Restoring America’s
Wildlife Legacy
A Plan to Rejuvenate Our
National Wildlife Refuge System
1999 Update
Developed by the
Cooperative Alliance for
Refuge Enhancement
(C.A.R.E)
American Fisheries Society
American Sportfishing Association
Congressional Sportsmen's Foundation
Defenders of Wildlife
Ducks Unlimited
Int’l. Assn. of Fish and Wildlife Agencies
Izaak Walton League of America
National Audubon Society
National Rifle Association of America
National Wildlife Federation
National Wildlife Refuge Association
Safari Club International
The Wilderness Society
The Wildlife Society
Trout Unlimited
Wildlife Legislative Fund of America
Wildlife Forever
Wildlife Management Institute
WILDLANDS FOR WILDLIFE
The National Wildlife Refuge System is the only network of national lands established
specifically to conserve fish and wildlife. The Refuge System is managed by the U.S. Fish and
Wildlife Service, an agency within the Department of the Interior. The System includes more
than 93 million acres of the most biologically diverse lands in America and spreads across 516
refuges in all 50 states as well as Puerto Rico, the Virgin Islands, Guam, and several other far
Pacific islands. In 2003, this great national treasure will celebrate its 100th Anniversary.
(Pull quote: The National Wildlife Refuge System is the only network of national lands
established specifically to conserve fish and wildlife.)
Our National Wildlife Refuge System protects key stepping stones for North America’s
migratory birds--our waterfowl, songbirds, raptors, and shorebirds--which traverse the continent
each spring and fall. Refuges are also at the core of recovery efforts for scores of endangered and
threatened species--from Key deer to whooping cranes, Lange’s metalmark butterflies to Ash
Meadows blazing stars.
National Wildlife Refuges serve as anchor points for conserving America’s great
ecosystems, from wetlands to forests, prairies to deserts, tundra to seashores. With a national
wildlife refuge within a few hours drive of most Americans’ homes, the Refuge System provides
exceptional opportunities for wildlife-related recreation and environmental education. Last year
more than 34 million people visited the refuges to observe and photograph wildlife. In addition,
more than five million anglers and 1.5 million hunters took advantage of the myriad recreational
opportunities available to them on Refuges. Refuges also hosted numerous environmental
education programs for our country’s students.
Threats to a National Treasure
This great system of lands and waters, however, has been strained for years by severe
funding shortfalls. Underfunding and understaffing in past years has led to the decline of refuge
habitats and wildlife populations, and put at risk popular wildlife-oriented recreation programs.
Invasive exotic species, inadequate water supplies, and other problems plague many refuges,
harming their ability to meet their conservation mission. Management programs to help recover
endangered species, restore degraded habitats, address threats to water quality and other
problems are left unaccomplished on an alarming number of refuges. Most refuges are operated
only with minimal staffing and approximately 200 refuges have no staff on-site.
A New Beginning
In recognition of this problem, a diverse group of 18 conservation and recreation
organizations has come together to educate Congress and the American people about what is at
stake. In 1997, the Cooperative Alliance for Refuge Enhancement (C.A.R.E.) released a plan
of action which calls for modest but steady increases for the Refuge System’s operations and
maintenance budget that would put the Refuge System on track toward fulfilling its conservation
mission by the System’s 100th Anniversary in 2003. And Congress has responded. In Fiscal
Years 1998 and 1999, Congress approved significant funding increases for the Refuge System’s
operations and maintenance needs. However, as this document describes, there is much more
work to be done.
In 1997, Congress provided the System with another wonderful gift by enacting the
National Wildlife Refuge System Improvement Act, a landmark law that clarifies the
conservation mission of the System and duties for the Secretary of the Interior to protect and
provide for its well being and establishes wildlife dependent recreation as a “priority use.” The
law embraces strong public involvement in refuge decision-making by requiring that a
Comprehensive Conservation Plan be developed for each refuge and by establishing a public
review process for determining what uses are compatible. The new law also embraces sound
science, requiring the Refuge System to ensure that all refuge management decisions are based
on the best available science and to improve basic monitoring of fish, wildlife and plants in the
System.
A year later, Congress passed the National Wildlife Refuge System Volunteer and
Community Partnership Act to stimulate additional volunteer activity on our national wildlife
refuges. This new law should help further expand American’s support of this great system.
With bold and popular new legislation in place, and increasing support from the
American public, the stage is set for the National Wildlife Refuge System to meet its great
conservation potential as it enters its second century. However, funding increases for the
System’s operations and maintenance are critical to ensure that this great promise is realized.
(Pull Quote: With bold and popular new legislation in place, and increasing support from the
American public, the stage is set for the National Wildlife Refuge System to meet its great
conservation potential as it enters its second century.)
RESTORING OUR NATIONAL WILDLIFE REFUGE SYSTEM
Management of the National Wildlife Refuge System is carried out with funds provided
by Congress under the Fish and Wildlife Service’s “Refuge Operations and Maintenance”
account. This account is divided into separate subaccounts for operations and maintenance.
Daily land management, habitat restoration, wildlife research and monitoring, public use,
and planning activities are conducted with operations funding. Funding shortfalls for operations
is tracked through the Refuge Operating Needs System (RONS) database. Maintenance funding
is used to repair, replace, or remove existing facilities on refuges. Funding shortfalls for
maintenance projects are tracked though the Maintenance Management System (MMS) database.
(However, large scale projects costing more than $500,000 are funded through a third budget
line: construction.)
Congress has approved substantial funding increases for refuge operations and
maintenance over the last several years. Unfortunately, as the accompanying pie charts illustrate,
those increases are not nearly enough to fix all of the problems that have been identified. As a
result, the System continues to have large unmet operations funding needs and a significant
maintenance funding backlog.
(INSERT PIE CHARTS)
OPERATIONS
Protect Wildlife
The Protect Wildlife portion of the budget is crucial to the Service's ability to carry out its
"wildlife first" mission as provided by the National Wildlife Refuge System Improvement Act.
The funding shortfall in this area is preventing the Service from conducting hands-on biological
activities needed to properly conserve the 700 species of birds, 220 mammals, 250
reptiles and amphibians, more than 1,000 fish, countless species of invertebrates and plants, and
nearly 260 threatened or endangered species supported by the Refuge System. The Service is
severely
constrained in efforts to survey, inventory and monitor fish, wildlife, and plant populations;
detect significant population declines and disease problems; restore endangered or declining
species; and control invasive wildlife and plants.
(Pull quote: The funding shortfall in this area is preventing the Service from conducting handson biological activities needed to properly conserve the 700 species of birds, 220 mammals, 250
reptiles and amphibians, more than 1,000 fish, countless species of invertebrates and plants, and
nearly 260 threatened or endangered species supported by the Refuge System.)
Impacts of Funding Shortfall
The Service is severely hindered in its ability to carry out the Improvement Act's mandate
to survey, inventory and monitor the Refuge System's vast array of fish, wildlife and
plants.
Minimal, inconsistent or nonexistent biological program staffing prevents critically
needed work on the ground.
Opportunities to restore populations of endangered species or enhance populations of
seriously declining species to prevent the need for listing are lost.
Significant wildlife population declines and disease problems often go undetected.
Deficient information prevents expansion of public recreation programs such as hunting,
fishing and wildlife observation.
Currently, there is an average of one biologist position for every 700,000 acres of land in
Alaska; for the rest of the country, that ratio is one biologist for every 86,000 acres.
CARE’s Vision for the Refuge System
Improved funding will enable the Service to manage the System's diverse array of fish,
wildlife and plants based on the best scientific information provided by comprehensive
surveys, inventory and monitoring of these resources.
Declining species will receive necessary attention early enough to prevent the need for a
significant number of new listings.
Emphasis on listed species will reduce the risk of extinction and increase the potential for
down-listing and ultimate recovery.
More timely and better informed compatibility determinations will be readily available
and will allow additional public recreation programs such as hunting, fishing, and wildlife
observation.
Management can respond more effectively to disease outbreaks and harmful imbalances
in a more timely manner, minimizing adverse impacts.
FY 1999 Appropriation:
CARE FY 2000 Request:
$38 million
$58 million
Improve Habitat
The Improve Habitat portion of the budget is crucial to the Improvement Act's mandate to
maintain the health and integrity of the System's lands. Without healthy and diverse habitat,
there can be no wildlife. In some instances little intervention with natural processes is needed; in
others degraded habitat must be actively restored. At times, intensive manipulation of habitat is
needed. Often, lands that enter the Refuge System are remnant portions of critical habitats,
surrounded by seriously degraded, but potentially high quality habitat in need of restoration or
management. This funding shortfall has often resulted in habitat being managed by passive
neglect rather than through active management. This neglect has relegated these areas to remain
as low quality habitats for many years.
(Pull Quote: Often, lands that enter the Refuge System are remnant portions of critical habitats,
surrounded by seriously degraded, but potentially high quality habitat in need of restoration or
management. )
Impacts of funding shortfall
The Service is unable to carry out needed restoration on more than a million acres of
degraded wetland, forest, desert, and grassland habitats.
Necessary management of water levels to sustain productivity of about 5 million acres of
aquatic habitat is often deficient.
Invasive non-native plants are one of the leading threats to wildlife habitat, often
transforming entire ecosystems into unproductive habitat for native species. Lack of
funding prevents intensive efforts needed to eliminate these invaders.
The Service cannot adequately address protection of refuge water rights and air quality, or
take needed steps to investigate, monitor and cleanup contamination from hazardous
substances, landfill/dump sites, unexploded military ordinance, and leaking underground
storage tanks.
Currently, there is an average of one habitat specialist for every 25 million acres of land
in Alaska; for the rest of the country that ratio is one habitat specialist for every 37,000
acres.
CARE’s Vision for the Refuge System
The Refuge System supports a network of biologically healthy and diverse lands and
waters, maintaining and restoring intact natural systems where possible.
Habitat management and restoration will be effectively and efficiently guided by clear
habitat goals and objectives established in Comprehensive Conservation Plans and
Habitat Management Plans.
Reintroduction of fire and other natural processes into refuge ecosystems will help restore
native plant and animal communities.
More diverse, higher quality habitats supporting enhanced wildlife populations will
improve wildlife dependent recreation opportunities such as hunting, fishing and wildlife
observation.
The Service will systematically address protection of refuge water rights and air quality as
well as contaminant threats.
FY 1999 Appropriation:
CARE FY 2000 Request:
$73 million
$105 million
(Insert OPERATIONS bar graph)
Involve People
The Involve People portion of the budget is key to meeting the Improvement Act's
requirement that the System provide compatible wildlife dependent recreation involving hunting,
fishing, wildlife observation, photography, environmental education and interpretation as priority
uses of the System. This budget subaccount is also central to the Service’s ability to meet that
Act’s mandate for Comprehensive Conservation Planning. Funding in this area is also crucial to
implementation of the new Refuge Volunteer and Community Partnership Enhancement Act.
The funding shortfall severely hinders the broad array of activities involving: education;
recreation; public outreach; comprehensive refuge planning; compatibility determinations;
coordinating with state and local agencies, tribes, and other federal agencies; recruiting and
training volunteers; law enforcement programs; and Alaska subsistence issues.
(Pull quote: The funding shortfall severely hinders the broad array of activities involving:
education; recreation; public outreach; comprehensive refuge planning; compatibility
determinations; coordinating with state and local agencies, tribes, and other federal agencies;
recruiting and training volunteers; law enforcement programs; and Alaska subsistence issues.)
Impacts of funding shortfall
Potentially compatible educational and recreational opportunities are often severely
limited by incomplete planning efforts and lack of staff to initiate and manage programs.
The overwhelming majority of the more than 34 million annual visitors have no contact
with Refuge staff. Most refuges have no visitor centers and those that do can operate
only on a limited basis. Basic signs and brochures are often unavailable.
Volunteers contribute greatly to the operations, maintenance, public education, research
and other programs of the Refuge System. However, with adequate funding to implement
the Refuge Volunteer and Community Partnership Act, the Fish and Wildlife Service
could do an even better job recruiting and training volunteers.
The full potential of partnerships with local communities and landowners is not being
realized. As a result, wildlife and fish populations are reduced and economic
opportunities are lost.
Currently there is an average of one outreach specialist position for every 33,000 visitors
in Alaska while for the rest of the country that ratio is one outreach specialist for every
86,000 visitors.
CARE’s Vision for the Refuge System
The Refuge System will provide a unique link between local communities and the natural
world by being a focal point for wildlife education and recreation opportunities.
Wildlife recreation programs would be available to meet the current demand and would
not be limited by incomplete planning documents or delayed compatibility findings.
Facilities for wildlife observation, hunting and fishing would be accessible, available and
safe.
Comprehensive Conservation Plans will be completed for all stations with full public
involvement.
The Service will be able to increase support for Refuges and leverage increased returns on
funding by recruiting, training and utilizing thousands of new volunteers at Refuges
across the country.
Communications and outreach with other federal and state agencies, tribal governments
and private landowners will be greatly improved, allowing effective and congenial
partnerships.
FY 1999 Appropriation:
CARE FY 2000 Request:
$83 million
$85 million
MAINTENANCE
The National Wildlife Refuge System's infrastructure -- valued at nearly $5 billion -includes 5,000 buildings, 6,500 miles of roads, 2,700 miles of dikes, thousands of miles of
fencing, thousands of water control structures, and an array of vehicles and equipment. Much of
the System's facilities and equipment are in deteriorated condition. Although recent increases
have enabled the Service to begin addressing the problem, a $526 million maintenance backlog
remains.
Impacts of Funding Shortfall
Costly repairs frequently require allocating funds that were originally budgeted for other
projects which must then be canceled due to reallocation.
Productivity of managed habitat is not maximized, resulting in unrealized wildlife
population levels and missed recreational opportunities.
Visitor experiences are significantly diminished because interpretive signs, trails and
wildlife viewing platforms are nonexistent, often closed or poorly maintained due to lack
of funds.
Deteriorated vehicles and equipment constrain all phases of refuge management from
inventory and monitoring to habitat restoration and management to providing a positive
experience for visitors and a safer workplace for employees.
CARE’s Vision for the Refuge System
Facilities and equipment on Refuges would be maintained in good condition so work will
be accomplished in a safe, reliable and efficient manner, and all phases of refuge
operations will run smoothly. The government's $5 billion investment will be protected.
Costly emergency repairs and reallocation of funds will be minimized.
Project completion schedules will become more predictable and use of staff time will
become more efficient.
Dikes, canals, outlets, and water-management structures will be maintained, allowing
wetland management to occur on schedule. This will optimize the productivity of the
habitat and wildlife populations will increase.
Opportunities for wildlife-dependent recreation will increase.
The quality of visitor experiences will improve as a result of interpretive signs, trails and
wildlife viewing platforms being well-maintained and available.
FY 1999 Appropriation:
CARE’s FY 2000 Request:
$44 million
$54 million
(Insert MAINTENANCE bar graph)
On-the-Ground Impacts
In FY 98, Congress provided an additional $42 million to Refuges for Operations and
Maintenance. The Service used this money to initiate work on 2,288 projects. These projects
significantly improved the quality of fish and wildlife habitat, visitors experiences, and the
morale of refuge employees. Here are a few specific examples from hundreds of projects the
Service has either completed or initiated in the past year:
(Insert Pull quote: In FY 98, Congress provided an additional $42 million to Refuges for
Operations and Maintenance. The Service used this money to initiate work on 2,288 projects.)
At Ohio's Ottawa National Wildlife Refuge, the increased appropriations have allowed
the refuge staff to manage areas, such as the Woody's Roost Main Dike, that have been
unmanaged for the more than ten years. Refuge staff have restored more than 4,000 feet
of the main dike, by resloping the bank, digging out silt and installing a filter fabric and
rip rap. Fixing the main dyke also has enabled the Ohio Division of Wildlife to restore
an adjacent 2,400-acre marsh area. The combined projects will increase the productivity
of the area for black ducks and other wildlife. The refuge holds up to 70 percent of the
Mississippi Flyway population of black ducks.
The staff at the Turnbull National Wildlife Refuge in Washington state, began the process
of replanting native plant species with a seed drill on nearly 1,000 acres that have been
over-run by an exotic plant, Reed canary grass. Reed canary grass has taken over in many
wetland areas throughout the west and has made these areas useless habitat for many
native wetland dependent species. The “nearly new” seed drill replaced a worn-out drill
that was acquired from another agency as surplus equipment.
The auto tour route at New Jersey's Edwin B. Forsythe National Wildlife Refuge on a
receives more than 200,000 visitors each year. However, over the last several years the
dike that serves as the tour route has been severely damaged by storm erosion. With the
enhanced appropriations, the Refuge System has able to repair a 3,000-foot section of the
dike so that visitors can continue to enjoy wildlife on the auto tour. The main attraction
on the tour is the tens of thousands of migrating birds that use the marsh that the dike
created.
In California, at the Don Edwards San Francisco Bay National Wildlife Refuge, a portion
of the enhanced appropriations is being used to restore 400 acres of diked baylands and
former salt ponds to tidal wetlands. This will expand habitat for the endangered
California clapper rail, salt marsh harvest mouse and other more abundant species.
In Alaska at the Alaska Maritime Refuge, a project is now underway to benefit wildlife
by removing foxes and other non-native predators from selected islands in the Aleutians
and the Alaska Peninsula during winter months. Not only Alaskans, but also people in
the lower 48 states will benefit because this project will greatly improve the nesting
success of the Aleutian Canada goose and other migratory birds.
At Laguna Atascosa National Wildlife Refuge in Texas, enhanced funding has allowed
the Service to begin surveying endangered ocelot and jaguarundi populations in the
Lower Rio Grande Valley. Trapping and remote sensing camera surveys will be used to
determine the presence and density of these endangered cats. This project will enable the
Service to move forward with many goals outlined in their recovery plan. Working
relationships with private landowners will also improve as a result of the Service being
able to better define the population status and habitat needs of these cats.
The Julia Butler Hansen National Wildlife Refuge in Washington state, has been able to
have to replace the septic system with the additional funding which allowed them to
protect public health and water quality. Prior to the project, raw sewage ran into a slough
on the refuge. The refuge was not in compliance with county regulations and faced
potential fines. Now a sand filter system is in place and is working effectively to treat the
wastewater, bringing the refuge into compliance, and protecting valuable wildlife
resources. A second project at the refuge brought potable water to the refuge. Before
completion of the project, the refuge staff had to haul in bottled water.
CONCLUSION
The last major infusion of revenue for the National Wildlife Refuge System occurred
during the Carter Administration’s Bicentennial Land Heritage Program, during 1977 to 1981.
During that time, $180 million in additional funding was provided to rejuvenate the Refuge
System. This scale of effort needs to be repeated to create a healthy Refuge System so that the
country can fully celebrate the Refuge System’s 100th anniversary in 2003.
The following table shows the actual Operations and Maintenance funding levels for
fiscal years 1997 to 1999, and the CARE-recommended increases in funding levels through FY
2003 that would result in a total increase of $258 million over the next four years. This
recommended increase would allow the Fish and Wildlife Service to operate refuges at
approximately two-thirds capacity as assessed by refuge field managers.
(Insert “Fiscal Year” table)
Maintenance increases would not eliminate the large current backlog of maintenance
projects, but would stabilize facilities to prevent further deterioration. The recommended
increase would allow facilities and equipment to be improved from their current poor/fair
conditions to marginally good conditions that will allow reliable program delivery. This funding
level also secures the government’s long-term investment in the infrastructure and equipment on
the Refuge System, but is below the rate of investment recommended by private industry to
protect private equipment and facilities. While corporations commonly spend 2 to 4 percent of
their budgets each year on maintaining their long-term physical investment, the Service has had
the funds to allocate only 1 percent a year for this purpose.
Congress rose to CARE’s challenge in FY 98 -- approving a $42 million increase in
operations and maintenance funding for the Refuge System. Although the FY 99 increase was
smaller, the system also benefitted from funding under the Transportation Equity Act for the 21st
Century. This Act provided $17 million per year for five years (beginning in FY 99) for public
road and bridge maintenance projects on refuges. This funding will help reduce the maintenance
backlog somewhat. Maintenance funding over the past two years has been on target for reducing
the system’s backlog. Special efforts are now needed to similarly address critical operations
funding shortfalls of the Refuge System.
Recommended funding increases are sizable, but intentionally have been kept
conservative as an acknowledgment of current efforts to balance federal budgets. Realistically,
current estimates of funding needs by field station managers are expected to grow over time as
many refuges have only partially identified needs and opportunities. Additional needs and
opportunities will be revealed as a result of the comprehensive planning process and public
involvement, which has occurred on only a small number of refuges. Implementation of the
Refuge Improvement Act and the Refuge Volunteer and Partnership Act will require increased
funding levels, especially for operations. Demands for programs and services at refuges will also
likely increase as human population increases.
Increased funding for the National Wildlife Refuge System should be viewed as an
investment in a unique national treasure; one that will increase in value over time if we give it
proper attention. These lands provide major contributions to fish and wildlife conservation in
this country and in this hemisphere. The Refuge System also provides an opportunity for more
than 34 million people to associate with and enjoy the outdoors. Refuges are a foundation for
wildlife-dependent recreation and education activities that extend well beyond refuge boundaries.
(Insert pull quote: Increased funding for the National Wildlife Refuge System should be viewed as
an investment in a unique national treasure; one that will increase in value over time if we give it
proper attention.)