Comprehensive Conservation Planning

TABLE OF CONTENTS

OVERVIEW

3.1 What is the purpose of this chapter? This chapter establishes policy for the U.S. Fish and Wildlife Service (Service) to implement National Wildlife Refuge System (Refuge System) comprehensive conservation planning as required by the National Wildlife Refuge System Administration Act of 1966, as amended by the National Wildlife Refuge System Improvement Act of 1997 (Administration Act, as amended) (16 U.S.C. 668dd-668ee) (see 602 FW 1, Exhibit 1 for a definition of “ national wildlife refuge national wildlife refuge
A national wildlife refuge is typically a contiguous area of land and water managed by the U.S. Fish and Wildlife Service  for the conservation and, where appropriate, restoration of fish, wildlife and plant resources and their habitats for the benefit of present and future generations of Americans.

Learn more about national wildlife refuge ”), and Alaska National Interest Lands Conservation Act of 1980 (ANILCA), as amended (16 U.S.C. 3101-3233) (for Alaska national wildlife refuges).  

3.2 What are the authorities for this chapter? 

A. See 602 FW 1 for a list of planning authorities and 340 FW 1 for a list of real property acquisition authorities.

B. ANILCA provides additional guidance on the content of Comprehensive Conservation Plans (CCP) and management direction. If any provisions of the National Wildlife Refuge System Improvement Act of 1997 conflict with the provisions of ANILCA, the provisions of ANILCA will govern for refuges in Alaska.

3.3 What is the scope of this chapter? This chapter applies to planning for land, water, or interests in land or water administered by the Service as part of the Refuge System, excluding Coordination Areas (see 602 FW 1, Exhibit 1 for a definition of “Coordination Area”). The term “land” includes both land and water, as defined in 602 FW 1, Exhibit 1. 

3.4 What terms do you need to know to understand this chapter? See 602 FW 1, Exhibit 1, for a glossary of terms.

3.5 What are the goals of comprehensive conservation planning? Our goals for comprehensive conservation planning are to:

A. Focus refuge management on stewarding diverse, resilient, and self-sustaining connected habitats or ecosystems that support priority species while: 

(1) Fulfilling refuge purposes and the Refuge System mission; 

(2) Contributing to the achievement of Refuge System goals (see 601 FW 1); 

(3) Maintaining and, where necessary and appropriate, restoring and enhancing the Biological Integrity, Diversity, and Environmental Health (BIDEH) of the Refuge System (see 601 FW 3); and 

(4) Meeting other legal mandates (see 602 FW 1, Exhibit 1 for definitions of “ecosystem,” “priority species,” and “purposes of the refuge”).

B. Ensure:

(1) The following six priority wildlife-dependent recreational refuge uses (per 16 U.S.C. 668dd(a)(4)(H) – 668dd(a)(4)(K)) receive enhanced consideration over other public uses in our conservation planning (see 602 FW 1, Exhibit 1 for a definition of “wildlife-dependent recreational use”):  

     (a) Hunting,

     (b) Fishing,

     (c) Wildlife observation, 

     (d) Wildlife photography,

     (e) Environmental education, and

     (f) Interpretation.

(2) For Alaska refuges, that continued opportunities for subsistence uses by rural Alaska residents receive priority over other uses (per ANILCA) (see 602 FW 1, Exhibit 1 for definition of “subsistence uses.” 

C. Implement visitor services standards (see 605 FW 1) and Urban Wildlife Conservation Program Standards of Excellence, where appropriate (see 110 FW 1).

D. Guide stewardship of specially-designated areas of the Refuge System, integrating wilderness stewardship principles into management for refuges with designated or proposed wilderness (see 610 FW 1-5).

E. Establish a framework using planning at multiple spatial scales (e.g., landscape, regional, and local) to guide conservation and management of refuge lands and waters, articulate our contributions to achieving a shared vision expressed in landscape planning and design, including connectivity conservation, and serve as the bridge to more detailed step-down plans that include specific management objectives and strategies (see 602 FW 1, Exhibit 1 for definitions of “landscape,” “objective,” and “strategy”).  

F. Provide an established engagement process for Federal and State agencies, Tribes, Alaska Native Corporations (ANC), Alaska Native Organizations (ANO), the Native Hawaiian Community, local agencies, territories, partners, and other stakeholders to participate in comprehensive conservation planning (see 620 FW 1, Exhibit 1 for definitions of “Alaska Native Corporation,” “Alaska Native Organization,” and “Native Hawaiian Community”).

G. Build on the strong foundation of existing CCPs we developed under ANILCA (16 U.S.C. 3101) and the Administration Act, as amended (16 U.S.C. 668dd-668ee).

H. Plan for the plausible future conditions of our refuges to ensure that the Refuge System is resilient and can adapt to large-scale ecological transformation caused by climate change climate change
Climate change includes both global warming driven by human-induced emissions of greenhouse gases and the resulting large-scale shifts in weather patterns. Though there have been previous periods of climatic change, since the mid-20th century humans have had an unprecedented impact on Earth's climate system and caused change on a global scale.

Learn more about climate change and other anthropogenic changes.

RESPONSIBILITIES

3.6 Who is responsible for comprehensive conservation planning?

Table 3-1: Responsibilities for Comprehensive Conservation Planning

REQUIREMENTS FOR DEVELOPING CCPS

3.7 When does the Refuge System develop CCPs for new refuges? For newly established refuges, we must complete the CCP no later than 15 years after establishment. If Congress creates new refuges in Alaska, we must complete a CCP within 2 years of establishment (Section 304(g) of ANILCA).

3.8 How does the Refuge System determine the scope of CCPs? We include multiple refuges in a single CCP, when feasible. Our ability to group refuges under a single CCP depends on the refuges’ similarities with respect to factors such as habitats, species, purposes, uses, locations, and management concerns. This allows us to step down vision and goals from landscape plans and refuge-specific management actions that deliver broader landscape-level benefits. (see 602 FW 1, Exhibit 1 for definitions of “landscape plan” and “goal”).

3.9 What is the required content for CCPs? CCPs must, at a minimum, include the following:

A. A description of the geographic scope of the CCP.

B. A list of the purpose(s) of each refuge comprising the planning unit (see 602 FW 1, Exhibit 1 for definition of “planning unit”).

C. A concise description of the distribution, migration patterns, and abundance of fish, wildlife, and plant populations and related habitats within the planning unit, focusing on priority habitats and priority species, how they are interrelated, and a rationale for their selection as priorities (see 602 FW 1, Exhibit 1 for definition of “priority habitat” and “priority species”).  

D. An assessment of the planning unit's contributions to relevant landscape conservation and recreation plans or designs.

E. A concise description of any special values or designations of the refuge(s), including archeological, cultural, ecological, geological, historical, paleontological, scenic, or outstandingly remarkable river or wilderness values. 

F. A concise description of opportunities for compatible wildlife-dependent recreational uses, including areas that are suitable for use as administrative sites and visitor services facilities. For Alaska refuges, CCPs also must include a concise description of opportunities for compatible ecological research (16 U.S.C. 3101-3233).

G. For Alaska refuges, map(s) of the refuge with areas designated based on their respective resources, values, and uses that are compatible with the major purposes of the refuge.

H. An assessment of significant threats or problems that may adversely affect the planning unit, including the populations and habitats of fish, wildlife, and plants, focusing on a refuge’s, or refuges’, priority habitats and priority species (see 602 FW 1, Exhibit 1 for a definition of “threats”). 

I. A long-term vision statement for the planning unit (see 602 FW 1, Exhibit 1 for a definition of “vision”).

J. Goals that describe, in broad terms, the desired future condition(s) for:

(1) Priority habitats and priority species within the planning unit. 

(2) Visitor and community engagement, including opportunities for wildlife-dependent recreation, and, for Alaska refuges, continued opportunities for subsistence uses by rural Alaska residents. For recognized urban wildlife refuges, goal(s) specific to the requirements and standards of the Urban Wildlife Conservation Program Policy (see 110 FW 1).

(3) Stewarding other special values of a refuge(s) as appropriate, including designated or proposed wilderness and wild and scenic rivers, cultural and archaeological resources, and, for Alaska refuges, opportunities for ecological research (see 602 FW 1, Exhibit 1 for a definition of “cultural resources”).

K. Actions to correct or mitigate significant threats or problems that may adversely affect the populations and habitats of fish, wildlife, and plants within the planning unit that may be included in a habitat and species step-down plan as objectives and strategies (see 620 FW 1).

3.10 What documents comprise a CCP? A CCP includes all the elements in section 3.9 that meet the statutory requirements for a CCP, as set forth in the Administration Act, as amended. The required content may be included in a single document or in an overarching document plus necessary step-down plans for the refuge(s). The overarching document includes the vision and goals for the refuge as well as high-level direction for management, while the step-down plans include objectives and strategies for implementation. 

3.11 How does the Refuge System coordinate with Tribes, ANCs, ANOs, and the Native Hawaiian Community during CCP development? The Refuge System must collaborate and coordinate with affected Tribes, ANCs, ANOs, and the Native Hawaiian Community, through their respective appropriate representatives, on activities that may directly or indirectly affect their reserved and other rights, interests, practices, lands, and traditional use areas. Communications must be proactive, begin early in the CCP process, and occur throughout the planning process and throughout various levels of our organization. Planning records will document treaty, trust, cultural, natural resource, and other interests within the planning areas where Tribes, ANCs, ANOs, and the Native Hawaiian Community have an interest (see Director’s Order 227, section 5d). The Refuge System will promote the use of collaborative or cooperative arrangements with these communities and sovereigns, and will identify opportunities for co-stewardship in land-management plans as appropriate and consistent with our duties under existing law (see 502 DM 1, section 1.9B(4)). We will provide opportunity to collaborate with representatives from affected Tribes, ANCs, ANOs, and the Native Hawaiian Community in early phases of the planning process. We will use the best available science and consider Indigenous Knowledge (IK) and expertise of affected Tribal governments, ANCs, ANOs, and Native Hawaiian organizations in our CCP processes, agency actions, and determinations (see 510 FW 1) (see 602 FW 1, Exhibit 1 for definitions of “Indigenous Knowledge” and “Native Hawaiian organization”).

3.12 How does the Refuge System coordinate with the States and territories during CCP development? The Refuge System recognizes that we have joint responsibilities for managing wildlife with the States and territories. In preparing each plan or plan revision, we will coordinate with the appropriate State and territorial agencies in accordance with our policy at 601 FW 7, Coordination and Cooperative Work with State Fish and Wildlife Agencies, and make it a priority to ensure that our conservation goals and strategies are providing the greatest conservation benefits possible across the landscape. 

3.13 How does the Refuge System involve the public when it develops or revises CCPs? We ensure an opportunity for active public involvement in the preparation and revision of CCPs (see 602 FW 1). At a minimum, we must:

A. Notify the public of the opportunity to participate in the preparation of a new or revised CCP. 

B. Publish a notice of opportunity for public comment in the Federal Register and make copies available online and at the affected refuge(s) and Regional office, with a minimum of 30 days for public review.

C. Include in each final CCP a summary of comments received and a statement of the disposition of concerns expressed in those comments. We make final CCPs and revisions available to the public.

IMPLEMENTING, REVIEWING, CHANGING, AND TRACKING CCPS

3.14 How do CCPs guide refuge management? We manage each refuge according to its respective CCP. At its core, a CCP sets the long-term vision and broad management goals for the refuge and is informed by landscape planning and design. The objectives and strategies for refuge management can occur in the step-down plans. These plans provide managers with the ability to develop strategic, forward-looking actions to achieve the vision and goals for the planning unit and the larger landscape (see 602 FW 1, Exhibit 1 for a definition of “step-down plan”). 

3.15 When and how does the Refuge System review CCPs? We review a CCP, along with the rest of a refuge’s planning portfolio, comprehensively every 15 years, or more frequently if necessary, to determine if a revision or other change is needed. This comprehensive review guides a refuge in determining what changes need to be made to existing plans and what new plans need to be developed to address a refuge’s management and planning needs. The review includes assessing the status of existing refuge plans, new information learned through changing conditions, best available science, and the results of inventory and monitoring (see 701 FW 2). Each CCP review outcome is documented in the planning portfolio.

3.16 When and how does the Refuge System make changes to CCPs?

A. CCP revisions. We use the CCP revision process to make major alterations to CCPs as necessary when conditions that affect the planning unit have changed considerably, and we determine that changes to the long-term vision or goals for the planning unit are needed as a result.

(1) For example, we may need to revise a CCP when one or more of the following changes the vision or goals: 

     (a) One or more of the refuges in the planning unit gains new purposes; 

     (b) The status of priority habitats or priority species changes substantially on the refuge or in the landscape; 

     (c) Ecological conditions, threats, or opportunities change considerably on the refuge or in the landscape; or 

     (d) Major refuge expansion occurs (see 602 FW 1, Exhibit 1 for a definition of “major expansion”). 

(2) CCP revisions update the existing CCP and include all or a subset of the required content in section 3.9 that needs to be revised. All CCP revisions must identify priority habitats and priority species, assess the planning unit's contributions to the goals in landscape plans, identify any major changes to ecological conditions or threats to a planning unit’s priority habitats and priority species, and provide updated long-term vision and goals for the planning unit. CCP revisions must be released for public review and comment for a minimum of 30 days.

B. CCP amendments. We amend rather than revise CCPs when there is a need for changes in the required content described in section 3.9, but the changes remain consistent with the planning unit’s current vision and goals. All amendments must comply with applicable laws and policies before being implemented, including any requirements for public notice and comment.

(1) CCPs may be amended and documented through step-down planning (602 FW 4). 

(2) For a CCP finalized before the issuance of this policy, we may amend the CCP by developing a new step-down plan to modify current objectives or strategies needed to achieve the vision or goals of a planning unit. If the new objectives or strategies are inconsistent with the original CCP vision and goals, a CCP revision should be prepared.

C. CCP administrative changes. We make administrative changes to CCPs when we need to correct errors and inaccuracies or update the plan in a manner that does not result in a change in management. For example, we may make administrative changes to a CCP to correct a map that shows an inaccurate approved acquisition boundary (see 602 FW 1, Exhibit 1 for definitions of “administrative change” and “approved acquisition boundary”).

3.17 How does the Refuge System track CCPs? We maintain a national database of the status of CCPs and their reviews. We use the database to provide reports on CCP status and funding needs for the Refuge System planning program.