1. What is the problem? Why is there a problem?

The problem is lack of operations funding caused primarily by flat and declining operational budgets adversely affecting the National Wildlife Refuge System. The refuge system is competing with national priorities such as military operations, homeland security, and emergency hurricane relief for limited federal funding. The budget challenge is further caused by increasing costs of living expenses, higher energy prices and other increasing fixed expenses. After several years of budget increases associated with the 2003 Refuge Centennial, refuges had a one-time adjustment downward. Since 2004, Southeast refuges have had to downsize. Sixty-four permanent field employee positions and four regional office positions were eliminated in order to meet operating needs. Since this adjustment, the budget has remained stable but increasing fixed costs and other inflationary factors have further eroded budget capability. Refuges in the Southeast currently require an increase of approximately $2 million a year to maintain status quo. Without this $2 million annual increase, additional cuts are necessary to meet the budget shortfall. Southeast Regional Director, Sam Hamilton and Regional Refuge Chief, Jon Andrew recognized the challenge and assembled two teams tasked to develop a plan to proactively manage refuge budgets and better align current staffing for mission-critical priorities.(return to FAQ)

2. How have Southeast refuges dealt with budget shortfalls in the recent past? Operating margins declined to five percent in 2003 for Southeast refuges and it became difficult to cover fixed cost (salaries and benefits) on some stations. To increase the operating margin and meet basic needs on refuges in the past few years, Southeast refuges abolished 68 permanent positions (seven percent of the total workforce). These job losses came opportunistically - when vacancies occurred, they were not filled - thus creating inequities in our regional refuge workforce.The workforce plan reviewed the current workforce distribution and recommended cuts where appropriate to realign staff fairly within budget allotments. This will help better position Southeast refuges for the proposed flat or declining budgets which are expected over the next three years. (return to FAQ)

3. What are "operating expenses" and "operating margins", and why are they important? Operating expenses are the costs of doing business, excluding salary and benefit costs for permanent personnel. Operating margins are the percentages of annual funds available to pay for operating expenses. Operating funds represent the discretionary budget a manager uses to pay for everything from electricity and water to floor cleaner and pencils. Operating funds purchase small equipment (such as computers or binoculars) and pay for management activities like maintaining levees or printing hunt brochures..and everything in between. It's the operating margin -- after salaries and benefits -- that refuge managers use to manage the refuge. When we can no longer pay for operations, we lose our ability to manage our refuges and are not fulfilling our "wildlife first" mandate.Unfortunately, on many refuges we do not have enough funds left after salaries to manage the refuge. Some refuges are in better shape than others, but on average, we have between 10 and 15% of an operating margin for refuge operations. Southeast refuges are taking corrective actions to try to restore a 20% operating margin for all refuges. (return to FAQ)

4. What are the expenses covered by Refuge funds?   Currently roughly 90% of Southeast refuges' budget goes to salaries and benefits of our employees. It is estimated that we need $2 million additional dollars each year to pay the annual cost of living increases, energy costs, and other rising uncontrollable expenses. Therefore, even if the budget remains stable, the refuges must cut 20-30 FTE's to maintain operating margins of 10%. However, even with an operating margin of 10%, the refuges are still in the "danger zone" where a small cut in the budget could lead to refuge closures and a forced employee reduction in force. (return to FAQ)  

5.   Why a 20% operating margin? The 20% margin is a goal set nationally by the Refuge Regional Chiefs. It is a target that represents what is needed in the long term to allow management flexibility to conduct mission critical programs. The 80:20 (fixed costs: operating margin) ratio is a planning target not an absolute rule. Some refuges may achieve this ratio and others may not; but region-wide, it provides a better fiscal model for achieving our core mission for refuges.(return to FAQ)

6. How can an 80:20 funding target be achieved? As operating margins continue to decline, refuges will be forced to eliminate positions to recoup the savings needed to carry out refuge management activities. Without budget increases, reducing permanent salaries are, unfortunately, the primary way to get the needed funds for these expenses. (return to FAQ)

7.   How was the workforce plan created? The Regional Field Workforce Team was selected by the Regional Refuge Chief and comprised of ten members who represented various geographic areas, program disciplines, and refuge size and complexity. The team included both regional office and field station members. The Field Team was tasked to develop a three-year plan to strategically guide southeast region refuges to meet fiscal responsibilities through a 20% operating margin target; while still sustaining our highest priority mission-related work. The team met twice in Atlanta and via multiple teleconference calls to develop the field plan. At the direction of the Director, the plan was later changed to be a three-year plan.The Regional Office Workforce Team was selected by the Regional Refuge Chief and comprised of five refuge managers and one regional office representative. The Regional Office Team was tasked with finding a 10% reduction and prioritization of regional refuge Full Time Employees (FTE), assessing any additional FTE reductions to achieve a more efficient organization, reviewing the expenditures in base funding accounts, and scrutinizing General Services Administration (GSA) space costs. The team met twice in Atlanta , for a total of four days. (return to FAQ)

8. What are changes at field stations in the plan? The Plan develops three strategies for addressing current needs. First, each of the region's 128 refuges was identified with one of three tiers to best reflect the current or expected status of the refuge in coming years. Twenty-four refuges are " Focus Refuges" for this region, 61 are refuges " Targeted for Reduction ," and the remaining 43 are " Unstaffed/Satellite Refuges." (see question 9.)The second step in addressing the critical situation of refuges in the Southeast Region was identifying staff reductions. It is essential to understand, however, no position on any national wildlife refuge is deemed to be unnecessary. In fact, prior to the reductions proposed in this plan, most refuges in the Southeast Region were already understaffed. Stations were identified as candidates for strategic staff reductions only if core functions and key habitats could be maintained during the next three years. In the analysis, a total of 79 field and 8 regional office positions were identified for eventual elimination during the next three years. Of these positions, 25 are managers, 7 are biologists, 2 are foresters, 13 are public use positions, 3 are in law enforcement, 1 is a planner, 24 are administrative positions, and 22 are in maintenance. This in no way infers that the same level of work would continue after staff reductions, but key habitats would not deteriorate past recovery over the next three years.The third step was to propose new refuge complexes within the Southeast Region. The new complexing will affect seven refuges. The decision to complex refuges (to group refuges together) was made to increase management efficiency. This will be accomplished by creating new complexes of refuges with similar types of resources, while recognizing span-of-control limitations based on geography and supervisory needs. (return to FAQ)

9. Will you explain what the tiers for refuges mean? Focus Refuges include 24 refuges where the Service will strive to maintain or enhance existing field operations. These refuges are identified because of the significance of the natural resources, important opportunities for priority wildlife-dependent recreation, or other highly significant values that make their operations top priorities for the Service.Targeted Reduction Refuges include 61 refuges where reductions in operations will occur. They may have significant natural resources, opportunities for priority wildlife-dependent recreation , or other significant value, but their priority is less than focus refuges.Unstaffed Satellite Refuges include 43 refuges that have never been staffed and those that will be destaffed because of budget shortfalls.Because of the critical funding situation in the Southeast Region, significant staffing reductions will have to occur not only in the Targeted Reduction Refuges, but also in Focus refuges.(return to FAQ)

10. How soon will this plan be implemented? The plan is a roadmap that provides recommendations on how to get us to where we need to go over the next three years. Some elements of the plan are already incorporated into regional decision-making. Other components will require higher approval authority within the agency. Refuges affected by new Complexing will begin transition immediately.(return to FAQ)

11. How many Regional Office refuge employees will be directly affected by these changes? Eight and a half refuge regional office positions are recommended for elimination to achieve the 10% reduction. In identifying the positions, the team looked at whether these positions (not necessarily tasks conducted by positions) were critical to supporting RO operations, which includes meeting Washington Office data calls and directives, and ultimately field station support. (return to FAQ)

12.   How will the workforce reduction occur on Refuges? Seventeen of the positions slated for abolishment are currently vacant. The Region has requested authority from Washington to offer the voluntary early out/buyout option Voluntary Early Retirement Authority-Voluntary Separation Incentive Pay (VERA/VSIP) to some employees. If approved this is anticipated to create another 20-30 vacancies. There will likely be another 5-10 normal retirements within the next three year window of the plan. Voluntary reassignments will be an option for some individuals and others will transfer through normal job changes. Our hope is most of the targeted positions will be covered by one of the above processes. Directed reassignments may be used as another option but are not under consideration at this point. The last resort is a Reduction-in-Force ( RIF ) and would occur only with a larger than expected budget cut. Being able to increase operating margins early will allow more flexibility should larger than expected budgets cuts occur.(return to FAQ)

13. Will the positions identified in these plans remain on our organizational charts? No. When the position becomes vacant, these positions will be abolished. (return to FAQ)  

14. The strategic plan will add some positions. How can you add positions if you are trying to achieve budget savings? The goal is to increase our operating margins and realign the declining workforce to meet the highest priority mission activities. In doing so, a few critical positions will need to be filled as the regional refuge management directs the workforce. (return to FAQ)

15.   If the budget situation improves, will you stop abolishing positions? Because this is a strategic approach to organizing our workforce in the best way to fulfill the Service's mission, the plan calls for these positions to be abolished regardless. However, this plan will need to be reevaluated annually and adjustments made as budgets and priorities dictate. (return to FAQ)

16.   Does the list of 79 field positions take into consideration the additional 10% to the field from the Regional Office jobs cuts? Yes. Cost savings from the regional office planned job cuts will be redirected to field operations. (return to FAQ)

17.   How did regional office refuge program determine the 10% reduction for the regional office?   Director Dale Hall tasked all Regional Offices to reduce costs by 10%. The refuge program put together a team of five refuge managers and one Regional Office representative to perform a comprehensive review of programs and positions to achieve a more efficient organization. This meant abolishing positions that were least critical to supporting regional operations and field station support including meeting Washington Office data calls and directives. (return to FAQ) )

18.   Did you decide to cut positions in which people are either eligible for early buyout or are near retirement? No. This is a strategic reorganization. The recommendations of the team were based on creating the most efficient organizational structure possible. The Regional Office positions were evaluated on maintaining the most essential support to the refuges and ranked based on those criteria. The Field Team based decision on our "Wildlife First" mission, with trust resources such as migratory birds, endangered species and anadramous fish taking priority. Also, management complexity, facilities, public use programs, geographic location and other factors were considered in the final determination. (return to FAQ)

19.   What about refuge Friends groups and other partners? The Southeast Region is fortunate to have 60 refuge and hatchery Friends groups. In difficult budget times, Friends and volunteers are more important than ever in helping refuges achieve our shared purposes. We want to continue to reach out to our Friends and partners and every refuge with a Friends group should work diligently to help them understand why we must make these difficult decisions. We recognize, however, the tendency of most Friends groups is to "protect their own" and they may want to advocate saving positions on "their refuge." If this occurs, Friends groups will be competing against each other by attempting to shift budgets or positions from one refuge to another. They must understand this reduced operating capacity is a problem affecting the entire National Wildlife Refuge System. By trying to protect their refuge, they can negatively affect the overall system and disrupt regional and national strategies and priorities. Friends groups can and should network together or work with national groups such as the National Wildlife Refuge Association to address refuge system issues. They can obtain more information by contacting the NWRA http://www.refugenet.org . (return to FAQ)

(Remaining questions focus on employees)

20.   How will I know if my position is on the list? On October 23 project leaders were provided the final plan. The following day, they notified their staff in affected positions, explaining the reorganization and providing information. The goal is to ensure that all employees hear this information first-hand from their managers. (return to FAQ)

21. If my job is on the list, what does that mean for me? Do I need to look for another job now? No. The Regional Office positions are slated for elimination over the next two years (end of FY2008), while the field stations positions will be eliminated over the next three years (end of FY2009). By identifying necessary cuts now, we are providing employee's time to carefully evaluate their options and make informed career decisions. The Refuge Manager and Human Resources office will work closely with each individual to review their career options and find the best solution for them. (return to FAQ)

22.   Will only individuals on this list be offered the early buyouts (VERA/VSIP)? Voluntary Early Retirement Authority (VERA) and Voluntary Separation Incentive Pay (VSIP) authorization was requested by the region from Washington . While we wait for their decision, we are developing strategies on how to implement it. Individuals beyond this list will not be offered VERA-VSIP at this time. (return to FAQ)

23.   If my position is scheduled to be abolished, will I get priority when applying for other Service jobs? It is important that we take care of our employees as much as possible in this process. While we can't provide preferential treatment in merit hiring procedures, we will do what we can to help people get placed in vacancy positions they are interested in and qualified for.(return to FAQ)

24. Who can I talk to about any effect on my position? Whether or not you are currently in a position that is scheduled to be abolished, these changes may be difficult for many employees. There are many outlets for employees to talk about these changes.Project Leader : all project leaders will have an open door policy to discuss with staff their career options. We will make every attempt to help advance the careers of employees.Area Refuge Supervisor : after they discuss with Refuge Managers.Field Visit by Supervisor (Town Hall Meetings if there is interest)Employee Assistant Program (EAP ): EAP is a free, confidential counseling service for employees who are dealing with personal issues, including stress. The Regional EAP Coordinator is Daphne Williams at (404) 679-4017. You may also contact an EAP counselor directly at (800) 222-0364. Information about what to expect when contacting EAP can be found at the Service's Intranet site at https://intranet.fws.gov/region4/ba/HR/hr_eap.htm

(return to FAQ)

Summary Fact Sheets

Q & A