2 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges Conserving the Future: Wildlife Refuges and the Next Generation Recommendation 17 - Hunting and Fishing Table of Contents

I. Introduction...... 5 II. Background and History...... 7 III. System Mission...... 10 IV. Current Status of Opportunities for Hunting and Fishing on Refuges...... 11 V. Define the Action...... 13 VI. Training ...... 14 VII. Coordination and Cooperative Work with the States ...... 16 VIII. Fish Stocking and Fisheries Management ...... 17 IX. Accessible Facilities ...... 18 X. Welcome and Orient New and Existing Users ...... 19 XI. Outdoor Skills and Mentoring ...... 21 XII. Charting a Course...... 22 XIII. Measure and Reward Success...... 23 XIV. Conclusion...... 24 XV. Case Studies...... 25 XVI. Appendix...... 27 4 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges I. Introduction Recommendation 17: TheService will work closely with In 2011 the U.S. Fish and opportunities currently state fish and Wildlife Service (Service), offered for youth and people working with partners, with disabilities. Based on wildlife agencies developed a vision for the this review, the Service and National Wildlife Refuge states will work cooperatively to conduct a System (System) that was to prepare a strategy for review of its designed for the System to increasing quality hunting deliver conservation into and fishing opportunities on current hunting the future for a changing national wildlife refuges. America. This vision, and fishing complementary to the Service Nine teams were formed to mission, encompassed 24 implement the new vision opportunities, recommendations that Conserving the Future: especially addressed a diverse set of Wildlife Refuges and the Next ideas, including public use; Generation. The Hunting, opportunities planning; strategic growth Fishing, and Outdoor of the System; science and Recreation implementation currently research; working with team was chartered to partners, friends, and lead implementation of offered for youth volunteers; leadership; Recommendations 17 and and people communications; law 18. This document serves enforcement; urban refuges; as the team’s strategy to with disabilities. climate change; and work address Recommendation 17 beyond refuge boundaries. and is specific to hunting and fishing within the System. A Service Mission similar process will develop a strategy for Recommendation The mission of the U.S. 18, which pertains to other, Fish and Wildlife Service non-consumptive recreation is working with others opportunities on national to conserve, protect, and wildlife refuges. enhance fish and wildlife, plants, and their habitats for Recommendation 17 is the continuing benefit of the consistent with established American people. procedures for coordinating and working cooperatively Recommendation 17: The with state fish and wildlife Service will work closely with agency representatives state fish and wildlife agencies on management of units to conduct a review of its of the System (601 FW 7). current hunting and fishing Both the Service and state opportunities, especially fish and wildlife agencies

Introduction 5 have authorities and responsibilities • Training – For our Managers, Visitor for management of fish and wildlife on Services Professionals and State national wildlife refuges. Development Partners; give them the knowledge to and implementation of an effective succeed. (Action Item 1) strategy for increasing quality hunting and fishing opportunities on refuges will • Coordination and Cooperative Work require close coordination and cooperative with the States – Reaffirm and work with the States. The Service is strengthen our relationship with committed to working with the States to states, our partners in conservation. implement this strategy and the agencies (Action Item 2) will work cooperatively with the Sport • Fish Stocking and Fisheries Fishing and Boating Partnership Council Management – Will help maintain and the Wildlife and Hunting Heritage historic uses and allow potential new Conservation Council to implement this uses on refuges. (Action Item 3) strategy for increasing quality hunting and fishing opportunities on refuges. The • Accessible Facilities – Resolve Service will also continue to engage Tribes, deficiencies to understand what we non-governmental organizations and other need to know to fix the problem. partners in the implementation of this (Action Item 4) strategy. • Welcome and Orient New and Existing Users – Make people feel How Will This welcome. (Action Items 5–8) Comprehensive Long-Term • Outdoor Skills and Mentoring –build Strategy it and they will come. (Action Items Achieve Success? 9–10) • Charting a Course – Improve and The Service and the States will work to expand opportunities to define the implement this strategy cooperatively with future. (Action Item 11) the Sport Fishing and Boating Partnership Council and the Wildlife and Hunting • Measure and Reward Success– Define Heritage Conservation Council. Other how we will measure success, and how partners such as Tribes and NGOs are we will reward it. (Action Item 12–13) important partners to work with on this strategy as well. Implementation of this The work on this strategy will be strategy will achieve success of fulfilling the ongoing. The Service and States will vision of Recommendation 17 through the work strategically to continue to adapt following measures: efforts to achieve success intended by Recommendation 17. • Background and History – Who we are and how we got here. • Current Status of Opportunities for Hunting and Fishing on Refuges.

6 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges II. Background and History “Wild beasts and birds are by right not The pursuit of hunting and developing conservation the property fishing in America has a laws and leaders. Concerned rich tradition. In the early sportsmen of that period merely of the years following our declared spawned much of the independence, the young conservation movement that people who are nation had few laws that now exists. governed the exploitation of alive today, but fish and wildlife for food and Theodore Roosevelt is profit. This lack of organized quoted as saying, “Wild the property conservation took a heavy toll beasts and birds are by right of unknown on the nation’s wild resources. not the property merely Market hunters took fish of the people who are alive generations, and wildlife at will while today, but the property of habitat disappeared under unknown generations, whose whose plows and roads, resulting belongings we have no right in devastating reductions in to squander.” As president, belongings we wildlife populations. Some Roosevelt used politics, species, such as the heath hen his power and personality have no right to and the passenger pigeon, to make great strides in were taken to the point of conservation. He said, “The squander.” no return and have been conservation of natural lost to future generations; resources is the fundamental -Theodore Roosevelt others such as bison, wild problem. Unless we solve turkey and trumpeter that problem it will avail us swans came to the brink of little to solve all others.” He extinction, but were saved. wasn’t just a man of words Increasingly, concerned – while president he also sportsmen demanded created the first national change and a few prominent wildlife refuge at Pelican leaders within the sportsmen Island in 1903, as well as 50 community came together other refuges as federal bird to answer the call. People reservations, 150 national like Theodore Roosevelt, forests, 5 national parks, George Bird Grinnell, and 18 national monuments, 4 others, who founded the national game preserves and Boone and Crockett Club 24 reclamation areas. in 1887, led the charge for change. They played a While the tide had turned key role in the formation for conservation in America of early national parks, with the foundation laid by national wildlife refuges Roosevelt and others, much and forest reserves, and in work remained. Important

Background and History 7 laws were passed including the the or fur, self-defense and property protection. Migratory Bird Treaty Act of 1918, the Laws restrict against the casual killing Migratory Bird Hunting and Conservation of wildlife merely for antlers, horns, or Stamp Act of 1934, the Federal Aid in feathers. Wildlife Restoration Act of 1937, and later, the Federal Aid in Sport Fish Restoration 6. INTERNATIONAL RESOURCE – Act of 1950. Collectively, with the work Wildlife and fish migrate freely across of state fish and wildlife agencies, federal boundaries between states, provinces and support in legislation and policies, and countries. Working together, the United the work of countless sportsmen’s groups States and Canada jointly coordinate and nonprofit conservation organizations, wildlife and habitat strategies. The a model was created that successfully Migratory Bird Treaty Act of 1918 funds and guides management of fish and demonstrates this cooperation between wildlife in the United States. This model countries to protect wildlife. The Act is known as the North American Model of made it illegal to capture or kill migratory Wildlife Conservation and is based on seven birds, except as allowed by specific hunting tenets that speak to wildlife as part of the regulations. public trust, science, ethics, fairness and sustainability. 7. SCIENTIFIC MANAGEMENT – Sound science is essential to managing and The North American Model sustaining North America’s wildlife and habitats and is the proper tool to create and of Wildlife Conservation implement all wildlife policy.

1. WILDLIFE IS HELD The success of the North American IN PUBLIC TRUST – Natural Model in the United States is due in resources on public lands are managed by large part to the “American System of government agencies to ensure that current Conservation Funding,” a user pays-public and future generations always have wildlife benefits program. Through this program and wild places to enjoy. hunters and anglers remain the primary funders and supporters of conservation 2. PROHIBITION ON through purchase of licenses, tags and COMMERCE OF WILDLIFE – stamps; through excise taxes on firearms, Commercial hunting and the sale of wildlife ammunition, bows, arrows and fishing is prohibited to ensure sustainability of tackle; taxes on motor boat and small wildlife populations. engine fuel and import duties; and through memberships and donations to many non- 3. DEMOCRATIC RULE OF LAW – governmental organizations that contribute Hunting and fishing laws are created to research, habitat acquisition and other through public process where everyone conservation causes. has the opportunity and responsibility to develop systems of wildlife conservation For example, every Federal Duck Stamp and use. purchased directly supports wetland conservation efforts across the United 4. OPPORTUNITY FOR ALL – Every States. Since the passage of the Migratory citizen has an opportunity, under the law, to Bird Hunting and Conservation Stamp hunt and fish should they choose. Act in 1934, Federal Duck Stamp sales have generated more than $800 million. 5. NON-FRIVOLOUS USE – In North This funding has been used to purchase in America, individuals may legally kill certain fee title, or protect through conservation wild animals under strict guidelines for food easements, more than 6 million acres of

8 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges wetlands and associated to be safe and compatible upland habitat in the with the legal purposes of United States managed as individual refuges and the part of the System. While System mission. These uses “While not all not all Americans hunt or (hunting, fishing, wildlife fish, those who enjoy open observation, photography, Americans spaces, wildlife, and other environmental education and environmental services (e.g., interpretation), which have no hunt or clean water) benefit from the priority over one another, are fish, those who contributions of hunters and to be afforded priority over anglers. all other public uses of the enjoy open System. Hunting can serve as a means spaces,wildlife, of removing members of feral, A House Report that and other invasive and harmful wildlife accompanied the National populations and reducing Wildlife Refuge System environmental overpopulations of native Improvement Act of 1997 wildlife. For example, in 2013 addressed the Congressional services (e.g., bow hunters harvested 129 intent behind designating six deer and 26 feral hogs in three priority public uses: “Because clean water) days of hunting at Blackbeard priority uses like hunting, benefit from Island National Wildlife fishing, wildlife observation Refuge, marking 67 years of and environmental education the successful management on are dependent upon healthy approximately 4,500 acres of wildlife populations, they contributions this island refuge off Georgia. are directly related to the mission of the System and the of hunters and Congress weighed in purposes of many refuges. If anglers.” on hunting and fishing, our refuges and the Refuge specifically for the System, System are managed well, with the passage of National then these priority uses will, Wildlife Refuge System in turn, prosper in the future. Improvement Act of 1997 Further, it is the policy (amending the National of the United States that Wildlife Refuge System where a proposed wildlife- Administration Act of dependent use is determined 1966). State fish and wildlife compatible on an individual agencies were instrumental refuge, the activity should be in the deliberations leading facilitated.” The compatibility to the passage of these Acts. requirement includes a Addressing the Secretary of consistency review with the the Interior for management System mission (established of the System, Congress by the Refuge Improvement recognized the history and Act) and the individual value of the use of wildlife purposes of each refuge. to the American people and designated six wildlife- dependent recreational uses as priority public uses of the System – to be permitted when found

Background and History 9 III. System Mission “...more than 99 percent of the System National Wildlife Refuge be open to most public uses, System Mission: To administer including priority public uses. lands in a national network of lands and Additionally, some areas are waters for the conservation, unsuitable for hunting and Alaska (nearly management, and where fishing programs. For example, appropriate, restoration of there are approximately 150 80 million the fish, wildlife, and plant million acres within the System, resources and their habitats and about one-third of that is acres) are open within the United States for the ocean and ocean floor, which benefit of present and future offer few practical public use generation of Americans. opportunities. On the other to hunting and hand, more than 99 percent Not all refuges are open to of the System lands in Alaska fishing and hunting or fishing because of (nearly 80 million acres) are compatibility or safety issues. open to hunting and fishing other priority For example, a very small and other priority public use refuge established specifically opportunities. public use as a sanctuary for endangered species would be unlikely to opportunities.”

10 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges IV. Current Status of Hunting and Fishing on Refuges

There are currently 562 refuges opportunity offered. For and 38 wetland management example, while the number districts in the System. Since of refuges newly opened to the passage of the Refuge hunting or fishing was minimal Improvement Act, the Service in 2012-13, 16 refuges increased has increased the number of opportunity for hunting and/ refuges open to hunting from or fishing via rulemaking. 271 to 329, and the number (Example: A refuge already open to fishing from 217 to 271. open to deer hunting might All 38 wetland management have offered a new upland game districts are open to hunting and hunting program or youth fishing. The summary, depicted waterfowl hunting opportunity National Wildlife Refuge below, is illustrative, but can in 2012-13). Hunting and Fishing Trends – be misleading in terms of total 1997-98 through 2012-13

Current Status of Hunting and Fishing on Refuges 11 Consistent with to the supplemental data call Recommendation 17 to evaluate was 96 percent. Methods to current hunting and fishing improve data collection and opportunities within the accuracy will be considered in System, the Hunting, Fishing, subsequent years. Action Item and Outdoor Recreation 13 in this document proposes implementation team used the to modify RAPP as necessary 2012 annual field data call – the to track progress of the Refuge Annual Performance Recommendation 17 strategy. Plan (RAPP) – to survey refuge managers specifically Here is a snapshot of the about their hunting and fishing summary information gathered programs, related outdoor from the 2012 RAPP data call recreation activities and support for the System. facilities. The reporting rate

* Stocking may not be currently occurring. Reasons for stocking: recreational fishing, youth fishing events. reintroduction and restoration, forage food for wildlife and to control non-native-invasive species.

12 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges V. Define the Action Items “In defining “quality” we recognize it is The Service and the states are SAFETY – Participants in dedicated to working with the the activity must be protected largely a value Sport Fishing and Boating by accepted standards for Partnership Council, and the the program being managed judgment that Wildlife and Hunting Heritage and should feel safe while Conservation Council to increase participating. can vary from quality hunting and fishing opportunities on national wildlife SUCCESS – Fair chase individual to refuges. The Service will also standards should be continue to engage Tribes, non- incorporated in the programs’ governmental organizations and design. Participants should individual. For other partners. This will be best have a reasonable chance of supported by a comprehensive successful encounters of the fish example, one long-term strategy. or wildlife they are pursuing, but success should never be hunter might In defining “quality” we guaranteed. recognize it is largely a value seek solitude judgment that can vary from ACCESS – Reasonable individual to individual. For access should be provided to and truly enjoy example, one hunter might participants both in terms of seek solitude and truly enjoy equal and accessible opportunity only wilderness only wilderness backpack to participate in the program outings. Another person might generally, and actual access backpack be thankful for almost any to the activity on-the-ground opportunity to access public specifically. outings.” lands and escape the urban environment – whether the ENJOYMENT – Programs site is developed or relatively should be designed for crowded may matter little to participants to maximize their that person. With this in mind, enjoyment of the activity without we define “quality” generally unnecessary disturbance from and look for the following other users and with opportunity attributes: to participate in a variety of activities (from which they may choose) when practical.

Define the ActionBackgroud Items 13 VI. Training “This training would help Training is proposed to employees who manage, staff develop address a variety of needs or will manage, hunting associated with this strategy. and/or fishing programs outdoor skills Managing hunting and on refuges and for state fishing programs effectively, fish and wildlife agency capabilities efficiently and safely requires employees. The course a high degree of knowledge, should be developed and help skills and abilities. By for use at National providing basic procedural Conservation Training Friends, guidelines, examples of Center (NCTC), but solutions to problems and consideration should be volunteers access to helpful resources given to delivering it for managers, a higher initially on the road to and other level of experience can reach as many employees be attained earlier in our as possible in a cost partners employees’ careers. Training effective and timely for managing hunting and fashion (such as holding support fishing programs should training in each Service be as important as training region during a project hunting, for overseeing fire, law leaders’ meeting). The enforcement and wilderness course should emphasize fishing and management programs. the history, ecology and This training would help management of hunting other outdoor staff develop outdoor skills and fishing in America and capabilities and help Friends, on refuges, as referenced recreation volunteers and other partners in Recommendation 23of support hunting, fishing and the 10-year Recreational objectives on other outdoor recreation Hunting and Wildlife objectives on refuges. Conservation Plan1 ; the refuges.” economic importance of Action Item 1. the hunting and angling community; statutory and Develop and Implement policy guidance steps, tips Training Courses and resources available when developing new A. In coordination with programs; an overview the States, working of Refuge Improvement through the Association of Act provisions (including Fish and Wildlife Agencies fund raising authorities to (AFWA), develop and support wildlife-dependent deliver a course for refuge

14 Strategy14 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on Fishing National on Wildlife National Refuges Wildlife Refuges recreation); National Environmental Emphasis also should be on programs Policy Act (NEPA) and Endangered for youth and people with disabilities. Species Act (ESA) compliance; safety The course should be designed for considerations and development of participants with little or no experience safety and buffer zones; development of with these concepts but who have the complimentary outdoor skills programs; opportunity to develop new or expand special emphasis on development of existing programs. Consideration programs targeted at youth and people should be given to expanding the with disabilities; and coordination with concepts delivered currently by the states. Conservation Leaders of Tomorrow course hosted by the Max McGraw B. Develop content to include training Wildlife Foundation at NCTC. opportunities on the NCTC internal VS Connect site. Include a very broad D. The System will work with NCTC range of courses that can meet specific to provide training to facilities needs at specific locations (such as management coordinators, engineers, learning the health benefits of nature visitor services specialists and wildlife or learning to speak Spanish). Expand refuge specialists about Americans with the site to include other resources, such Disabilities Act compliance deficiencies as case studies that illustrate innovative and construction needs as identified programs and successes. in the inventory of all national wildlife refuges and wetland management C. Develop a course at NCTC for districts over the next 10 years. refuge staff, Friends and volunteers that shares best practices for developing and 1Sporting Conservation Council, the managing outdoor recreation activities Recreational Hunting and Wildlife Conservation on refuges. Include special emphasis Plan, Doc. (2008) on hunting and fishing and other wildlife-dependent recreation activities and related outdoor skills development.

Training 15 VII. Coordination and “Hunting Cooperative Work with the and fishing States programs Hunting and fishing on refuges programs on refuges are to be managed are to be in coordination with state fish and wildlife managed agencies and should be consistent to the in degree practical with state regulations coordination and management objectives. Good with state working relationships should be established in advance of fish and PHOTO CREDIT: Izembeck NWR, USFWS establishing programs to wildlife ensure that communication and coordination are the rule, regulation should be included agencies.” and to avoid professional in training (Action Item disagreements when possible. 2). The best relationships come from investment of time and energy one-on-one Action Item 2 with our partners. Refuge managers should work with Policy and Planning State partners to develop opportunities for joint A. The System is to work fieldwork and site visits, with States when involved informal periodic meetings, in planning efforts of mutual regular coordination on interest (comprehensive planning and procedural conservation plans, habitat issues and appropriate management plans, hunt celebratory events honoring plans, etc.) according to policy joint successes. and regulation (601 FW7 – Coordination with States & 43 CFR-24 State/Federal Relationships; see Appendix A-1 and A-2). This policy and Recommendation 17: The Service will work closely with state fish and wildlife agen- cies to conduct a review of its current hunting and fishing 16 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges opportunities, especially opportunities currently offered for youth and people VIII. Fish Stocking and Fisheries Management “The System should explore opportunities Increased angling opportuni- Action Item 3 to increase ties often can be realized with Proposed New Guidance and small investments, including Evaluation of Opportunities fishing stocking of fish for special on refuges events or for larger sustained A. Develop guidance from fishing opportunities. The the Service Director that through System should explore op- provides for the continuance portunities to increase fishing of established fish stocking evaluation on refuges through evaluation programs on refuges, and and potential modification of consideration for new stock- and potential its current policies and devel- ing programs where desir- modification oping programs with States, able, with adequate protec- the Sport Fishing and Boat- tion of refuge and adjacent of its current ing Partnership Council, and off-site resources. This would other partners. result in permission of stock- policies and ing programs follow- ing a legally required developing compatibility deter- programs with mination and new protective standards. States, the These new standards would evaluate each Sport Fishing proposal on a case- by-case basis rather and Boating than follow gen- Partnership eral interpretation of policy that restricts Council, or pre-empts stocking altogether. and other PHOTO CREDIT: Joe Milmoe, USFWS B. Encourage refuge manag- partners.” ers, when updating compre- hensive conservation plans, and in consultation with their state fish and wildlife agency, to evaluate whether fish Recommendation 17: The stocking can reasonably be Service will work closely employed to increase angling with opportunities on the refuge, state fish and wildlife agen- especially for youth and cies people with disabilities. to conduct a review of its current hunting and fishing opportunities, especially Fish Stocking and Fisheries Management 17 opportunities currently offered for youth and people IX. Accessible Facilities “Complete an inventory to assess The System manages more B. Service leadership will public use than 1,200 facilities, including prioritize the list above facilities roads, trails, observation and by taking into account hunting blinds, boat ramps geographic distribution within the and docks, and other outdoor and levels of public use at facilities. Of these, about one- System facilities to raise System with quarter of them have varying levels of participation and degrees of accessibility for increase access throughout regard to people with disabilities, as the System, and will dedicate well as for children or the a proportion of annual compliance elderly. The System will work deferred maintenance or with aggressively to inventory and visitor facilities enhancement resolve deficiencies. funding to address Americans deficiencies. Evaluation of progress will be completed with Action Item 4 every two years to determine Inventory and Investment if the improvements have Disabilities contributed to an increase in A. Complete an inventory to the number of hunters and Act assess public use facilities anglers using refuges. within the System with standards.” regard to compliance with Americans with Disabilities Act standards. Determine what solutions are feasible to correct deficiencies, including an estimated cost and time frame for upgrades or repairs.

18 Strategy18 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges X. Welcome and Orient New and Existing Users “Transition System boundary All refuge visitors should have 3) Include a PDF map signs, as easy access to information of the land available for about hunting, angling and public use. funding, other outdoor recreation opportunities on refuges and Action Item 6 time and about refuge programs, maps Signage practicality and regulations. A. Place information kiosks allow, to Action Item 5 at the entrance to popular As the System redesigns hunting and fishing areas eliminate its web presence, emphasis and other specific public “Unauthorized should be placed on recreation areas on refuges. providing applications and These should tell users about Entry the opportunities, rules and maps specific to hunting, other facts important to Prohibited ” angling and other wildlife- the area and activity. Use dependent recreation QR codes at kiosks, where language and opportunities. appropriate, to provide messages tailored to specific replace it A. Incorporate and emphasize user groups. the following elements into with more the System web redesign: B. Transition System welcoming 1) Expand content boundary signs, as funding, of Universal Hunt, time and practicality allow, and particularly the Special to eliminate “Unauthorized Hunts section. Entry Prohibited” language informative 2) Add abundance rating and replace it with more wording.” for hunted species. welcoming and informative 3) Add abundance rating wording. for fished species. C. If an area is closed, provide B. When possible, individual information on the sign about refuge websites should why it is closed (example: include: “waterfowl resting area”). 1) Links to state sites, where applicable, and D. Provide bilingual signs highlight restrictions where appropriate. that differ from state programs. E. Update sign manual to 2) Feature state- reflect above changes. sponsored hunting and fishing events.

Welcome and Orient New and Existing Users 19 Action Item 7 bird migration and during Social Media peak fishing and wildlife- viewing times. “Develop and A. Leverage social media by developing a larger presence Action Item 8 incorporate using Facebook, Twitter, Visitor Services Manual YouTube, Flickr and other minimum established online forums. A. Incorporate Action Items 4-6 into the Visitor Services standards B. Leverage partnerships Manual “Welcome and with states and non- Orient” section. for hunting governmental organizations using links on established B. Develop and incorporate Web sites. minimum standards for and fishing hunting and fishing programs. programs. ” C. Include hunting, angling (This already has been and other outdoor recreation completed for wildlife viewing opportunities when and photography.) Special developing any System or attention should be given refuge-specific app. to minimum standards to welcome and orient D. Explore opportunities to refuge visitors in regard share information via Google to accessibility and special sites, shared calendars and programs (like a youth deer web pages like VS Connect. hunt).

E. Explore the use of C. Develop outreach materials podcasts and Ted talks on that refuges that do not have topics related to hunting, hunting/fishing programs angling, other outdoor can use to inform visitors of recreation opportunities, the hunting/fishing opportunities North American Model of on refuges elsewhere in that Wildlife Conservation and state. the American System of Conservation Funding.

F. Work with Service communications branches to publicize refuges that have especially important programs or opportunities – encourage refuge visits during

20 Strategy20 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges XI. Outdoor Skills and Mentoring

Recruitment of new participants to System leadership and the AFWA Federal hunting, angling and other outdoor and Tribal Relations committee (see Action recreation activities comes in a variety Item 12). Make a decision whether to of ways, often through a parent, other expand, modify or discontinue the initiative. relative or friend, but also by introducing potential participants to related skills and D. Develop a partners’ guide to opportunities. Enjoyment of the activity, working with refuges to educate and and likelihood of continuing it, can also be advance outdoor skills development and enhanced by improving the skills associated opportunities. The guide will include, at with the activity, and learning more minimum, an introduction; description about it. Consistent with its conservation of the System and its operational goals; mission, the System will strive to increase what outdoor skills are and why they are opportunities to develop outdoor skills and important; an outline for hosting events mentor new hunters, anglers and other in partnership with refuges; the concept outdoor recreationists. of outdoor skills centers; and the role of volunteers and Friends. Action Item 9 Outdoor Skills and Outdoor E. Develop and expand partnerships to Skills Centers capitalize on matching funds, contributions, and donations to facilitate the development A. Develop existing outdoor skills programs of outdoor skills centers on refuge lands. (e.g., Becoming an Outdoors Woman, Hunter Education, Archery in the Schools Action Item 10 and Outdoors Without Limits) and outdoor Outdoor Mentoring skills centers on refuges. Facilities ranging from rustic one-room cabins to major A. As requested by states, or at a minimum visitor centers can be used as resources to when updating refuge comprehensive managers seeking to develop outdoor skill conservation plans, evaluate opportunities centers and programs at their stations. to support state-sponsored mentored hunting programs on refuges. Where B. Develop and implement a pilot program states do not have a mentored hunting to create new outdoor skills centers across program, refuges should develop one. the System. Allocate funding to support a program that will include at least one B. The goal of the System’s outdoor skills center per Service region. Funding mentoring program, through repeated should be allocated based on audience base, experiences, is for mentees to become leveraging of dollars (best bang for the outdoor enthusiasts (e.g., hunters, anglers, buck), available partnerships and ability of birders). staff and partners to deliver programs.

C. Evaluate pilot projects at end of years two, three and four. Report results to

Outdoor Skills and Mentoring 21 XII. Charting A Course “The Service is committed to analysing While much progress has limited species, etc.) and potential been made since passage of develop proposals to address opportunities the Refuge Improvement Act these opportunities. The in 1997 in offering increased information will be shared and working with quality opportunities for with the AFWA standing hunting and fishing and committee (Action Item 12). state fish and other wildlife-dependent recreational opportunities B. Emphasis will be placed on wildlife agencies, within the System, there is developing new or improved room to do more. The Service opportunities whenever the Sport Fishing is committed to analysing refuge comprehensive potential opportunities conservation plans are and Boating and working with state fish updated. Additionally, state and wildlife agencies, the fish and wildlife agencies, the Partnership Sport Fishing and Boating Sport Fishing and Boating Partnership Council, and Partnership Council, and Council, and the Wildlife and Hunting the Wildlife and Hunting the Wildlife and Heritage Conservation Heritage Conservation Council to increase and Council may request that the Hunting Heritage improve opportunities. Service entertain a new or modified program at any time. Conservation Action Item 11 C. The Service will review, by Council to Looking for Opportunities the end of 2014, the process for opening new refuges to increase and A. System leadership hunting/fishing, or expanding willcontinue to evaluate existing hunting/fishing improve existing hunting and fishing programs, to determine if opportunities.” opportunities within the and how the process could be System, look for obvious streamlined. gaps (large acreage areas not currently open, short seasons,

22 Strategy22 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges XIII. Measure and Reward Success “The Service is committed to working on The strategy requires metrics working on hunting or fishing hunting or and periodic monitoring to issues that are important to ensure implementation is being state partners as well as the fishing issues successful and, if not, to help Sport Fishing and Boating guide modifications. The current Partnership Council, and the that are annual RAPP data call is a good Wildlife and Hunting Heritage start to assess progress, but Conservation Council. For important to likely will need adjustments to example, funding will be address all questions we might dedicated to support nationwide state partners have. Basic statistics will be monitoring of chronic wasting as well as the easier to collect (such as how disease using refuge hunt many new hunting or fishing programs where desirable. This Sport Fishing programs are offered each year) commitment will be extended, as by tabulating proposed additions feasible, to other wildlife disease and Boating or changes to the Service’s issues (e.g., avian influenza could annual rulemaking for refuge- be monitored through waterfowl Partnership specific regulations. hunt programs). Ongoing coordination on will be a priority. Council, and Action Item 12 the Wildlife Strategy Evaluation and Action Item 12 Rewarding Success Establish Annual Monitoring and Hunting Heritage A. The Service will work with A. Develop questions in the AFWA Federal and Tribal association with RAPP that Conservation Relations committee to evaluate will measure changes in refuge progress on this strategy, make hunting and fishing programs Council.” recommendations for changes over time. At minimum, we will and reward success. measure the number of hunting and fishing programs offered; B. An awards program is type of program; acreage; recommended to be established. percentage of a given refuge In it the Service annually open to the activity; estimated will recognize the effective number of participants (with partnership of a state fish and subset for youth, people wildlife agency, and AFWA with disabilities and number annually will recognize an of mentored hunts offered); exceptional specific refuge for its and whether improvements hunting or fishing programs and/ have been made since the or partnership and success with previous year (such as adding a state. hunting blinds, improving ADA accessibility, developing new maps, The Service is committed to etc.).

Measure and Reward Success 23 XIV. Conclusion “Hunting and fishing is an important part Hunting and fishing is an contribute to, and benefit of American important part of American from, these activities. With heritage and continues to at least one refuge in every heritage and be important to individuals state and with a refuge and families. It is also within an hour’s drive of most continues to be a significant part of the cities, refuges can provide American economy. In a place for Americans to important to 2011, hunters and anglers experience the out-of-doors spent approximately $90 and wildlife-dependent individuals billion associated with those recreation. The Service is activities. According to committed to growing and and the 2011 National Survey improving hunting and fishing of Fishing, Hunting, opportunities on refuges families.” and Wildlife-Associated by working with States, the Recreation, there were Sport Fishing and Boating 33.1 million anglers, 13.7 Partnership Council and million hunters and 71.8 the Wildlife and Hunting million wildlife watchers who Heritage Conservation participated in these wildlife- Council. The Service will related recreational activities. also engage Tribes, non- That equates to 90.1 million governmental organizations U.S. residents participants and other partners on these age 16 or older (38 percent of opportunities. The places are the U.S. population). These there, the wildlife is there, activities contribute to the and the will is there. nation’s health and wealth, and the System is poised to

24 Strategy24 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges XV. Case Studies

There are many successful or shed antler collecting) hunting and fishing programs that can get people outside on refuges today. Many have and serve as an ambassador lessons to be shared about program to recruit users to developing targeted programs other activities. The Service (such as youth fishing areas wants to grow a connected or events) effectively and conservation constituency to efficiently. Others draw be informed and supportive new users to a refuge in of its mission. Here are two distantly related or unrelated examples that, we hope, will activities (e.g., star gazing generate ideas for others.

Case Studies 25 who are selected by drawing in September for a two-day hunt that takes place in November. Applicants are restricted to persons permanently confined to a wheelchair or persons permanently requiring the use of mechanical aids (crutches, walkers or prostheses above the knee) to walk.

Refuge Name: Sacramento National Wildlife Refuge, California

Type of Use: Duck hunting Ernest F. Hollings ACE Refuge Name: blind for those with disabilities Basin National Wildlife Ernest F. Hollings ACE Basin Refuge, South Carolina National Wildlife Refuge, South Description: Waterfowl Carolina hunting on Sacramento National Wildlife Refuge Type of Use: White-tailed takes place mid-October deer hunting for those with through mid-January on disabilities Wednesdays, Saturdays and Sundays on the southern Description: Ernest F. portion of the refuge separate Hollings ACE Basin National from other recreational Wildlife Refuge helps protect activities. Ducks, geese, the largest undeveloped pheasant, snipe, coots and moorhens can be hunted. A refuge hunting permit must be purchased at the refuge’s hunter check station. Based on a public request, refuge staff developed a waterfowl hunt designed to accommodate those with disabilities. The idea to develop strategically placed permanent waterfowl blinds came about in post-hunt meetings with disabled hunters. Using crushed granite to create a semi- Sacramento National estuary along the Atlantic permanent yet functionally Wildlife Refuge, Coast, with rich bottomland accessible trail to the duck California hardwoods and fresh and blinds located along the lakes saltwater marsh offering food of the area, waterfowl hunting and habitat to a variety of for those with disabilities was wildlife. The mobility-impaired established. hunt is available to 12 hunters

26 Strategy26 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges XVI. Appendix A-1: 601 FW7 Coordination with States

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7.1 What is the purpose of A. Ensure timely and effective this chapter? This chapter cooperation with State fish establishes procedures for and wildlife agencies during coordinating and working the course of acquiring and cooperatively with State fish and managing refuges; wildlife agency representatives on management of units of the B. Enter into cooperative National Wildlife Refuge System. agreements with State fish and wildlife agencies for the 7.2 What is the scope of this management of programs on a chapter? This chapter applies to: refuge;

A. The Assistant Director C. Consult with adjoining State – National Wildlife Refuge landowners and State fish System, and wildlife agencies in the preparation of comprehensive B. Regional Directors, conservation plans (CCP) and coordinate the development of C. Regional Refuge Chiefs, these plans or their revisions with relevant State plans for fish D. Refuge supervisors, and and wildlife and their habitats;

E. Refuge managers within D. Include a summary of State the Fish and Wildlife Service comments in a final CCP; and (Service). E. Ensure regulations allowing 7.3 What is the authority for hunting or fishing of fish and this chapter? The National wildlife within the System Wildlife Refuge System are, to the extent practicable, Administration Act of 1966, consistent with State fish and as amended by the National wildlife laws, regulations, and Wildlife Refuge System management plans. Improvement Act of 1997, provides that the Secretary of 7.4 What is the Service’s the Interior in administering the policy on coordination with System will, among other things: the States?

Appendix 27 A. Effective conservation of fish, the CCP planning team; wildlife, plants and their habitats however, we will provide other depends on the professional re- opportunities for the State lationship between managers at fish and wildlife agencies to the State and Federal level. We participate in the development acknowledge the unique exper- and implementation of program tise and role of State fish and changes that would be made wildlife agencies in the manage- outside of the CCP process. ment of fish and wildlife. We will continue to provide State fish and wildlife agencies B. Both the Service and opportunities to discuss and, if the State fish and wildlife necessary, elevate decisions agencies have authorities and within our hierarchy. responsibilities for management of fish and wildlife on national 7.5 What is the role of the wildlife refuges, as described in Association of Fish and 43 CFR 24. Consistent with the Wildlife Agencies? To National Wildlife Refuge System further the congressional Administration Act, as amended directive to develop effective by the National Wildlife Refuge procedures for State fish and System Improvement Act: wildlife agencies to provide meaningful participation, (1) The Director will: State representatives include Association of Fish and Wildlife (a) Interact, coordinate, Agencies (AFWA) staff who cooperate, and collaborate have been specifically appointed with the State fish and by a public officer of a State fish wildlife agencies in a timely and wildlife agency to act on its and effective manner on the behalf for such proceedings. acquisition and management of national wildlife refuges; and 7.6 How will the Service coordinate with State (b) Ensure that National Wildlife representatives on the Refuge System regulations and development of policy? management plans are, to the extent practicable, consistent A. When the Service initiates with State laws, regulations, national policy development and management plans. to address a legislative requirement or to address (2) Refuge managers, as the a broad-scale refuge designated representatives management concern, need, or of the Director at the local issue, we: level, will also carry out these directives. (1) Will inform the States in order to obtain scoping or other (3) We will provide State fish preliminary information from and wildlife agencies timely them; and meaningful opportunities to participate in the development (2) Will meet with State and implementation of representatives to discuss programs conducted under issues relative to the this policy. This opportunity development of national policy will most commonly occur affecting resource management through State fish and wildlife on and near units of the agency representation on System;

28 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges (3) Will invite interested State representatives and implement CCPs and coordinate the to participate on working groups to develop development of these plans or their revisions policies that affect Federal and State interests; with State plans for fish and wildlife and their habitats. (4) May also use intergovernmental personnel agreements to employ State representatives to D. We will provide the States meaningful assist in the development of policy. opportunities to participate in the review and revision (if necessary) of completed CCPs. B. When the Service has published proposed refuge management policies seeking public 7.8 What are the Regional Directors’ comment and input under the procedures set responsibilities for coordination with States? by the Administrative Procedure Act, we will Regional Directors will meet with the directors continue to meet with State representatives. of State fish and wildlife agencies within their Region at least annually, either collectively or (1) These discussions provide State individually. The purpose of the meetings is representatives with a better understanding to exchange information and expertise and of the proposals and the rationale behind discuss outstanding issues such as the status them. They will also provide us with a better of CCPs for each refuge within the Region understanding of State representative and guidance for appropriate staff. Regional concerns and suggestions that will be Directors and State directors should identify incorporated, when appropriate, in products. appropriate staff and mechanisms for further consultation including the development of (2) We will include in the rulemaking record a memorandums of understanding (MOUs) summary of any such meetings, including any or other instruments to guide cooperative significant information, recommendations, and development of plans and programs. rationale presented that is not already part of the record. 7.9 What are the procedures for resolving disagreements with the Service? We will try (3) If these discussions result in new to resolve issues at the refuge manager level. information or suggestions that result in a In those rare instances where we cannot significant shift in our approach that is not resolve issues at the refuge manager level, otherwise supported by the record developed a State fish and wildlife agency may ask the during the public comment period, we will Regional Director or, if necessary, the Director reopen the comment period identifying for to resolve concerns. the public the new information we plan to rely on or the new regulation or policy we are For information on the specific content of this proposing. chapter, contact the Division of Conservation, Planning and Policy. For information about this 7.7 How will State representatives Web site, contact Krista Holloway in the Divi- participate in the development of sion of Policy and Directives Management, at comprehensive conservation plans? [email protected].

A. We will invite State representatives to participate on CCP planning teams. Visit the Division of Policy and Directives B. When we make final decisions, we will Management Home Page communicate our decisions and rationale to the States and include a summary of State Visit the U.S. Fish and Wildlife Service comments in the final CCP. Home Page

C. Consistent with the provisions of the National Wildlife Refuge System Administration Act, we will consult and work cooperatively with adjoining State landowners and State fish and wildlife agencies to develop Appendix A-2: 43 CFR-24 State/Federal Relationships

§ 24.1 authority regarding fish and Introduction resident wildlife remains the comprehensive backdrop (a) In 1970, the Secretary applicable in the absence of of the Interior developed specific, overriding Federal a policy statement on law. intergovernmental cooperation in the (b) The Secretary of the preservation, use and Interior reaffirms that management of fish and fish and wildlife must be wildlife resources. The maintained for their ecological, purpose of the policy ( 36 FR cultural, educational, 21034, Nov. 3, 1971) was to historical, aesthetic, scientific, strengthen and support the recreational, economic, and missions of the several States social values to the people of and the Department of the the United States, and that Interior respecting fish and these resources are held in wildlife. Since development public trust by the Federal of the policy, a number of and State governments for the Congressional enactments benefit of present and future and court decisions have generations of Americans. addressed State and Federal Because fish and wildlife are responsibilities for fish and fundamentally dependent wildlife with the general upon habitats on private effect of expanding Federal and public lands managed jurisdiction over certain or subject to administration species and uses of fish by many Federal and State and wildlife traditionally agencies, and because managed by the States. In provisions for the protection, some cases, this expansion of maintenance and enhancement jurisdiction has established of fish and wildlife and the overlapping authorities, regulation for their use are clouded agency jurisdictions established in many laws and, due to differing and regulations involving a agency interpretations multitude of Federal and State and accountabilities, has administrative structures, contributed to confusion and the effective stewardship of delays in the implementation fish and wildlife requires the of management programs. cooperation of the several Nevertheless, Federal States and the Federal authority exists for specified Government. purposes while State

30 Strategy30 to Strategy Increase to Quality Increase Hunting Quality and Hunting Fishing and on FishingNational on Wildlife National Refuges Wildlife Refuges (c) It is the intent of the Secretary to (b) In developing and implementing this strengthen and support, to the maximum policy, this Department will be furthering legal extent possible, the missions of the manifest Congressional policy of the States 1 and the Department of Federal-State cooperation that pervades the Interior to conserve and manage statutory enactments in the area of fish effectively the nation’s fish and wildlife. It and wildlife conservation. Moreover, in is, therefore, important that a Department recognition of the scope of its activities in of the Interior Fish and Wildlife Policy be managing hundreds of millions of acres implemented to coordinate and facilitate of land within the several States, the the efforts of Federal and State agencies in Department of the Interior will continue the attainment of this objective. to seek new opportunities to foster a “good neighbor” policy with the States.

Footnote(s): 1“States” refers to all of the § 24.3 several States, the District of Columbia, the General jurisdictional principles Commonwealth of Puerto Rico, American Samoa, the Virgin Islands, Guam, the Trust (a) In general the States possess broad Territory of the Pacific Islands, the Com- trustee and police powers over fish and monwealth of Northern Mariana Islands wildlife within their borders, including fish and other territorial possessions, and the and wildlife found on Federal lands within constituent units of government upon which a State. Under the Property Clause of the these entities may have conferred authori- Constitution, Congress is given the power ties related to fish and wildlife matters. to “make all needful Rules and Regulations respecting the Territory or other Property belonging to the United States.” In the § 24.2 exercise of power under the Property Purpose Clause, Congress may choose to preempt State management of fish and wildlife (a) The purpose of the Department of on Federal lands and, in circumstances the Interior Fish and Wildlife Policy is to where the exercise of power under the clarify and support the broad authorities Commerce Clause is available, Congress and responsibilities of Federal 2 and State may choose to establish restrictions on agencies responsible for the management the taking of fish and wildlife whether or of the nation’s fish and wildlife and to not the activity occurs on Federal lands, identify and promote cooperative agency as well as to establish restrictions on management relationships which advance possessing, transporting, importing, or scientifically-based resource management exporting fish and wildlife. Finally, a third programs. This policy is intended to source of Federal constitutional authority reaffirm the basic role of the States in for the management of fish and wildlife is fish and resident wildlife management, the treaty making power. This authority especially where States have primary was first recognized in the negotiation of a authority and responsibility, and to foster migratory bird treaty with Great Britain on improved conservation of fish and wildlife. behalf of Canada in 1916.

(b) The exercise of Congressional power Footnote(s): 2 Hereinafter, the Bureau of through the enactment of Federal fish and Reclamation, Bureau of Land Management, wildlife conservation statutes has generally Fish and Wildlife Service, and National been associated with the establishment Park Service will be referred to collectively of regulations more restrictive than those as “Federal agencies.” of State law. The power of Congress respecting the taking of fish and wildlife

Appendix 31 has been exercised as a restrictive most instances, should be made available regulatory power, except in those situations by cooperative agreement to the agency where the taking of these resources is exercising the administration of these necessary to protect Federal property. resources of the particular State involved. With these exceptions, and despite the The Federal Water Project Recreation existence of constitutional power respecting Act of 1965, as amended, also directs fish and wildlife on Federally owned lands, Reclamation to encourage non-Federal Congress has, in fact, reaffirmed the basic public bodies to administer project land responsibility and authority of the States and water areas for recreation and fish to manage fish and resident wildlife on and wildlife enhancement. Reclamation Federal lands. withdrawal, however, does not enlarge the power of the United States with respect to (c) Congress has charged the Secretary management of fish and resident wildlife of the Interior with responsibilities for the and, except for activities specified in management of certain fish and wildlife Section III.3 above, basic authority and resources, e.g., endangered and threatened responsibility for management of fish and species, migratory birds, certain marine resident wildlife on such lands remains with mammals, and certain aspects of the the State. management of some anadromous fish. However, even in these specific instances, (c) BLM-administered lands comprise in with the limited exception of marine excess of 300 million acres that support mammals, State jurisdiction remains significant and diverse populations of fish and concurrent with Federal authority. wildlife. Congress in the Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 § 24.4 et seq.) directed that non-wilderness BLM Resource management and public lands be managed by the Secretary under activities on Federal lands principles of multiple use and sustained yield, and for both wilderness and non- (a) The four major systems of Federal wilderness lands explicitly recognized lands administered by the Department of and reaffirmed the primary authority and the Interior are lands administered by the responsibility of the States for management Bureau of Reclamation, Bureau of Land of fish and resident wildlife on such lands. Management, units of the National Wildlife Concomitantly, the Secretary of the Interior Refuge System and national fish hatcheries, is charged with the responsibility to manage and units of the National Park System. non-wilderness BLM lands for multiple (b) The Bureau of Reclamation withdraws uses, including fish and wildlife conservation. public lands and acquires non- Federal However, this authority to manage lands for lands for construction and operation of fish and wildlife values is not a preemption water resource development projects of State jurisdiction over fish and wildlife. In within the 17 Western States. Recreation exercising this responsibility the Secretary and conservation or enhancement of fish is empowered to close areas to hunting, and wildlife resources are often designated fishing or trapping for specified reasons viz., project purposes. General authority for public safety, administration, or compliance Reclamation to modify project structures, with provisions of applicable law. The closure develop facilities, and acquire lands to authority of the Secretary is thus a power accommodate fish and wildlife resources is to close areas to particular activities for given to the Fish and Wildlife Coordination particular reasons and does not in and of Act of 1946, as amended (16 U.S.C. 661- itself constitute a grant of authority to the 667e ). That act further provides that the Secretary to manage wildlife or require or lands, waters and facilities designated for authorize the issuance of hunting and/or fish and wildlife management purposes, in fishing permits or licenses.

32 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges (d) While the several States therefore between the States and the Federal possess primary authority and Government, Congress, in the National responsibility for management of fish Wildlife Refuge System Administration and resident wildlife on Bureau of Land Act of 1966 (16 U.S.C. 668dd ), has Management lands, the Secretary, through explicitly stated that nothing therein shall the Bureau of Land Management, has be construed as affecting the authority custody of the land itself and the habitat of the several States to manage fish and upon which fish and resident wildlife are resident wildlife found on units of the dependent. Management of the habitat is a system. Thus, Congress has directed that, responsibility of the Federal Government. to the maximum extent practicable, such Nevertheless, Congress in the Sikes public uses shall be consistent with State Act has directed the Secretary of the laws and regulations. Units of the National Interior to cooperate with the States in Wildlife Refuge System, therefore, shall developing programs on certain public be managed, to the extent practicable and lands, including those administered by compatible with the purposes for which BLM and the Department of Defense, they were established, in accordance with for the conservation and rehabilitation of State laws and regulations, comprehensive fish and wildlife including specific habitat plans for fish and wildlife developed by improvement projects. the States, and Regional Resource Plans developed by the Fish and Wildlife Service (e) Units of the National Wildlife Refuge in cooperation with the States. System occur in nearly every State and constitute Federally owned or controlled (f) Units of the National Park System areas set aside primarily as conservation contain natural, recreation, historic, and areas for migratory waterfowl and other cultural values of national significance as species of fish or wildlife. Units of the designated by Executive and Congressional system also provide outdoor enjoyment action. Specific enabling legislation has for millions of visitors annually for the authorized limited hunting, trapping or purpose of hunting, fishing and wildlife- fishing activity within certain areas of the associated recreation. In 1962 and 1966, system. As a general rule, consumptive Congress authorized the use of National resource utilization is prohibited. Those Wildlife Refuges for outdoor recreation areas which do legislatively allow hunting, provided that it is compatible with the trapping, or fishing, do so in conformance primary purposes for which the particular with applicable Federal and State laws. refuge was established. In contrast to The Superintendent may, in consultation multiple use public lands, the conservation, with the appropriate State agency, fix times enhancement and perpetuation of fish and and locations where such activities will wildlife is almost invariably the principal be prohibited. Areas of the National Park reason for the establishment of a unit of System which permit fishing generally will the National Wildlife Refuge System. In do so in accordance with applicable State consequence, Federal activity respecting and Federal Laws. management of migratory waterfowl and other wildlife residing on units of the (g) In areas of exclusive Federal National Wildlife Refuge System involves a jurisdiction, State laws are not applicable. Federal function specifically authorized by However, every attempt shall be made Congress. It is therefore for the Secretary to consult with the appropriate States to determine whether units of the System to minimize conflicting and confusing shall be open to public uses, such as hunting regulations which may cause undue and fishing, and on what terms such access hardship. shall be granted. However, in recognition of the existing jurisdictional relationship

Appendix 33 (h) The management of habitat for species without prior consultation with the affected of wildlife, populations of wildlife, or States, except in emergency situations. The individual members of a population shall Bureau of Land Management may, after be in accordance with a Park Service consultation with the States, close all or any approved Resource Management Plan. The portion of public land under its jurisdiction appropriate States shall be consulted prior to public hunting, fishing, or trapping for to the approval of management actions, reasons of public safety, administration, or and memoranda of understanding shall compliance with provisions of applicable be executed as appropriate to ensure the law. The National Park Service and Fish conduct of programs which meet mutual and Wildlife Service may, after consultation objectives. with the States, close all or any portion of Federal land under their jurisdictions, (i) Federal agencies of the Department of or impose such other restrictions as are the Interior shall: deemed necessary, for reasons required by the Federal laws governing the (1) Prepare fish and wildlife management management of their areas; and plans in cooperation with State fish and wildlife agencies and other Federal (non- (5) Consult with the States and comply with Interior) agencies where appropriate. State permit requirements in connection Where such plans are prepared for with the activities listed below, except Federal lands adjoining State or private in instances where the Secretary of the lands, the agencies shall consult with the Interior determines that such compliance State or private landowners to coordinate would prevent him from carrying out his management objectives; statutory responsibilities: (i) In carrying out research programs (2) Within their statutory authority and involving the taking or possession of subject to the management priorities and fish and wildlife or programs involving strategies of such agencies, institute fish reintroduction of fish and wildlife; and wildlife habitat management practices (ii) For the planned and orderly removal of in cooperation with the States to assist surplus or harmful populations of fish and the States in accomplishing their fish and wildlife except where emergency situations wildlife resource plans; requiring immediate action make such consultation and compliance with State (3) Provide for public use of Federal lands regulatory requirements infeasible; and in accordance with State and Federal laws, (iii) In the disposition of fish and wildlife and permit public hunting, fishing and taken under paragraph (i) (5)(i) or (i) (5)(ii) trapping within statutory and budgetary of this section. limitations and in a manner compatible with the primary objectives for which the lands § 24.5 are administered. The hunting, fishing, International agreements and trapping, and the possession and disposition of fish, game, and fur animals, (a) International conventions have shall be conducted in all other respects increasingly been utilized to address fish within the framework of applicable State and wildlife issues having dimensions and Federal laws, including requirements beyond national boundaries. The authority for the possession of appropriate State to enter into such agreements is reserved licenses or permits. to the President by and with the advice and consent of the Senate. However, while (4) For those Federal lands that are already such agreements may be valuable in the open for hunting, fishing, or trapping, case of other nations, in a Federal system closure authority shall not be exercised such as ours sophisticated fish and wildlife

34 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges programs already established at the State (9) Endangered and threatened species; level may be weakened or not enhanced. (10) Habitat preservation; (11) Joint processing of State and Federal (b) To ensure that effective fish and permit applications for activities involving wildlife programs already established fish, wildlife and plants; at the State level are not weakened, the (12) Road management activities affecting policy of the Department of the Interior fish and wildlife and their habitat; shall be to recommend that the United (13) Management activities involving fish States negotiate and accede to only those and wildlife; and, international agreements that give strong (14) Disposition of fish and wildlife taken in consideration to established State programs conjunction with the activities listed in this designed to ensure the conservation of fish paragraph. and wildlife populations. (b) The cooperating parties shall (c) It shall be the policy of the Department periodically review such cooperative to actively solicit the advice of affected agreements and adjust them to reflect State agencies and to recommend to changed circumstances. the U.S. Department of State that representatives of such agencies be § 24.7 involved before and during negotiation Exemptions of any new international conventions concerning fish and wildlife. (a) Exempted from this policy are the following: § 24.6 (1) The control and regulation by the Cooperative agreements United States, in the area in which an international convention or treaty applies, (a) By reason of the Congressional policy of the taking of those species and families (e.g., Fish and Wildlife Coordination Act of fish and wildlife expressly named or of 1956) of State-Federal cooperation and otherwise covered under any international coordination in the area of fish and wildlife treaty or convention to which the United conservation, State and Federal agencies States is a party; have implemented cooperative agreements (2) Any species of fish and wildlife, control for a variety of fish and wildlife programs over which has been ceded or granted to on Federal lands. This practice shall be the United States by any State; and continued and encouraged. Appropriate (3) Areas over which the States have ceded topics for such cooperative agreements exclusive jurisdiction to the United States. include but are not limited to: (1) Protection, maintenance, and (b) Nothing in this policy shall be construed development of fish and wildlife habitat; as affecting in any way the existing (2) Fish and wildlife reintroduction and authorities of the States to establish annual propagation; harvest regulations for fish and resident (3) Research and other field study wildlife on Federal lands where public programs including those involving the hunting, fishing or trapping is permitted. taking or possession of fish and wildlife; (4) Fish and wildlife resource inventories and data collection; 43 CFR -24 Courtesy of Cornell University Law (5) Law enforcement; School - http://www.law.cornell.edu/cfr/ (6) Educational programs; text/43/24 (7) Toxicity/mortality investigations and monitoring; (8) Animal damage management;

Appendix 35 U.S. Fish and Wildlife Service National Wildlife Refuge System www.fws.gov/refuges

March 2014

Recommendation 17: The Service will work closely with state fish and wildlife agencies to conduct a review of its current hunting and fishing opportunities, especially opportunities currently offered for youth and people with disabilities. Based on this review, the Service and states will work cooperatively to prepare a strategy for increasing quality hunting and fishing opportunities on national wildlife refuges.

36 Strategy to Increase Quality Hunting and Fishing on National Wildlife Refuges