Step-Down Planning

TABLE OF CONTENTS

OVERVIEW

4.1 What is the purpose of this chapter? 

A. This chapter establishes policy for the U.S. Fish and Wildlife Service (Service) to implement step-down planning from Comprehensive Conservation Plans (CCP) for the National Wildlife Refuge System (Refuge System) (see 602 FW 1, Exhibit 1 for definitions of “Comprehensive Conservation Plan” and “ 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 ”). 

B. Step-down planning means developing detailed plans to guide the protection, management, or use of refuge lands or resources over a multi-year timescale to achieve a refuge’s broad vision and goals outlined in a CCP (e.g., developing a visitor and community engagement plan or an integrated pest management plan) (see 602 FW 1, Exhibit 1 for definitions of “vision” and “goal”). The term “land” includes both land and water, as defined in 602 FW 2, Exhibit 1.

4.2 What are the authorities for this chapter? See 602 FW 1 for a list of planning authorities and 340 FW 1 for a list of real property acquisition authorities. 

4.3 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.  

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

4.5 What is the Service’s overall policy on step-down planning? Our refuge planning framework is accomplished at multiple spatial scales (e.g., landscape, regional, local) to guide conservation and management of refuge lands and waters. CCPs articulate our contributions to achieving a shared vision for the landscapes in which refuges are located while meeting the purposes of those refuges and the mission and goals of the Refuge System. Through step-down planning, we develop the specific objectives and strategies necessary to fulfill the visions and goals identified in CCPs. This approach ensures that we manage and steward refuges in a landscape context and provide conservation benefits for wildlife and people beyond refuge boundaries. All planning must be consistent with 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); Alaska National Interest Lands Conservation Act (ANILCA) (for Alaska refuges); and any other applicable laws and regulations, including the National Environmental Policy Act (NEPA) (see 602 FW 1, Exhibit 1 for definitions of “landscape,” “National Wildlife Refuge System mission,” “purposes of the refuge,” “objective,” and “strategy”).

4.6 What are the goals of step-down planning? Our goals for step-down planning are to: 

A. Guide refuge-level management by developing plans specific to the many aspects of administering a refuge.

B. Be consistent with and contribute to the vision and goals expressed in the CCP for the refuge or planning unit (i.e., group of refuges) and contribute to the implementation of applicable landscape conservation plans and designs (see 602 FW 1, Exhibit 1 for definitions of “revision” and “landscape planning and design”).

C. Consider uncertain or changing economic, environmental, and social conditions and allow a refuge or group of refuges the flexibility to adapt to these conditions, as necessary (e.g., through scenario planning or adaptive management). (See 602 FW 1, Exhibit 1 for a definition of “scenario planning.”)  

D. Incorporate the best available science in accordance with 305 Department of the Interior Manual (DM) 3, Integrity of Scientific and Scholarly Activities; 212 FW 7, Scientific Integrity and Scholarly Conduct; 274 FW 1, Data Management; the Service’s information quality guidelines; and Indigenous Knowledge (IK). 

E. Communicate the refuge’s specific objectives and strategies for implementing refuge-level programs clearly and concisely, both within the Service and with partners and other stakeholders.  

F. 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

4.7. Who is responsible for step-down planning? See Table 4-1.

Table 4-1: Responsibilities for Step-Down Planning

REQUIREMENTS FOR DEVELOPING STEP-DOWN PLANS

4.8 Why does the Refuge System write step-down plans? We write step-down plans to:

A. Provide more detailed guidance for refuge-level programs than is provided in a CCP. For example, step-down plans should include objectives that are Specific, Measurable, Achievable, Results-oriented, Time-fixed (SMART), and spatially explicit and identify strategies to achieve these objectives. Exhibit 1 includes a potential list of topics that refuge step-down plans may address and their corresponding Service policies. Step-down plans may assist the refuge management and staff to:

(1) Conserve, manage, and where appropriate, restore fish, wildlife, plants, and their habitats;

(2) Steward other special values of the refuge (e.g., cultural resources, wilderness, and wild and scenic rivers) (see 602 FW 1, Exhibit 1 for a definition of “cultural resources”); 

(3) Engage Tribes and the Native Hawaiian Community in conservation, including promoting co-stewardship of natural and cultural resources as appropriate and consistent with duties under existing law (see 502 DM 1, section 1.9B(4)); and

(4) Engage visitors and the community in conservation.

B. Contribute to the implementation of relevant landscape plans or designs (see 602 FW 1, Exhibit 1 for a definition of “landscape plan”).

4.9 Can a planning unit combine content spanning different program areas into one step-down plan? We may address step-down plan topics individually or combine them into a single, integrated step-down plan. We may also decide that some refuges or groups of refuges within a distinct planning unit would benefit from a combined step-down plan on a particular topic (e.g., a visitor services plan for a refuge complex or a habitat and species plan for a group of refuges covered by the same CCP) (see 602 FW 1, Exhibit 1 for definitions of “planning unit” and “habitat and species plan”). This decision should consider the vision and goals of the relevant CCP(s), the relationship between program areas, the possibility of shared program or resource management objectives and strategies, and the complexity of the programs under consideration. 

4.10 What if, during the process for preparing a step-down plan, staff determine that the step-down plan is not consistent with an applicable CCP? A step-down plan may amend the objectives, strategies, and other content in a CCP as necessary, and the amendment should be documented in the step-down plan. However, if a step-down plan is not consistent with the vision and goals of the applicable CCP, a CCP revision is required (see 602 FW 3).

4.11 When are compatibility determinations required for activities implemented through step-down planning? When a step-down plan proposes a new refuge use that requires a compatibility determination for authorization, the compatibility determination must be done concurrently with the step-down planning process (see 602 FW 1) (see 602 FW 1, Exhibit 1 for a definition of “compatibility determination”). 

4.12 How do we comply with the National Environmental Policy Act (NEPA) through step-down planning? NEPA requires us to examine the environmental impact of our actions, incorporate environmental information, and use public participation, as appropriate, in the planning and implementation of our actions. NEPA compliance is required whenever we take a new action, change an action, or there has been a significant change in information or conditions that may affect the environment. Refuge staff must evaluate objectives and strategies in a step-down plan in compliance with NEPA before they implement them.  

4.13 What if our step-down plan covers a planning unit that includes wilderness, a wild and scenic river, or other special designations? Special designations provide additional considerations for determining what administrative and management actions will be taken in that planning unit, including providing management objectives or necessary restrictions on what type of actions can be carried out within those areas. We manage and plan for wilderness in accordance with 610 FW 1-5, including how we integrate wilderness stewardship principles into step-down management plans (see 610 FW 3). 

4.14 How does the Refuge System coordinate with Federal and State agencies, Tribes, ANCs, ANOs, the Native Hawaiian Community, local agencies, territories, partners, and other stakeholders during step-down planning?

A. The Service is committed to being open, transparent, and collaborative with others during refuge planning (see 602 FW 1).

B. 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. 

C. 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) (see 602 FW 1, Exhibit 1 for definitions of “Tribes,” “ANC,” “ANO,” and “Native Hawaiian Community”).  The Service will endeavor to engage in co-stewardship as appropriate and consistent with applicable laws, where Federal lands and waters are located within or adjacent to federally recognized Tribal lands or traditional territories, where Tribes have subsistence or other rights or interests in non-adjacent Federal lands or waters, or where requested by Tribes, ANCs, ANOs, or the Native Hawaiian Community (see Director’s Order 227, section 5b).

D. Refuge staff must release step-down plans for public review and provide opportunity for public comment for a minimum of 30 days through a public website or some other appropriate medium.

REQUIREMENTS FOR IMPLEMENTING, REVIEWING, AND MAKING CHANGES TO STEP-DOWN PLANS

4.15 Why is work planning needed for implementation of step-down plans? Work planning identifies the who, what, where, when, and how of implementing strategies (e.g., specific projects, tasks, or activities). Work planning is critical for ensuring that the strategies we identify in a step-down plan will be carried out as intended or modified as needed. During work planning, we review past implementation of strategies to evaluate progress made toward objectives, take note of what has been learned, and adjust activities accordingly.Work planning can occur as part of the step-down plan or completed separately on an annual basis or every few years, as necessary, after the plan is completed. Refuge Managers should use their best judgment to determine when work planning is necessary and appropriate.

4.16 When and how does the Refuge System review step-down plans? We review step-down plans during work planning, comprehensively every 5 years, or more frequently as necessary, to evaluate the implementation status of our objectives and strategies. During work planning, we review past implementation of strategies to evaluate the progress made, take note of what has been learned, and adjust strategies accordingly. We review step-down plans to determine if they need to be changed to achieve the CCP’s vision and goals or, alternatively, if the CCP needs to be changed based on new information or changing conditions. Our reviews incorporate the results of learning from plan implementation, monitoring activities, and current research that helps gauge the effectiveness of our objectives and strategies.

4.17 When and how does the Refuge System make changes to step-down plans? 

A. Step-down plan revisions. Refuge Managers may revise step-down plans whenever they determine a revision is necessary due to changing information or conditions that require substantial changes to a program or resource management. For example, a plan may need revision when a refuge determines that longstanding management of an area as freshwater or brackish wetlands is no longer feasible due to sea level rise, and the area will be allowed to revert to tidal marsh. This change would require altering several objectives and strategies in the existing step-down plan. All revisions must comply with applicable laws and policies before being implemented, including requirements in 601 FW 7 and for public notice and comment.  

B. Step-down plan amendments. Refuge Managers may amend step-down plans whenever they determine that a change to the plan is needed based on changing conditions or new information, but the change will not result in substantial changes to a program or resource management. For example, a plan may need an amendment if a refuge determines that due to reduced staff capacity, they need to shift from in-school educational programs to on-refuge educational programs. All amendments must be documented and comply with applicable laws and policies before being implemented, include requirements for public notice and comment.

C. Step-down plan administrative changes. Refuge Managers may make administrative changes to step-down plans at any time to correct administrative errors and inaccuracies or to otherwise update plans in a manner that does not result in a change in management. 

You can find the definitions of “revisions,” “amendments,” and “administrative changes” in 602 FW 1, Exhibit 1.