Habitat and Species Step-Down Planning

TABLE OF CONTENTS

OVERVIEW

6.1 What is the purpose of this chapter? This chapter establishes the U.S. Fish and Wildlife Service (Service) policy for implementing habitat and species step-down planning to conserve fish, wildlife, and plants and the habitats upon which they depend within the National Wildlife Refuge System (Refuge System).

6.2 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.  

6.3 What are the authorities for this chapter? See 602 FW 1 for a list of authorities for all the chapters in Part 602, Refuge Planning.

6.4 What terms do you need to know to understand this chapter? See 602 FW 1, Exhibit 1, for a glossary of terms used in Part 602, Refuge Planning.

6.5 What is the Refuge System’s overall approach for habitat and species planning? 

 A. We accomplish our refuge planning framework at multiple spatial scales (e.g., landscape, regional, and local) to guide conservation and management of the Refuge System. 

 B. Habitat and species step-down planning:

 (1) Sets the detailed objectives and strategies that a refuge(s) will implement to make progress toward achieving a Comprehensive Conservation Plan’s (CCP) vision and goals related to the conservation of priority habitats and priority species. 

 (2) Provides a strategic focus for a refuge’s conservation efforts in fulfilling its purposes and contributing to the Refuge System’s mission and goals (601 FW 1), including maintaining the Biological Integrity, Diversity, and Environmental Health (BIDEH) of each refuge and the Refuge System (601 FW 3).

 (3) Identifies each refuge’s role in the landscape and how specific refuge actions contribute to landscape scale goals and objectives identified by the Service or its partners, as appropriate (see 602 FW 1, Exhibit 1, for a definition of “landscape”).  

 (4) Focuses on the ecosystem as the context for habitat and species conservation efforts because maintaining or restoring diverse, functioning, resilient, and interconnected ecosystems is an effective and efficient way to provide conservation benefits to the diverse array of fish, wildlife, and plants and their associated habitats that we steward in the Refuge System (see 602 FW 1, Exhibit 1, for a definition of “ecosystem”).  

 C. This policy requires every refuge or group of refuges to have a plan in place that includes current objectives and strategies for one or more priority habitats or priority species (previously called “priority resources of concern”), or both. We focus on priorities by directing planning and management attention to where it is most needed. 

6.6 What are habitat and species plans? These are step-down plans that 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. Habitat and species plans can be used to meet the CCP requirement in 602 FW 3, which requires identifying actions to correct or mitigate significant threats or problems that may adversely affect the populations and habitats of fish, wildlife, and plants to achieve long-term refuge vision and goals. 

A. We can amend an existing CCP through a habitat and species plan by updating objectives and strategies that continue to support the CCP’s broad vision and goals. 

B. Planning for other related topics such as wilderness (610 FW 1), wild and scenic rivers, fire management (621 FW 1), minerals management (612 FW 1), cooperative agricultural use (620 FW 2), integrated pest management (569 FW 1), and population management (Part 700 of the Service Manual) may also be incorporated into these plans, if appropriate, or they may be addressed in separate plans, in compliance with applicable laws and policies.

C. The naming convention of a habitat and species plan may vary based on the plan’s content; however, the verbiage ‘habitat and species plan’ must be in the title for transparency. 

6.7 What are the goals of habitat and species planning? Our goals are the following:

A. Focus conservation efforts on making the greatest positive impact for priority habitats and priority species.

B. Incorporate adaptive management principles (522 Department of the Interior Manual (DM) 1) into decision making through an iterative cycle in which we evaluate, learn, and apply new information to our conservation practices using a clear, systematic approach that is based on measurable objectives and targeted monitoring in alignment with Service policies at 701 FW 2, Inventory and Monitoring in the National Wildlife Refuge System, and 052 FW 1, Strategic Habitat Conservation.

C. Connect conservation efforts for priority habitats and priority species at local scales to conservation efforts at landscape and regional scales (052 FW 1 and Parts 717 and 721 of the Service Manual). 

D. Plan for the plausible future ecological conditions of our refuges and their landscapes to ensure that we are prepared for adaptation and resilience in the face of 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 (056 FW 1).

E. Maintain and, where appropriate, restore and enhance the BIDEH (see 601 FW 3) of each refuge and the Refuge System by sustaining diverse, functioning, and resilient ecosystems that are suited to emerging or future conditions.

F. Integrate the best available evidence from across disciplines in accordance with 305 DM 3, Integrity of Scientific and Scholarly Activities; 212 FW 7, Scientific Integrity and Scholarly Conduct; 274 FW 1, Data Management; and the Service’s information quality guidelines. In addition, respect and equitably promote the inclusion of Indigenous Knowledge in decision making, resource management, program implementation, policy development, scientific research, and other actions. 

G. Ensure a collaborative and transparent refuge planning process with opportunities for participation by other Service programs, Federal and State agencies, Tribes, Alaska Native Corporations (ANC), Alaska Native Organizations (ANO), the Native Hawaiian Community, local agencies, territories, partners, and other stakeholders (see 602 FW 1, Exhibit 1 for definitions of “Tribes,” “Alaska Native Corporations,” “Alaska Native Organizations,” “Native Hawaiian Community,” and “stakeholder”). 

RESPONSIBILITIES

6.8 What are the responsibilities related to habitat and species planning? See 602 FW 4, Step-down Planning, for a list of overall responsibilities for step-down planning. 

DEVELOPING HABITAT AND SPECIES PLANS

6.9 When must habitat and species plans be prepared? The Refuge System prepares habitat and species plans concurrently with CCPs or after CCP development and before implementation of new actions for managing habitat and species (see 602 FW 3). We require habitat and species plans when objectives, strategies, and actions for priority habitats or priority species, or both, are not in an existing CCP or other planning documents.

6.10 How does the Refuge System determine the priority habitats and priority species that will be a focus of planning?

A. The CCP should include priority habitats and priority species to provide a strategic focus for a planning unit’s conservation efforts. If these priorities have not been identified in a CCP, then they are identified in the habitat and species plan, and the CCP should be amended or revised as appropriate (see 602 FW 3).

B. A habitat and species plan may address all or a subset of a planning unit’s priority habitats and priority species based on factors such as the degree of urgency to intervene, refuge capacity to act, opportunities for leveraging partnerships or resources, and the likely response of the habitat or species to refuge actions.

6.11 Why does the Refuge System focus on the ecosystem context as an organizing principle for habitat and species planning? By conserving diverse, functioning, and resilient ecosystems, we can sustain and foster efficiently and effectively the recovery of associated priority species and priority habitats in addition to all other species that depend on those ecosystems. When feasible, we design our objectives and strategies to have influence at the ecosystem level. This broad approach helps fulfill refuge purpose(s), meet Refuge System mission and goals (601 FW 1), and maintain BIDEH (601 FW 3). When ecosystem-level objectives and strategies are not sufficient to conserve individual species, we may need to develop objectives and strategies at the species level.

6.12 What does the Refuge System include in a habitat and species plan? Plans must include:

A. Scope. A description of the breadth of the plan, including the selection of priority habitats and priority species that are the focus of the plan and which refuge(s) or unit(s) of a refuge are covered within the planning unit.

B. Goals. Relevant conservation goal(s) from the planning unit’s CCP(s) that the plan intends to achieve and how they contribute to landscape scale conservation goals, when applicable.

C. Problems. Issues (e.g., threats, limiting factors) that may adversely affect priority habitats or priority species. 

D. Opportunities. Possibilities or options to support the conservation of priority habitats and priority species and leverage other conservation efforts, funding, or collaborations at the local, regional, and landscape levels.

E. Objectives. Concise statements derived from goals that provide the basis for determining strategies, monitoring refuge accomplishments, and evaluating the success of strategies. Objectives are Specific, Measurable, Achievable, Results-oriented, and Time-fixed (SMART) descriptions of what we want to accomplish through our conservation strategies.

F. Strategies. Actions, tools, and conservation techniques used to achieve objectives by correcting or mitigating significant threats or problems that may adversely affect the populations and habitats of fish, wildlife, and plants within the planning unit. Strategies described in these plans may include stewardship, resource protection, ecosystem or habitat management, ecological restoration, and species or population management.

G. Evaluation. A description of important information needs and how and when Refuge Managers will assess new information to determine if an adjustment to objectives or strategies is necessary based on new conditions, changing threats, lessons learned, and observed strategy outcomes. 

6.13 How does the Refuge System prepare for climate adaptation and resiliency in planning for the conservation of priority habitats and priority species?

A. We consider historical, current, and plausible future ecological conditions and determine whether to resist, accept, or direct ecological transformations based on desired conditions for priority habitats and priority species.

B. When there are clear and distinguishable future alternative scenarios, we develop objectives and strategies for conserving priority habitats and priority species for each scenario. Doing so allows us to be adaptive in responding to uncertainty in a strategic and timely manner. 

6.14 How does the Refuge System consider special designations in planning for priority habitats and priority species? If the planning unit includes areas with existing special designations (e.g., wilderness, wild and scenic rivers, research natural areas, national trails), we must consider opportunities, constraints, or limitations posed by those special designations when we develop conservation objectives and apply management strategies. If the habitat and species plan also serves as the plan for the administration of these special designations, then we must follow the planning requirements as described by applicable laws and regulations. See the Natural and Cultural Resources Management subseries of the Service Manual for wilderness and wild and scenic river corridors. 

6.15 What is the relationship between objectives and strategies in these plans and those in CCPs and other step-down plans? We evaluate relevant objectives and strategies from CCPs and other step-down plans during the habitat and species planning process and during CCP reviews to determine if updates are needed. If new or revised objectives or strategies are inconsistent with a CCP or other step-down plans, those plans should be revised or amended (see 602 FW 3 and 602 FW 4). 

6.16 What is the relationship between habitat and species plans and Inventory and Monitoring Plans (IMP)? An IMP (701 FW 2) describes, ranks, selects, and justifies the surveys used to resolve information needs for a refuge and should address any important information needs that arise during development and implementation of habitat and species plans. We may use information generated from surveys in an IMP to develop and evaluate the effectiveness of habitat and species plans and update objectives or strategies as needed. 

6.17 When does the Refuge System consider findings of appropriateness and compatibility determinations for proposed refuge uses during habitat and species planning? If a habitat and species plan proposes a new use of a refuge, or expands, renews, or extends an existing use of a refuge, a finding of appropriateness and compatibility determination may be required before finalizing the plan. See 603 FW 1 and 603 FW 2 for findings of appropriateness and compatibility determination requirements and procedures. 

6.18 How does the Refuge System comply with the National Environmental Policy Act (NEPA) in development of these plans? 

A. NEPA requires that we examine the environmental impact of proposed actions, incorporate environmental information, and use public participation, as appropriate, in the planning and implementation of Federal actions. We require NEPA compliance whenever we propose to take a new action or change an action. During the process of complying with NEPA, we also adhere to other compliance requirements, including Section 7 Section 7
Section 7 Consultation The Endangered Species Act (ESA) directs all Federal agencies to work to conserve endangered and threatened species and to use their authorities to further the purposes of the Act. Section 7 of the Act, called "Interagency Cooperation," is the mechanism by which Federal agencies ensure the actions they take, including those they fund or authorize, do not jeopardize the existence of any listed species.

Learn more about Section 7 of the Endangered Species Act to consult on any Federal actions that may affect a listed species or designated critical habitat.

B. Proposed strategies for habitat and species planning may include alternative management pathways that consider multiple plausible future conditions. We must evaluate these proposed strategies in compliance with NEPA before we implement them on a refuge.  

6.19 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 habitat and species planning? 

A. The Service is committed to being open, transparent, and collaborative with others during refuge planning (see 602 FW 1 and 601 FW 7). 

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. 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. Planning records 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, Sec. 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, Sec. 5b).

D. Refuge staff must release habitat and species 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.

IMPLEMENTING, REVIEWING, AND CHANGING HABITAT AND SPECIES PLANS

6.20 Why is work planning important for implementing habitat and species plans? Work planning identifies the who, what, where, when, and how of implementing strategies (e.g., specific projects, tasks, or activities with timelines). Work planning conducted by a refuge planning unit is essential to ensure that strategies in a plan will be carried out as intended and to determine if they need modification. During work planning, a refuge planning unit reviews past implementation of strategies to evaluate the progress made toward objectives, take note of what has been learned, and adjust activities accordingly. A refuge planning unit may conduct work planning as part of a habitat and species plan or separately on an annual basis, or as needed, after a step-down plan is completed. A planning unit’s work plans may combine topics from several different step-down plans (i.e., they may include content related to the natural environment, special values, and visitor and community engagement).

6.21 How does the Refuge System review, evaluate, learn from, and adjust the implementation of these plans? We conduct a review of each plan at least every 5 years, or more frequently if necessary, to ensure that the objectives and strategies are still appropriate. This review should be sufficient to determine if objectives or strategies need to change in response to changing conditions or new information (see 602 FW 4). During the 5-year review, we evaluate which actions were implemented, the effectiveness of our strategies, and the condition of species, habitats, or ecosystems relative to our objectives. We then adapt our objectives and strategies, if needed, and revise or amend the habitat and species plan accordingly.

6.22 When does the Refuge System make changes to these plans? We use reviews to determine if and when we need to revise, amend, or make administrative changes to habitat and species plans (see 602 FW 4).