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Tuesday,
January 16, 2001
Part III
Department of the
Interior
Fish and Wildlife Service
Draft Policy on National Wildlife Refuge
System: Mission, Goals, and Purposes;
Notice
Draft Appropriate Refuge Uses Policy
Pursuant to the National Wildlife Refuge
System Improvement Act of 1997; Notice
Draft Wildlife-Dependent Recreational
Uses Policy Pursuant to the National
Wildlife Refuge System Improvement Act
of 1997; Notice
Draft Wilderness Stewardship Policy
Pursuant to the Wilderness Act of 1964;
Notice
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3668 Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices
DEPARTMENT OF THE INTERIOR System mission. It states that we shall E. Conserve and restore as appropriate
manage each refuge to fulfill the mission representative ecosystems of the United
Fish and Wildlife Service of the System, as well as the specific States, including the ecological
[1018–AG46] purpose(s) for which that refuge was processes characteristic of those
established. ecosystems; and
Draft Policy on National Wildlife The NWRSIA–1997 also provides a F. To foster understanding and instill
Refuge System: Mission, Goals, and clear hierarchy of activities: wildlife appreciation of native fish, wildlife, and
Purposes conservation, wildlife-dependent plants, and their conservation, by
recreational uses, and other uses. This providing the public with safe, high-
AGENCY: Fish and Wildlife Service, chapter reinforces this hierarchy and quality, and compatible wildlife-
Interior. allows us to articulate our goals for the dependent public use. Such use
ACTION: Notice. System, given the direction this new includes hunting, fishing, wildlife
legislation provides. We will observation and photography, and
SUMMARY: We propose to adopt a policy
incorporate this chapter in the Service environmental education and
articulating the mission of the National interpretation.
Manual as 601 FW 1, replacing 2 RM 1
Wildlife Refuge System (System), Section 1.7 describes each of these
‘‘Objectives of the National Wildlife
establishing its goals, and providing goals in more detail and justification for
Refuge System,’’ which has been in
guidance for identifying or determining why each goal is appropriate for the
effect since 1982. The complete text of
the purpose(s) of individual refuge units System.
the policy concludes this document, but
within the System. We propose that this Section 1.8 explains the relationship
the following is a overview of the
policy be incorporated into the Fish and the identified goals have to our
chapter.
Wildlife Service Manual. The chapter management priorities. It reiterates the
will be consistent with the principles Overview of the Draft National Wildlife priorities established in the NWRSIA–
contained within the National Wildlife Refuge System: Mission, Goals, and 1997 to be: (1) Wildlife, (2) wildlife-
Refuge System Administration Act of Purposes Policy dependent uses, and (3) other uses.
1966 (NWRSAA–1966), as amended by Section 1.9 discusses how we will use
Section 1.1 presents the purpose of
the National Wildlife Refuge System these System goals to provide the
the chapter.
Improvement Act of 1997 (NWRSIA– philosophical foundation of the System;
Section 1.2 explains that this chapter
1997), including recognizing the priority to consider when developing wildlife
applies to national wildlife refuges,
for management activities set forth in population and habitat goals and
waterfowl production areas, and
the NWRSIA–1997 (wildlife, wildlife- objectives; to guide the land acquisition
coordination areas, which are all units
dependent uses, and other uses) in decision-making process; and in making
of the System. It does not apply to
setting and achieving refuge goals and determinations regarding appropriate
administrative sites or national fish
objectives. uses and compatibility.
The draft chapter also provides policy hatcheries.
Section 1.3 describes how the System Section 1.10 describes what a ‘‘unit
on how the purpose(s) of refuge purpose’’ is, quoting from the NWRSIA–
additions relate to the original refuge mission and goals, and individual unit
purposes relate to each other. It 1997.
purpose(s), and how wilderness Section 1.11 discusses the importance
designated under the Wilderness Act reiterates the NWRSIA–1997 language
that clearly provides for a unit’s of unit purposes.
can affect a refuge’s purpose(s). It also Section 1.12 gives examples of unit
provides a decision-tree for how to purpose(s) to receive priority over the
purposes, and explains that some may
determine refuge purpose(s) from System mission, should there be a
be quite broadly written, while others
existing documentation. conflict between the two.
may have a more narrow focus.
Section 1.4 describes the mission of Section 1.13 gives the references
DATES: Comments must be received by
the System. where unit purposes can be found for
March 19, 2001.
Section 1.5 describes how the System each unit in the System.
ADDRESSES: Send comments concerning mission relates to the Service mission.
this draft policy via mail, fax, or email Section 1.14 discusses how to
The network of lands and waters within determine which purpose(s) take
to: Barry Stieglitz, Acting Chief, the System clearly supports the Service
Division of Conservation Planning and priority over others, if a particular unit
mission of ‘‘* * * working with others, has multiple purposes associated with
Policy, National Wildlife Refuge to conserve, protect, and enhance fish,
System, U.S. Fish and Wildlife Service, it.
wildlife, and plants and their habitats Section 1.15 discusses the
4401 N. Fairfax Drive, Room 670, for the continuing benefit of the
Arlington, Virginia, 22203; fax (703) relationship of purposes for additions to
American people.’’ existing units affect the original
358–2248; email Mission_And_Goals_ Section 1.6 lists the goals of the
Policy_Comments@fws.gov. purpose(s) of the established unit(s),
System. These are: and vice versa.
FOR FURTHER INFORMATION CONTACT: A. To fulfill our statutory duty to Section 1.16 discusses how
Barry Stieglitz, National Wildlife Refuge achieve refuge purpose(s) and further wilderness areas designated under the
System, U.S. Fish and Wildlife Service, the System mission; Wilderness Act (16 U.S.C. 1131–1136)
Telephone (703) 358–1744. B. Conserve, restore where affect a unit’s purpose(s).
SUPPLEMENTARY INFORMATION: The appropriate, and enhance all species of Section 1.17 provides a process for
NWRSIA–1997 (Pub. L. 105–57) amends fish, wildlife, and plants that are determining the purpose(s) of units of
and builds upon the NWRSAA–1966 (16 endangered or threatened with the System. It is a decision-tree that
U.S.C. 668dd–668ee), providing an becoming endangered; guides you through establishment/
‘‘Organic Act’’ for the System. It clearly C. Perpetuate migratory bird, authorization methods and what other
establishes that wildlife conservation is interjurisdictional fish, and marine references you may need when purposes
the singular mission of the System and mammal populations; have not been clearly articulated in
affirms the importance of refuge D. Conserve a diversity of fish, establishment/authorization documents.
purposes as they relate to the broader wildlife, and plants; It also specifies that the Director of the
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Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices 3669
Service must approve purposes in cases frindex.html during the 60-day occurring on national wildlife refuges.
where establishing/authorizing comment period. There will not be a change in the total
documents do not articulate the benefits of permitted public uses
Required Determinations
purpose(s). activities on national wildlife refuges.
Regulatory Planning and Review b. This document will not create a
Comment Solicitation serious inconsistency or otherwise
If you wish to comment, you may In accordance with the criteria in
interfere with an action taken or
submit your comments by any one of Executive Order 12866, this document
planned by another agency since the
several methods. You may mail is not a significant regulatory action.
document pertains solely to
comments to: Barry Stieglitz, National The Office of Management and Budget
management of national wildlife refuges
Wildlife Refuge System, U.S. Fish and (OMB) makes the final determination
by the Service.
Wildlife Service, 4401 North Fairfax under Executive Order 12866. c. This document does not alter the
Drive—MS670, Arlington, VA 22203. a. This document will not have an budgetary effects or entitlements, grants,
You may comment via the Internet to: annual economic effect of $100 million user fees, or loan programs or the rights
Mission_And_Goals _Policy_ or adversely affect an economic sector, or obligations of their recipients. There
Comments@fws.gov. Please submit productivity, jobs, the environment, or are no grants or other Federal assistance
Internet comments as an ASCII file, other units of government. A cost- programs associated with public use of
avoiding the use of special characters benefit or full economic analysis is not national wildlife refuges.
and any form of encryption. If you do required. This document is d. This document does not raise novel
not receive a confirmation from the administrative and procedural in nature. legal or policy issues; however, it does
system that we have received your This draft National Wildlife Refuge provide a hierarchy of activities
Internet message, contact us directly at System policy provides for a hierarchy pursuant to the NWRSIA–1997
(703) 358–1744. You may also fax of activities and establishes the process provisions that ensure that wildlife
comments to: Barry Stieglitz, National for articulating the goals for the System. conservation, wildlife-dependent
Wildlife Refuge System, (703) 358–2248. This policy will have the effect of recreational uses and other uses are the
Finally, you may hand-deliver providing priority consideration for priority public uses of the System.
comments to the address mentioned wildlife conservation and wildlife-
above. dependent recreational uses involving Regulatory Flexibility Act
Our practice is to make comments, hunting, fishing, wildlife observation We certify that this document will not
including names and home addresses of and photography, and environmental have a significant economic effect on a
respondents, available for public review education and interpretation and other substantial number of small entities
during regular business hours. uses. Existing policy has been in place under the Regulatory Flexibility Act (5
Individual respondents may request that since 1982. The NWRSIA–1997 does not U.S.C. 601 et seq.).
we withhold their home address from change this direction in public use, but Congress created the National
the record, which we will honor to the provides legal recognition for the Wildlife Refuge System to conserve fish,
extent allowable by law. There also may mission, goals, and purposes of the wildlife, and plants and their habitats
be circumstances in which we would System. We expect this articulated and facilitated this conservation mission
withhold from the record a respondent’s policy will not cause a measurable by providing Americans opportunities
identity, as allowable by law. If you economic effect to existing national to visit and participate in compatible
wish us to withhold your name and/or wildlife refuge public use programs. wildlife-dependent recreation (hunting,
address, you must state this The appropriate measure of the fishing, wildlife observation and
prominently at the beginning of your economic effect of changes in photography, and environmental
comment. However, we will not recreational use is the change in the education and interpretation) as priority
consider anonymous comments. We welfare of recreationists. We measure general public uses on national wildlife
will make all submissions from this in terms of willingness to pay for refuges and to better appreciate the
organizations or businesses and from the recreational opportunity. We value of, and need for, wildlife
individuals identifying themselves as estimated total annual willingness to conservation.
representative or officials of pay for all recreation at national wildlife This document is administrative and
organizations or businesses, available refuges to be $372.5 million in Fiscal procedural in nature and provides for a
for public inspection in their entirety. Year 1995 (Banking on Nature: The hierarchy of activities on refuges:
We seek public comments on this Economic Benefits to Local wildlife conservation, wildlife-
draft policy and will take into Communities of National Wildlife dependent recreation and other uses.
consideration comments and any Refuge Visitation, DOI/FWS/Refuges Since uses of a national wildlife refuge
additional information received during 1997). We expect the policy are determined with the establishment
the 60-day comment period. implemented in this document will not of the refuge, which includes public
We published a notice in the Federal affect public uses of the Refuge System. hearings, this policy will not affect
Register on January 23, 1998 (63 FR This does not mean that every refuge public uses of refuges, and
3583) notifying the public that we will have the same public uses. Public consequently, not affect any business
would be revising the Service Manual, uses of a refuge are determined when a establishments in the vicinity of any
establishing regulations as they relate to refuge is established and after public refuge.
the NWRSIA–1997, and offering to send hearings are held. Only compatible uses National wildlife refuge visitation is a
copies of specific draft Service Manual with the purpose of the refuge are small component of the wildlife
chapters to anyone who would like to proposed for public review and recreation industry as a whole. In 1996,
receive them. We will mail a copy of comment. This policy will provide for a 77 million U.S. residents over 15 years
this draft Service Manual chapter to unit’s purposes to receive priority over old spent 1.2 billion activity-days in
those who requested one. In addition, System mission should there be a wildlife-associated recreation activities.
this draft Service Manual chapter will conflict between the two. They spent about $30 billion on fishing,
be available on the Internet at http:// This document will not make changes hunting, and wildlife watching trips
www.fws.gov/directives/library/ in the amounts of public activities (Tables 49, 54, 59, 63, 1996 National
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3670 Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices
Survey of Fishing, Hunting, and b. This document will not produce a variety of issues concerning our
Wildlife-Associated Recreation, DOI/ Federal mandate of $100 million or administration of national wildlife
FWS/FA, 1997). National wildlife greater in any year, i.e., it is not a refuge uses. In accordance with 516 DM
refuges recorded about 29 million ‘‘significant regulatory action’’ under 2, Appendix 1.10, we have determined
visitor-days that year (RMIS, FY1996 the Unfunded Mandates Reform Act. that this document is categorically
Public Use Summary). A study of 1995 See response to Regulatory Flexibility excluded from the NEPA process
national wildlife refuge visitors found Act. because it is limited to policies,
their travel spending generated $401 directives, regulations and guidelines of
Takings
million in sales and 10,000 jobs for local an administrative, financial, legal,
economies (Banking on Nature: The In accordance with Executive Order technical or procedural nature; or the
Economic Benefits to Local 12630, the document does not have environmental effects of which are too
Communities of National Wildlife significant takings implications. A broad, speculative or conjectural to lend
Refuge Visitation, DOI/FWS/Refuges, takings implication assessment is not themselves to meaningful analysis. Site-
1997). These spending figures include required. These regulations may result specific proposals, as indicated above,
spending which would have occurred in in increased visitation at refuges and will be subject to the NEPA process.
the community anyway, and so they provide for minor changes to the
methods of public use permitted within Government-to-Government
show the importance of the activity in
the National Wildlife Refuge System. Relationship With Tribes
the local economy rather than its
incremental impact. Marginally greater Refer to response under Regulatory In accordance with the President’s
recreational opportunities on national Flexibility Act. memorandum of April 29, 1994,
wildlife refuges will have little industry- ‘‘Government-to-Government Relations
Federalism
wide effect. with Native American Tribal
There are no expected changes in In accordance with Executive Order Governments’’ (59 FR 22951) and 512
expenditures as a result of this 13132, the document does not have DM 2, we have evaluated possible
document. We expect there will not be significant federalism effects. This effects on federally recognized Indian
a change in recreational opportunities document will not have substantial tribes and have determined that there
so we do not expect the document to direct effects on the States, in their are no effects. In Alaska, this regulation
have a significant economic effect on a relationship between the Federal would not apply to the development
substantial number of small entities in Government and the States, or on the and use of Alaska Native Claims
any region or nationally. distribution of power and Settlement Act (ANCSA), 22(g) village
responsibilities among the various lands in Alaska national wildlife
Small Business Regulatory Enforcement levels of government. Therefore, in refuges.
Fairness Act accordance with Executive Order 13132,
we have determined that this document Primary Author
This document is not a major rule
under 5 U.S.C. 804(2), the Small does not have sufficient federalism Brad Knudsen, Refuge Program
Business Regulatory Enforcement implications to warrant the preparation Specialist, National Wildlife Refuge
Fairness Act. This document: of a Federalism Assessment. System, U.S. Fish and Wildlife Service,
is the primary author of this notice.
a. Does not have an annual effect on Civil Justice Reform
the economy of $100 million or more. Refuge Management—Part 601 National
In accordance with Executive Order Wildlife Refuge System
These regulations will affect only 12988, the Office of the Solicitor has
visitors at national wildlife refuges. determined that the document does not Chapter 1 National Wildlife Refuge System
They may result in increased visitation unduly burden the judicial system and Mission and Goals and Purposes 601 FW 1
at refuges and provide for minor meets the requirements of sections 3(a) 1.1 What is the purpose of this
changes to the methods of public use and 3(b)(2) of the Order. The regulation chapter? This chapter reiterates the
permitted within the National Wildlife will expand upon established mission of the National Wildlife Refuge
Refuge System. Refer to response under regulations, and result in better System, how it relates to the mission of
Regulatory Flexibility Act. understanding of the regulations by the Fish and Wildlife Service, and
b. Will not cause a major increase in refuge visitors. explains the relationship of the System
costs or prices for consumers, mission and goals, and the purpose(s) of
individual industries, Federal, State, or Paperwork Reduction Act each unit of the System. This chapter
local government agencies, or This document does not require an provides goals for the System and
geographic regions. See response above. information collection from ten or more guidance for identifying or determining
c. Does not have significant adverse parties and a submission under the the purpose(s) of each unit within the
effects on competition, employment, Paperwork Reduction Act of 1995 is not System. This chapter also provides
investment, productivity, innovation, or required. guidance on the use of goals and
the ability of U.S.-based enterprises to purposes in the administration and
compete with foreign-based enterprises. National Environmental Policy Act management of the System.
See response above. We ensure compliance with the 1.2 What is the scope of this
National Environmental Policy Act of chapter? This chapter applies to all
Unfunded Mandates Reform Act
1969 (NEPA) (42 U.S.C. 4332(C)) when units of the System. For purposes of this
In accordance with the Unfunded developing national wildlife refuge chapter, a unit of the System is defined
Mandates Reform Act (2 U.S.C. 1501, et Comprehensive Conservation Plans and as all lands, waters, and interests
seq.): public use management plans, and we therein administered by the U.S. Fish
a. This document will not make determinations required by NEPA and Wildlife Service as wildlife refuges,
‘‘significantly or uniquely’’ affect small before the addition of national wildlife wildlife ranges, wildlife management
governments. A Small Government refuges to the lists of areas open to areas, waterfowl production areas,
Agency Plan is not required. See public uses. The revisions to regulations coordination areas and other areas for
response to Regulatory Flexibility Act. as proposed in this document resolve a the protection and conservation of fish
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Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices 3671
and wildlife including those threatened fish, wildlife, and plants that are contribute to such efforts as the North
with extinction as determined in writing endangered or threatened with American Bird Conservation Initiative,
by the Director or so directed by becoming endangered. and continue to recognize the System’s
Presidential or Secretarial order. C. Perpetuate migratory bird, role in the perpetuation of the
1.3 How do the System mission, interjurisdictional fish, and marine continent’s waterfowl resource: more
goals, and unit purpose(s) relate to each mammal populations. than 200 refuges and thousands of
other? Collectively, the System mission, D. Conserve a diversity of fish, waterfowl production areas have been
goals, and unit purpose(s) define the wildlife, and plants. established for purpose of waterfowl or
duty of the U.S. Fish and Wildlife E. Conserve and restore where migratory bird conservation. We
Service in the administration and appropriate representative ecosystems emphasize the conservation and
management of any unit of the System. of the United States, including the management of those marine mammals
Ideally, the System mission, goals, and ecological processes characteristic of for which the Service has been given
unit purpose(s) are viewed as symbiotic those ecosystems. primary management authority,
in nature; however, priority is given to F. To foster understanding and instill including polar bears, walruses, sea
achieving a unit’s purpose(s) when appreciation of native fish, wildlife, and otters, manatees, and dugongs, as well
conflicts with the System mission or a plants, and their conservation, by as the conservation of any marine
specific goal are identified. Unit providing the public with safe, high- mammal using System lands or waters.
purposes form the foundation for quality, and compatible wildlife- We emphasize the conservation and
developing goals and objectives for dependent public use. Such use management of those fish populations
units during Comprehensive includes hunting, fishing, wildlife using System waters and whose life-
Conservation Plan preparation, and observation and photography, and cycle movements cross international,
provide the basis for determining the environmental education and State, or Tribal boundaries. Examples
appropriateness and compatibility of interpretation. include anadromous species of salmon
existing and proposed uses on units. 1.7 What do these goals mean? Goal and free-roaming species endemic to
1.4 What is the mission of the A. The U.S. Fish and Wildlife Service is large river systems, such as paddlefish
National Wildlife Refuge System? The entrusted with the stewardship of and sturgeon.
National Wildlife Refuge System America’s National Wildlife Refuge Goal D. We sustain all native species
Administration Act of 1966 (NWRSAA– System. Our first obligation in meeting of animals and plants that inhabit units
1966), as amended by the National that trust is the non-discretionary duty of the System through our efforts to
Wildlife Refuge System Improvement to fulfill refuge purpose(s). We may not maintain the biological diversity,
Act of 1997 (NWRSIA–1997), states the discard that obligation in pursuit of biological integrity, and environmental
following: ‘‘The mission of the National other objectives. We may, in order to health of each unit. This does not
Wildlife Refuge System is to administer fulfill the broader System mission, and preclude the consumptive use of some
a national network of lands and waters the further goals enumerated below, species when compatible with a unit’s
for the conservation, management, and manage a refuge to achieve additional purpose(s) and the System mission, or
where appropriate, restoration of the wildlife conservation purposes and the population management of some
fish, wildlife, and plant resources and needs, unforseen, unknown, or resulting species to help achieve a unit’s
their habitats within the United States from circumstances unanticipated at the purpose(s). Some units were established
for the benefit of present and future time of refuge establishment. These primarily to protect populations of
generations of Americans.’’ additional efforts will be additive to the certain animal species that have a
1.5 How does the mission of the achievement of refuge purpose(s), which unique historic and cultural legacy in
System relate to the mission of the is our first and highest obligation. North America. We continue to
Service? The mission of the Service set Goal B. Threatened and endangered emphasize the conservation of those
forth in National Policy Issuance 99–01 species are those listed as such by the native species tied directly to the
is: ‘‘Our mission is working with others, Service or the National Marine Fisheries establishment purpose(s) of units.
to conserve, protect and enhance fish, Service. As we manage to achieve unit Goal E. Through our management and
wildlife, and plants and their habitats purposes, we are mindful of our acquisition efforts, we assist states,
for the continuing benefit of the obligations under section 2(c)(1) of the Tribes, other agencies and conservation
American people.’’ To accomplish this Endangered Species Act and we strive groups in preserving those ecosystems,
mission, there is a clear need for a to be a model for other Federal land plant communities, wetlands of national
network of lands and waters management agencies in fulfilling that or international significance, and/or
representing the diversity of landscapes obligation. We protect and manage landscapes that are unique, rare,
and ecosystems of the United States candidate and proposed species to declining, or under-represented in
dedicated to the conservation of fish, enhance their status and help preclude existing conservation lands. We use
wildlife, and plants. While the mission the need for listing. Per Service policy existing and emerging classification
of the System and purposes of [see Section 1.2(C) of the Service’s systems that identify such ecosystems
individual units are paramount, it is ‘‘Section 7 Consultation Handbook’’, and/or resources to guide our
recognized that the System contributes March 1998], we will consult or confer preservation, restoration, and
a vital component to the Service with Service Ecological Services staff on acquisition efforts. We care for our
mission. any actions authorized, funded, or special designation lands such as
1.6 What are the goals of the carried out on System units that may wilderness, natural areas, wild and
System? The administration, affect listed, proposed, or candidate scenic rivers, national monuments, and
management, and growth of the System species or designated or proposed national natural landmarks, and, where
are guided by the following goals: critical habitat. appropriate, expand these designations
A. To fulfill our statutory duty to Goal C. We strive to meet the needs on existing and new units. We strive to
achieve refuge purpose(s) and further of all migratory birds in our habitat establish and maintain a network of
the System mission. strategies, especially those species biological reserves to ensure
B. Conserve, restore where which are rare, declining, or tied preservation and genetic exchange of
appropriate, and enhance all species of directly to a unit’s purpose(s). We our Nation’s diverse natural heritage in
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3672 Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices
partnership with other Federal land on System administration and any unit. Where a refuge has multiple
management agencies, States, management. purposes related to fish, wildlife and
conservation organizations, and 1.10 What is meant by the term plant conservation, the more specific
members of the public participating on ‘‘unit purpose?’’ Unit purpose refers to purpose will take precedent in instances
a voluntary basis. the justification for the establishment of of conflict. Designated wilderness
Goal F. We recognize that a higher a unit of the System as a place owned assumes the purposes of the Wilderness
awareness of, and appreciation for, the by the American people and cared for Act of 1964 in addition and equal to
value of fish and wildlife conservation on their behalf. The NWRSAA–1966, as other unit purposes, unless otherwise
is gained in part by providing amended, defines ‘‘purposes of the specified in the wilderness designation.
opportunities for people to engage in refuge’’ as the ‘‘purposes specified in or 1.15 How does the purpose(s)
compatible wildlife-dependent derived from the law, proclamation, associated with acquiring new lands for
recreation. This higher awareness and executive order, agreement, public land existing units relate to the original
appreciation ultimately contributes to order, donation document, or purpose(s) of the existing units? When
the mission of the System. Thus, we administrative memorandum an addition to a unit is acquired under
facilitate opportunities for hunting, establishing, authorizing, or expanding an authority different from the authority
fishing, wildlife observation and a refuge, refuge unit, or refuge subunit.’’ used to establish the original unit, the
photography, and environmental 1.11 Why are unit purposes addition also takes on the purpose(s) of
education and interpretation that are important? Purposes define the essential the original unit, but the original unit
compatible with a unit’s purpose(s) and objective of our refuge stewardship. does not take on the purpose(s) of the
the System mission. Our interpretive They constitute a non-discretionary addition.
and education programs also include obligation as the legislative, legal, and 1.16 How does the Wilderness Act
historic and cultural resources found on administrative foundations for the affect a unit’s purpose? The purposes of
units. We actively seek partnerships for administration and management of a the Wilderness Act become additional
our public use programs when a lack of unit of the System. This includes and equal purposes of units with
planning, setting unit goals and designated wilderness, but apply only to
funds or staff limit implementation.
objectives, and authorization of public those areas so designated. The purposes
1.8 How do these goals relate to
uses, which must be shown to be of the Wilderness Act include both the
management priorities? The NWRSAA– appropriate and compatible with the
1966, as amended, sets forth the preservation of wilderness condition
purpose(s) of a unit and the System and character, and the use and
following priority for management mission before they are allowed.
activities: (1) Wildlife, (2) wildlife- enjoyment of wilderness.
1.12 What are some examples of
dependent recreational uses, and (3) 1.17 What is the process for
purposes? Units acquired under the
other uses. Thus, goals dealing with determining purposes of units? The
authority of general conservation laws
fish, wildlife, and plants, and the purpose(s) of existing units may be
take on the purpose of the law.
habitat or ecosystems on which they found as described in section 1.13. We
Examples of such laws include the
depend, take priority over wildlife- Endangered Species Act of 1973, the will use the decision process outlined in
dependent uses or any other uses of Migratory Bird Conservation Act, the Exhibit 1 to determine the purpose(s) of
System lands. Wildlife-dependent Fish and Wildlife Act of 1956, the a unit. This process can be applied to all
recreational uses in turn take priority Emergency Wetlands Resources Act, System acquisitions, including excess
over those uses which are not wildlife- and the Alaska National Interest Lands military lands, land exchanges, or
dependent. Each unit contributes to one Conservation Act. Executive Orders and condemnations by focusing on the
or more of the goals of the System, refuge-specific legislation generally acquisition authority for the particular
depending on the purpose(s) of the unit, declare the purpose(s) of the unit, property. This process takes into
a unit’s geographic and ecological sometimes broadly (‘‘as a preserve and account those rare cases where
setting, and the unique characteristics, breeding ground for native birds’’), and acquisition authority provides a vague
potential, or limitations of each unit. sometimes very specifically (‘‘to protect purpose. This process should be used
1.9 How will we use these goals of and preserve in the national interest the for each parcel or group of parcels
the System? These goals help step down Key deer and other wildlife resources in included under different acquisition
the System mission and statements on the Florida Keys.’’). authorities, until the purpose for each
System management as written in the 1.13 Where can the purpose(s) of authority has been determined.
NWRSAA–1997, as amended. each unit of the System be found? The Exhibit 1—Decision Process for
Collectively, these goals articulate the publication ‘‘Purposes for Refuges of the Determining Unit Purposes
foundation for our stewardship of the National Wildlife Refuge System’’
System and define the unique niche it contains the official purpose(s) for each Step I. Was the unit established by an
occupies among the various Federal Executive Order, public land order, or
unit. This publication is updated Secretarial Order?
land systems. We consider these goals annually to include new additions to A. Yes.
in developing wildlife population and the System, and can be found by using 1. The document specifies the purpose(s)
habitat goals and objectives at the the ‘‘Search—databases’’ on the System for the unit—DONE.
System, regional, ecosystem, and unit web server at http://refuges.fws.gov. 2. The document does not specify a
level; in providing a frame of reference 1.14 If a unit has multiple purposes, purpose:
for Comprehensive Conservation Plans; do some purposes take priority over What is the historical record of
to guide the land acquisition decision- others? Unless otherwise indicated in management, management plans, and the
making process; to assist managers in the establishing law, order, or other biological history of the area? Articulate the
applying sound professional judgment document, purposes dealing with the purpose(s) for Director’s approval—DONE.
3. If any lands/waters at this unit were not
to their decisions while carrying out the conservation, management, and included under any additional authorities—
purpose(s) of their units and in restoration of fish, wildlife, and plants, DONE.
determining whether proposed uses are and the habitats on which they depend, 4. If any lands/waters at this unit were
appropriate and compatible; and as a take precedent over other purposes in included under additional authorities, go to
guide when developing other policies the management and administration of Step II.
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Federal Register / Vol. 66, No. 10 / Tuesday, January 16, 2001 / Notices 3673
B. No. Go to Step II. Dated: December 18, 2000. System, U.S. Fish and Wildlife Service,
Step II. Was the unit established or Jamie Rappaport Clark, Telephone (703) 358–1744.
authorized by unit-specific legislation? Director, Fish and Wildlife Service. SUPPLEMENTARY INFORMATION: The
A. Yes.
[FR Doc. 01–20 Filed 1–12–01; 8:45 am] NWRSIA–1997 amends and builds upon
1. The legislation states the purpose(s) of
BILLING CODE 4310–55–U
the NWRSAA–1966 providing an
the unit—DONE.
‘‘Organic Act’’ for the System. The
2. The legislation does not specify a
purpose:
NWRSIA–1997 clearly establishes that
Further research is required including DEPARTMENT OF THE INTERIOR wildlife conservation is the singular
legislative history, agency testimony in the System mission, provides guidance to
Congressional Record, or documents Fish and Wildlife Service the Secretary of the Interior (Secretary)
approved by the Director, or lacking these, for management of the System, provides
the biological history of the area, resource [1018–AG18] a mechanism for refuge planning, and
inventories, or other resource-based gives refuge managers uniform direction
Draft Appropriate Refuge Uses Policy and procedures for making decisions
documentation. Articulate the purpose(s) for
Director’s approval—DONE.
Pursuant to the National Wildlife regarding wildlife conservation and uses
3. If any lands/waters at this unit were not Refuge System Improvement Act of of the System.
included under any additional authorities— 1997 The NWRSIA–1997 identifies six
DONE. AGENCY: Fish and Wildlife Service, wildlife-dependent recreational uses
4. If any lands/waters at this unit were Interior. (hunting, fishing, wildlife observation
included under additional authorities, go to and photography, and environmental
ACTION: Notice.
Step III. education and interpretation) as the
B. No. Go to Step III. SUMMARY: We propose to establish, in priority general public uses of the
Step III. Was the unit established or System. The NWRSIA–1997 also
policy, a procedure for determining
acquired by the authority of one or more of provides a set of affirmative stewardship
when uses other than the six priority
the following 14 laws that grant the Service responsibilities regarding our
wildlife-dependent recreational uses are
acquisition authority? administration of the System. These
appropriate or not appropriate on a unit
1. An Act Authorizing the Transfer of Certain of the National Wildlife Refuge System stewardship responsibilities direct us to
Real Property ensure that these six wildlife-dependent
(System). The National Wildlife Refuge
2. Bankhead-Jones Farm Tenant Act recreational uses are provided enhanced
System Improvement Act of 1997
3. Consolidated Farm and Rural Development consideration and priority over other
(NWRSIA–1997), that amends the
Act general public uses.
4. Colorado River Storage Act
National Wildlife Refuge System
Administration Act of 1966 (NWRSAA– The Refuge Recreation Act of 1962
5. Emergency Wetlands Resources Act of
1966), defines and establishes that (RRA–1962) also authorizes us to
1986
wildlife-dependent recreational uses regulate or curtail public recreational
6. Endangered Species Act of 1973
(hunting, fishing, wildlife observation uses in order to insure accomplishment
7. Fish and Wildlife Act of 1956
8. Fish and Wildlife Coordination Act and photography, and environmental of our primary conservation objectives.
9. Lea Act education and interpretation) are the The RRA–1962 also directs us to
10. Migratory Bird Conservation Act priority general public uses of the administer the System for public
11. Migratory Bird Hunting and Conservation System and, if found compatible, will recreation when the use is an
Stamp Act receive enhanced and priority ‘‘appropriate incidental or secondary
12. North American Wetlands Conservation consideration in refuge planning and use.’’
Act management over other general public The determination of appropriateness
13. National Wildlife Refuge System uses. This draft policy describes how we is the first step in deciding whether we
Administration Act of 1966 will provide priority to these uses, and will permit a proposed or existing use
14. Refuge Recreation Act establishes a process for deciding when on a refuge. After we decide a use is
A. Yes. it is appropriate to allow other, non- appropriate, we then must determine
1. The purpose for acquisition is stated in priority uses to occur on national that it would be compatible before
the law and becomes the purpose of the wildlife refuges. We propose to allowing. The six wildlife-dependent
unit—DONE. incorporate this policy as Part 603 recreational uses are the priority public
2. If any lands/waters at this unit were not Chapter 1 of the Fish and Wildlife uses of the System and, when
included under any additional authorities— Service Manual. compatible, have been determined to be
DONE. appropriate by law. Uses which are
DATES: Comments must be received by
3. If any lands/waters at this unit were necessary for the safe, practical, and
included under additional authorities, go to March 19, 2001.
effective conduct of a priority public use
Step IV. ADDRESSES: You may submit comments
are also appropriate. We will evaluate
B. No. Go to Step IV. on this draft appropriate refuge uses all other uses under a screening process
Step IV. Was the unit donated to the policy by mail, fax or e:mail: by mail to established by this policy to determine
Service? J. Kenneth Edwards, Refuge Program their relationship to the System’s
A. Yes. Specialist, National Wildlife Refuge wildlife conservation mission,
1. Research is required, including System, U.S. Fish and Wildlife Service,
legislation that grants authority for
individual refuge purposes, and the six
4401 North Fairfax Drive, Room 670, priority public uses. This screening
donations, any biological reports on the unit Arlington, Virginia 22203; by fax to
or adjacent area, a review of fish, wildlife, process, the ‘‘appropriate use’’ test
(703) 358–2248; or by e:mail to contained in this policy, is a decision
and plant species of significance using the Appropriate_Uses _Policy_
unit, and any conditions set forth in the process that refuge managers will use to
Comments@fws.gov. quickly and systematically decide
donation letter or memorandum that do not
conflict with the mission of the System. FOR FURTHER INFORMATION CONTACT: J. which uses are not appropriate on a
Articulate the purpose(s) for Director’s Kenneth Edwards, Refuge Program national wildlife refuge. We then more
approval. Specialist, National Wildlife Refuge thoroughly review uses, which we have
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