities to minimize disturbance to wildlife and
habitats; and close areas seasonally. Visitors can experience sensitive
resource areas with minimal impact by using boardwalks, viewing blinds,
remote camera views, exhibits, and telescopes. Other techniques may be
the use of dioramas, interactive displays, and digital (i.e., CD-ROM)
interpretive methods. We can also separate areas devoted to wildlife
observation and education from other programs such as fishing and
hunting to preserve a high quality experience for all visitors.
(3) While refuge staff should try to reach as many individuals and
interest groups as possible with our message, quantity is not the only
measure of success. Program quality and effectiveness is crucial.
Refuge managers strive for a balanced program with a variety of
experiences for visitors with different levels of time, ability, and,
interest. Refuge staff periodically review and evaluate programs to
assess effectiveness.
D. Making interpretation accessible: We will meet accessibility
standards and requirements by adhering to the Architectural Barriers
Act of 1968 (42 U.S.C. 51, Sec. 4151), the 1984 Uniform Federal
Accessibility Standards (UFAS), and the Americans with Disabilities Act
of 1990 (42 U.S.C. 126). These acts specify physical accessibility in
all construction and renovation projects funded wholly or in part by
the Federal government. Also, the Rehabilitation Act Amendments of
1998, (29 U.S.C. 791 et seq.), require accessibility for all programs
receiving Federal funds. Meeting accessibility requirements presents
the challenge and opportunity to provide better interpretive activities
for everyone. Creating media, facilities and programs that are more
easily read and understood, paths that are level or have ramps and
handrails, and exhibits that provide audio or tactile elements benefits
everyone and provides multiple paths to learning.
7.8 Why should we do interpretive planning? We are involved in
interpretive planning for the following reasons:
A. Interpretive plans help focus staff time, funding, and other
resources on our primary interpretive messages and give focus and
direction to exhibits, programs, and other interpretive activities.
This planning can also help set field station and funding priorities
and help locate sources of alternative funding. We can use elements
from Comprehensive Conservation Plans, step-down management plans, and
visitor service plans to develop a refuge interpretive plan.
B. When we develop interpretive plans, they become the basis for
the development of future programs and services. New activities should
always relate to and support the themes developed in the refuge
interpretive plan. Exhibit 1 contains a general outline for
interpretive plans.
7.9 What delivery methods do we use for interpretive activities?
There are two broad categories of interpretive activities: self-guided
and personal services. Self-guided interpretation includes brochures,
exhibits, kiosks, audio-visual media (including computer programs), and
self-guided trails. Personal services interpretation includes
information desk duty, group presentations, guided talks and tours, and
special events. We provide a variety of interpretive experiences that
appeal to a broad spectrum of interests and learning styles. We strive
for:
(1) High quality, self-guided services, since they reach a larger
audience, are more readily available, and visitors can use them at
their own pace;
(2) High quality personal contact to initiate conversation and
answer questions; and
(3) A variety of interpretive experiences that appeal to varying
visitor interests.
7.10 How should we produce interpretive media? The following are
interpretive media available to us:
A. Self-guided products will maintain the highest level of quality
and be designed as to be appropriate for the site and audience.
Regional Public Use Coordinators can assist with planning, design, and
contracting for production of self-guided products. Final approval for
text and design of self-guided products comes from the Regional
Offices.
B. We will design our brochures and publications following the
``U.S. Fish and Wildlife Manual of Graphic Standards for
Publications.'' The Government Printing Office (GPO) processes all of
our printing and duplication. Regional Printing Coordinators must
approve requests to
[[Page 3707]]
use a commercial source other than GPO.
7.11 How do we evaluate our interpretive program? We evaluate our
programs to assure that we are providing the highest level of service.
By periodically reviewing programs, we determine program needs,
initiate changes, and decide if we are meeting our goals and
objectives. Some sources for evaluation methods are interpretation
textbooks, other agencies or organizations, and professional
associations like the National Association for Interpretation.
A. Performance evaluation. We evaluate individuals and services to
improve delivery methods, messages, and the interpretive approach for
future activities. Remember that surveys must follow OMB requirements
and restrictions. Some methods used include:
(1) Supervisory feedback;
(2) Peer evaluation;
(3) Self-evaluation; and
(4) Audience evaluations.
B. Program evaluation. Evaluating overall programs helps keep our
information up-to-date and current. Often, refuge staff use program
attendance and cost to compare activities, but true program evaluation
must go deeper. We can identify areas needing further attention by
examining use trends, location and time variables, and environmental
factors. Areas to consider include:
(1) Is program participation increasing, decreasing, or staying the
same?
(2) Do visitors attend more than one program or move on to other
sites? Do visitors return and revisit interpretive facilities or guided
programs? Do they bring their friends?
(3) Have staffing levels changed?
(4) How much of the station budget are we devoting to interpretive
programs? What are those dollars buying?
(5) If too many or too few people attend some programs, what can we
do to get attendance to an optimal level?
(6) Should we change or drop the program/activity?
C. Visitor reactions. We use many methods to determine visitor
reaction to interpretive activities. We can:
(1) Develop comment forms in a variety of alternative formats, if
needed, and make them available at a variety of locations;
(2) Interview visitors in focus groups regarding what they liked or
didn't like about our interpretive activities;
(3) Observe and record visitor actions at interpretive facilities
(e.g., monitor how long visitors stay, which exhibits they approach,
whether they leave early from exhibits, audio-visual, or presentations,
or ask thoughtful questions);
(4) Get a fresh perspective by visiting and observing other sites
and then critiquing our own facilities;
(5) Observe visitors and note their behaviors when they visit
refuges. Record the instances of littering, vandalism, or poaching. Is
there a change in compliance with posted regulations?; and
(6) Request a Regional Office visitor services' review or invite
staff from other refuges to critique your program.
D. Quality and effectiveness. The impact an activity had on the
participants is the most difficult element to evaluate. We can:
(1) Find some visitor impressions by using focus groups and
individual interviews;
(2) Use testimonials and unsolicited comments to assess the
relative value of programs to visitors; and
(3) Evaluate quality and effectiveness through formal research by
working with local colleges and universities.
Exhibit 1--Interpretive Plan Outline
A. Define key resources: Start by deciding what makes the refuge
special. Does it have biological significance for key species, the
ecosystem, endangered species protection, or restoration? Are there
unique habitats represented or notable seasonal natural events? Are
there known cultural resources requiring protection or
interpretation? Has human history in the area had an impact on
resources? Are you conducting habitat or population management
activities? You can use maps to show resource locations. To
complement the maps you should define habitat sensitivity and, if
data exists, acceptable levels of visitation.
B. Define key audiences: Who are our present and future
visitors?
(1) Demographics: You can determine some visitor demographics by
contacting the State department of tourism, a community visitor's
bureau, and neighboring attractions. You can glean some information
from visitor contact stations and trailhead registration books. Even
parking lot license plate counts can help indicate trends. Formal
surveys go more in depth, but contact your Regional Office regarding
Office of Management and Budget clearance for information allocation
requirements, types of questions you can use, and the best way to
administer a survey. From this data you can develop lists of visitor
groups, (urban, international, short-term, repeat, schools,
families, retirees, special interests like birding, hunting, and
others).
(2) Visitor Expectations and Perceptions: What will each group
need or expect when they arrive? What part of your interpretive
program will appeal to each visitor group?
(3) Use Patterns: Does your refuge have any special concerns
relating to seasons, time of day, existing or potential traffic
patterns or facility capacity. Do any of these use patterns need to
change?
C. Define goals and objectives: We must establish interpretive
goals (guiding statements) and objectives (measurable outcomes) in
the Comprehensive Conservation Plan. You should refer to this plan
when developing your program. Focus on resource priorities on the
refuge.
(1) Management goals focus on ways to protect resources while
providing visitor opportunities.
(2) Interpretive goals identify what you hope visitors will
remember, feel, appreciate, or understand after taking part in an
interpretive activity. Objectives are measurable and identify what
visitors will be able to do after taking part in your program.
D. Develop interpretive themes: The major messages you want
visitors to take with them are themes. They can focus on refuge
management issues, ecosystem issues, Refuge System issues, or on the
Service. We derive themes for specific interpretive activities from
overall station themes. Themes should be resource-based and stated
in complete sentences. Developing good themes is difficult.
Sometimes, identifying topics first, such as, Wildlife, Ecosystems,
Neotropical Migrants, or Endangered Species can help. Often the
theme works much like a thesis, and you should develop the theme in
a manner appropriate for your audience as you plan out the program.
E. Select interpretive activities: Based on available resources,
determine methods and locations for delivering your messages. You
should evaluate the pros and cons of each and try to find a balance
between personal and self-guided services. One way to do this is to
create a chart with headings like Themes, Activities, and Locations
to show how and where you will deliver your messages.
F. Implementation: After you have developed activities for your
station, you should define staffing, volunteer, facility and funding
needs. Prioritize and indicate possible funding sources from within
and outside the Service. Input these identified needs in the Refuge
Operations System (RONS) and Maintenance Management System (MMS).
G. Evaluation: You should consider evaluation at each phase of
the program, especially at the beginning. Using some of the
evaluation tools mentioned above, find out if you meet your
interpretive goals. Have your themes become a part of the overall
station experience? Are you meeting group needs and expectations?
What portion of your plan may you need to change?
Dated: December 22, 2000.
Jamie Rappaport Clark,
Director, U.S. Fish and Wildlife Service.
[FR Doc. 01-397 Filed 1-12-01; 8:45 am]
BILLING CODE 4310-55-U