SAFE Final Report_12-07_Final

SAFEGUARDING
AMERICA’S FUTURE AND
ENVIRONMENT
HR 2804 / S 1601
Columbia University | SIPA

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DISCLAIMER
This document includes copyrighted material for educational purposes. These materials are included under the fair use exemption
of U.S. Copyright Law and are restricted from further use. This document has been prepared on an "All Care and No
Responsibility" basis. Neither the authors nor Columbia University make any express or implied representation or warranty as to
the currency, accuracy, or completeness of the information in this document.
TEAM MEMBERS
Shira Yashphe (Manager)
Daniel Chi Cook (Deputy Manager)
M. Umar Ashfaq
Nina Gyourgis
Lisa Kubotera
Savannah Gentry Miller
Danny Scull
Tiffany Sieler
Averill Q. Wickland
COVER PHOTO CREDIT
Danny Scull, 2015
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Table of Contents
Acronyms and Abbreviations 4
Definitions 5
Executive Summary 6
1. Introduction 7
2. Climate Change and Species Adaptation – The Problem 8
2.1 Disruption of Atmospheric Processes 8
2.2. Disruption of Ecological and Biological Processes 8
2.3. Biodiversity and the Implications of Biodiversity Loss 9
3. Political Analysis 10
3.1. Legislative History 10
3.2. Issues and Political Background 10
3.3. Support and Opposition for SAFE 10
4. SAFE - A Legislative Solution to a Complex Problem 12
4.1. Multilateral, Multi-Stakeholder Collaboration 12
4.2. The Formulation of Local Adaptation Plans 12
4.3. Review and Revision 13
5. SAFE in Action 14
5.1. Overview of First Year Implementation of SAFE within USFWS 14
5.2. Program Goals 14
5.3. Program Calendar 15
5.4. US Fish and Wildlife Service Organizational Structure with SAFE Proposed Changes 16
5.5. SAFE Staffing Implementation within the FWS 17
5.6. Contracting Plan 17
5.7. Program Budget 18
5.8. Allocation of Funding 18
6. Performance Management and Measuring Success 20
6.1. Overview of the Performance Management System 20
6.2. Action-Specific Methods 20
7. Conclusion 22
Appendix 23
References 25
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Acronyms and Abbreviations
DOI – Department of the Interior
EPA – Environmental Protection Agency
FEMA – Federal Emergency Management Agency
FTEs – Full-time Equivalents
FWS – United Stated Fish and Wildlife Service
NOAA – National Oceanic and Atmospheric Administration
NASA – National Aeronautics and Space Administration
SAFE – Safeguarding America’s Future and Environment Act, H.R. 2804
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Definitions
Adaptation: the process of adjustment to actual or expected climate and the effects of climate change, and with respect to fish,
wildlife, and plants, the protection, management, and conservation efforts designed to maintain or enhance the ability of fish,
wildlife, and plants to withstand, adjust to, or recover from the effects of extreme weather and climate change (including, where
applicable, ocean acidification, drought, flooding, and wildfire).
Center: The term ‘‘Center’’ means the National Climate Change and Wildlife Science Center.
Committee: The term ‘‘Committee’’ means the Advisory Committee on Climate Change and Natural Resource Sciences.
Ecological Processes: The term ‘‘ecological processes’’ means biological, chemical, or physical interaction between the biotic
and abiotic components of an ecosystem.
Habitat: The term ‘‘habitat’’ means the physical, chemical, and biological properties that fish, wildlife, or plants use for
growth, reproduction, survival, food, water, or cover (whether on land, in water, or in an area or region).
Habitat connectivity: The term ‘‘habitat connectivity’’ means areas that facilitate terrestrial, marine, estuarine, and freshwater
fish, wildlife, or plant movement that is necessary.
Indian tribe: The term ‘‘Indian tribe’’ has the meaning given to the term in section 4 of the Indian Self-Determination and
Education Assistance Act (25 U.S.C. 450b).
National Strategy: The term ‘‘National Strategy’’ means the National Fish, Wildlife, and Plants Climate Adaptation Strategy
released March 26, 2013.
Phenology: The study of periodic plant and animal life cycle events and how these are influenced by seasonal and inter-annual
variations in climate, as well as habitat factors (such as elevation)
Resilience, resilient: The terms ‘‘resilience’’ and ‘‘resilient’’ mean the ability to anticipate, prepare for, and adapt to changing
conditions and withstand, respond to, and recover rapidly from disruptions.
State: The term ‘‘State’’ means (A) a State of the United States; (B) the District of Columbia; (C) American Samoa; (D) Guam;
(E) the Commonwealth of the Northern 2 Mariana Islands; (F) the Commonwealth of Puerto Rico; and (G) the United States
Virgin Islands.
Working Group: The term ‘‘Working Group’’ means the National Fish, Wildlife, and Plants Climate Adaptation Strategy Joint
Implementation Working Group.
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Executive Summary
Many populations of fish, plants, and wildlife in the United States are being increasingly threatened by global climate change.
Rising temperatures, longer droughts, and more frequent storms are devastating habitats and food sources for a substantial number
of species. When these species cannot adapt quickly enough to their changing environments, their future resilience is placed in
doubt. In turn, this can impact the US economy negatively if the natural benefits these species provide, from water filtration to
pollination, are lost as their numbers decline. The Safeguarding America’s Future and Environment (SAFE) Act was proposed in
2011 to ensure federal oversight and government efficiency in developing solutions to protect, manage, and conserve the species
most vulnerable to climate change.
The SAFE Act is a non-regulatory federal bill that aims to streamline the existing framework for adaptation to climate change by
U.S. fish, wildlife, and plant species. If passed, the legislation would convene a Working Group comprised of federal, state, local,
and tribal representatives, as well as various non-governmental stakeholders, to implement long-term adaptation solutions.
Similarly, the SAFE Act promotes inter-agency federal coordination and data sharing, so as to reduce redundancy and establish
best conservation management practices. The National Strategy, referenced within the SAFE Act and released in 2013, details a
plan for coordinating local and regional species conservation plans.
Although the SAFE Act has yet to be passed into law by Congress, this report anticipates the need for a sufficient program design
to implement the bill’s goals in its first year of implementation. The U.S. Fish and Wildlife Service would be largely responsible
for overseeing SAFE’s implementation at the federal level, and $5.4 million would be allocated from its existing agency budget
for this purpose in the first year after passage. Primary goals of this initiative include preliminary conservation functions,
enhancing agency capacity, and collecting and disseminating scientific knowledge. Further specific actions would accompany
each of these objectives, and progress would be routinely measured and evaluated according to a benchmarked performance
management system. Future integration of the SAFE Act, and thus the security of countless U.S. species, would rest on the
successful and timely implementation of the program outlined in this report.
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1. Introduction
From the mounting threat of sea level rise to the occurrence of
extreme weather events, changing climactic patterns have
defined the last century. Climate alterations are intensified by the
rate at which they are occurring and pose significant risks to the
United States. These stressors jeopardize fundamental
components of the United States’ economy, security, and natural
resilience. Just as labor (human capital) and technology provide
value to the economy, so do the nation’s fish, wildlife, and plants
(natural capital). The Safeguarding America’s Future and
Environment (SAFE) Act highlights climate change as a pressing
concern and calls for multi-level, multi-agency governmental
collaboration to efficiently protect, manage, and conserve the
nation’s fish, wildlife, and plant species and the ecosystem
services they provide. Climate change is currently threatening
many species that cannot adapt as quickly as the climate is
changing.
The SAFE Act was proposed to provide a solution for adaptive conservation management. SAFE is a non-regulatory bill designed
to employ an integrated national approach for protecting and conserving natural resources by providing federal oversight and
coordination, reducing redundancy and costs, and thus increasing government efficiency and effectiveness1. Conservation
management efforts are currently undertaken by state governments and localities, but often with little input from other branches
of government. The SAFE framework would facilitate engagement between all levels of government, with inputs from local,
state-level, and tribal authorities, as well as non-governmental stakeholders. Specifically, the SAFE Act requests the organization
and prioritization of state and local adaptation plans based upon the National Fish, Wildlife, and Plants Climate Adaptation
Strategy, as well as the federal collection and dissemination of scientific data to foster best practices among a network of
conservation managers. (See Box 1 for information on “The National Strategy.”)
This report will elaborate upon the SAFE Act’s scientific necessity and proposed solutions, legislative framework, and a
prospective program implementation to accomplish the first-year goals of the bill. The National Strategy identifies eight goals,
encompassing both short-term and long-term objectives. As the implementation of the National Strategy is an integral component
of the SAFE Act, it will inform the foundation of the program design. For the purposes of this report, however, this design will
be limited in scope to the bill’s first-year deployment by one federal agency. The US Fish and Wildlife Service has been identified
as the model agency to oversee the first-year programming due to their longstanding involvement in federal conservation and
leadership in the SAFE Act’s and the National Strategy’s composition. Because the SAFE Act encompasses ongoing collaboration
between federal, state, local, and tribal governments, and other partners, its successful implementation will require cooperation
by all parties.
The National Strategy
In 2009, Congress recognized the need to draft a national
climate change adaptation strategy for fish, wildlife, and
plant species, delegating that responsibility to the White
House Council on Environmental Quality (CEQ) and the
U.S. Department of the Interior (DOI). Federal, state, and
tribal fish and wildlife agencies were tasked with drafting
the National Strategy, which was released on March 26,
2013. It identifies specific methods and blueprints for fish,
wildlife and plant species to adapt to climate change by
increasing resilience to extreme weather events, shifting
temperatures, and changing seasonal patterns. It was
written by a steering committee that included government
representatives from fifteen federal agencies, five state
fish and wildlife agencies, and two tribal commissions.
Since its release, the U.S. Fish and Wildlife Service
(USFWS) has led the implementation of the National
Strategy’s associated conservation plans and consultations
with local conservation managers.
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2. Climate Change and Species Adaptation – The Problem
The SAFE Act requires the cooperation and collaboration of diverse scientific bodies, federal agencies, and other partners to
incorporate up-to-date analyses into local conservation plans. Objective scientific understanding of the changing climate and its
ecological repercussions are critical for the legislation’s long-term success.
Climate is defined as the characteristic or average weather of a region. Climate change, then, refers to changes in these
characteristics or average weather, such as shifts in average annual rainfall or average temperature of a month or season in a given
region. Since global climate is simply the composite of all the regional climates on Earth, global climate change signifies a change
in Earth’s overall temperature or changes to Earth’s regular precipitation patterns. Although Earth’s climate is always changing,
its climate patterns have historically lasted for thousands of years. More recently, Earth’s temperature has risen over one degree
Fahrenheit during the last hundred years, which is an unprecedented rate. Many species cannot adapt sufficiently of their own
accord to this rate of changing climate. At present, species’ resilience to environmental disturbance is being challenged to a point
of moderate to extreme stress2,3
. As global climatic changes are expected to continue to alter ecological processes2,3
, the vitality
of whole ecosystems, as well as the services they provide, is being put at risk.
2.1 Disruption of Atmospheric Processes
Although some details are still being debated, the United Nations’ Intergovernmental Panel on Climate Change (IPCC) is certain
that cumulative emissions of carbon dioxide (CO2) and other greenhouse gasses have largely determined global mean surface
warming since the Industrial era. These gases, notably released as a byproduct of fossil fuel combustion, play a crucial role by
trapping a portion of earth's heat energy and preventing it from radiating back into space. As the amount of heat energy trapped
in the atmosphere increases, surface temperatures also increase. Average surface temperatures in the United States have increased
roughly 1.5 degrees Fahrenheit over the last century4.
Such a rapid shift in temperature has had profound effects on local and regional climates, primarily through the increased
frequency and severity of extreme weather events. This includes floods, hurricanes, seasonal changes, and wildfires, as well as
more subtle changes brought on by altered patterns of rainfall, snowfall, and river flow. Rapid accumulation of CO2 in the
atmosphere is also responsible for ocean acidification. Taken together, these and several other phenomena are changing habitat
conditions for many species, and introducing new biological, chemical, and physical stresses into their environments.
2.2. Disruption of Ecological and Biological Processes
Fish, wildlife, and plants experience a natural resilience threshold to environmental disturbances. For example, red squirrels,
native to coniferous forests throughout the United States, naturally feed on seeds and cones of evergreen trees; yet, due to their
natural food source depleting, they tailor their diet to consume whatever is available, such as bird eggs, fruit, and berries4
.
Behavior modifications like these are generally referred to as adaptations and are essential to the survival of a given species or
population. However, some species’ adaptation abilities cannot keep pace with their changing climate. For example, the Oyster
Mussel, native to Tennessee’s Cumberland River, has experienced an 80% decline in population over the last 25 to 50 years,
creating the risk that populations of this species may collapse within three generations. The distribution of Oyster Mussels has
declined for many reasons including, but not limited to, increased water temperatures, lack of oxygen in the water, host fish
abundance, and erosion of the river bank; these have interfered with the adhesive properties of rocks in the river, where mussels
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inhabit5
. Rapidly changing climatic conditions can diminish what habitat remains for the recovery of this species, and many others
that face increased threats.
Other disrupted biological processes include phenological changes, or shifts in the timing of fish, wildlife, and plants’ natural
cycles. In plants, warming temperatures can trigger early blooming. This could misalign with pollinators’ seasonal cycles and
ultimately result in reduced seed dispersal. Similarly, many animals base their mating and breeding behaviors on seasonal patterns.
If seasonal conditions occur in altered patterns due to the changing climate, offspring can be born without adequate food sources
in their surrounding environment. Another critical threat ecosystems face in the presence of rapidly changing climate patterns is
the decimation of keystone species. These unique species serve a disproportionately significant role within their ecosystem. A
decline in keystone species typically results in a domino effect that causes declines among other species, and ultimately, the
deterioration of an entire ecosystem. Keystone species represent a significant example of the ways in which ecosystems are
interdependent and how the stress of one species can be amplified to influence the economic, aesthetic, and cultural services and
benefits an ecosystem provides.
2.3. Biodiversity and the Implications of Biodiversity Loss
Biodiversity (or biological diversity) is the variety of life on Earth. This definition includes all living things and the ways they
interact with each other and their environment, and is categorized into three levels. The first level incorporates genetic diversity,
which constitutes the variety of genes in individual plants, animals, and microorganisms. The second level, species diversity,
addresses the variety of species within an ecosystem. The third level is ecosystem diversity, or the variety of biological processes,
habitats, and ecological communities.
Biologically diverse, or species-rich, ecosystems provide crucial services to humans, commonly referred to as ‘ecosystem
services.’ These services include the economic, social, and cultural benefits that humans gain from nature such as raw materials,
food, water, crop pollination, medicine, water and air filtration, recreation, and aesthetic beauty. In situations where species’
resilience is lost or extremely stressed, the encompassing ecosystem suffers a loss in its diversity of species. This loss is
compounded when an ecosystem’s populations are dramatically reduced by, for example, one or more severe weather events.
When a high percentage of individuals is lost, the degree and speed with which the population can recover declines as remaining
organisms are left with fewer gene variants to protect them and their offspring from disease and environmental stress. In addition,
survivor populations are more susceptible to predation, habitat loss, food scarcity and other detrimental factors, creating a
feedback mechanism for the population’s decline3,4,6
.
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3. Political Analysis
The SAFE Act was first proposed in 2011 by Sen. Sheldon Whitehouse (D-RI), who was concerned with the harmful impact of
rising coastlines and ocean temperatures on the commercial fishing industry in his home state of Rhode Island. The bill has been
introduced in Congress three times from 2011 to 2015 without passage, and is unlikely to pass in its current form. Opposition
stems from the unwillingness of some members of Congress to recognize the existence and/or consequences of global warming,
as well as a prevailing aversion towards government intervention. Congressional support for SAFE is generally split along party
lines, and passage of the bill would require a major shift in the political climate. Recently, non-governmental organizations and
industry lobbying groups have lined up on both sides of the issue to either support or oppose the bill’s passage.
3.1. Legislative History
Having been previously referred to several subcommittees in both the Senate and the House of Representatives, the SAFE Act
was subject to a Congressional hearing in 2013. In it, members of Congress questioned representatives of the Environmental
Protection Agency and the U.S. Fish and Wildlife Service to assess the impact and cost of the proposed legislation. Though the
bill was referred to more congressional subcommittees for further review in both the Senate and House, it ultimately expired in
2013 without once being brought to the floor for a vote. Sen. Whitehouse and House Rep. Matthew Cartwright (D-PA) organized
a similar push for the SAFE Act again in 2015, but as of the date of this report’s publication, the bill has been effectively tabled
for the current legislative session.
3.2. Issues and Political Background
The prioritization of environmental legislation differs significantly between the two major U.S. political parties, and the past few
legislative sessions have not been favorable for the consideration of bills like SAFE. Since climate change is explicitly mentioned
as the root cause of the problem that the SAFE Act intends to address, the bill stands little chance of being passed into law. The
political opposition to climate change may be due to the influence of oil, gas, and coal-industry funding for the lawmakers
controlling both chambers of Congress, as well as the dominant priorities within the Republican Party’s political agenda. Fossil
fuel companies view congressional acknowledgement of the dangers of climate change as a threat to their business model, and
are thus incentivized to lobby for obstruction of relevant legislation. Congressional support for environmental legislation has been
fiercely partisan in recent years, and will likely continue that way, unless campaign finance reform laws are enacted to minimize
the influence of fossil fuel lobbyist groups.
3.3. Support and Opposition for SAFE
Environmental opposition stems mostly from industrial groups representing chemical manufacturers, oil producers, mining
companies, timber companies, real estate developers, nuclear power industries, and electric utilities. Often, they resist federal
regulations that could affect their profitability and/or business prospects. Though there are no groups on record specifically
opposed to the SAFE Act, many active lobbying groups and think tanks such as the Heartland Institute have a long history of
opposing conservation legislation on these grounds. While few congress members would argue the merits of protecting wildlife,
for many it is considered a niche issue that is not a matter of high priority. As one prominent House Representative stated in
SAFE’s 2013 hearing:
“I do not support the Safeguarding America's Future and Environment (SAFE) Act. This legislation would
require implementation of a National Fish, Wildlife, and Plants Climate Adaptation Strategy. With a more than
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$17 trillion national debt, eroding confidence in the President's ability to secure our borders, deteriorating
geopolitical relations in the Middle East, foreign policy failures around the world and serious outstanding
concerns with the management of our federal agencies, I am quite confident there are other more pressing items
of national concern we can focus on.”7
Nonetheless, over thirty non-governmental organizations have officially endorsed SAFE, including several prominent
conservation-oriented groups. Some, such as the World Wildlife Fund, Defenders of Wildlife, Sierra Club, and National Audubon
Society support the effort to protect nature’s intrinsic value because it aligns with the groups’ stated missions of conservation
activism. Others have a more commercial interest, including the Outdoor Industry Association and the American Canoe
Association. It is worth noting that virtually all of these groups have a history of working with, and consistently advocating for,
environmental legislation authored by congressional Democrats8
. The current iteration of the SAFE Act has 23 Democratic co-
sponsors in Congress, but no Republican support.
The SAFE Act’s persistent proposal in Congress, as well as fluctuating environmental support and opposition, necessitates this
report’s exercise of implementation to remain prepared for the legislation’s passage and next steps. Although the bill remains
under congressional review at the time of this report’s publication, it will be treated and referred to for the remainder of this
analysis under the assumption that the legislation has been passed.
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4. SAFE - A Legislative Solution to a Complex Problem
Climate change adaptation represents a sophisticated problem that will require an equally multifaceted, but streamlined solution.
Currently, numerous Federal, State, local, and tribal agencies are engaged in wildlife conservation efforts and legislation for this
purpose. These include, but are not limited to, the U.S. Bureau of Land Management (BLM), the U.S. Fish and Wildlife Service
(FWS), the Environmental Protection Agency (EPA), the National Park Service (NPS), the U.S. Geological Survey (USGS), and
the National Oceanic and Atmospheric Administration (NOAA). SAFE aims to foster communication and coordination between
these groups and others to enable long-term climate-smart conservation.
It establishes a National Climate Change and Wildlife Science Center, as well as an Advisory Committee on Climate Change and
Natural Resource Sciences. The legislation’s Joint Implementation Working Group will call upon these resources to aid them in
revising the National Strategy every four years, as mandated by the bill. SAFE will draw on existing funds from the budget of the
FWS, NOAA, and the U.S. Forest Service to fund its administration. The legislation also intends to remain adaptive and flexible
to scientific innovation, and the SAFE Act’s National Strategy is constructed accordingly.
4.1. Multilateral, Multi-Stakeholder Collaboration
As specified in SAFE’s legislation, the President will establish a Joint Implementation Working Group within ninety days of the
bill being passed9. This Working Group will consist of the heads of federal and state agencies or departments that have authority
over the fish, wildlife, and plant resources of the US, as well as tribal representatives, and will have jurisdiction over the National
Strategy.
The National Strategy provides both high-level goals to inform policy-makers as well as specific actions for conservation agencies
and managers to follow10
. The goal of the National Strategy is to improve the management and conservation of fish, wildlife, and
plants by maintaining or improving their ability to withstand, adjust to, or recover from the effects of current or future extreme
weather conditions. Within one year of the bill’s passing, and no later than one year after each revision of the National Strategy,
the Working Group will develop a strategic plan to implement the National Strategy11
. This strategic plan will include broad
conservation strategies, a gap analysis, guidance for resource managers, ideas for interagency collaboration, as well as methods
for evaluating activities. The Working Group will provide options for public review and comment, and then submit the plan to
the President to be approved.
The Secretary of the Interior, state officials, tribal leaders, and other partner organizations, will establish a National Climate
Change and Wildlife Center12
. The Center will assess and develop scientific information, tools, strategies, and techniques to
support the Working Group, and other interested organizations, in addressing the effects of extreme weather and climate change
on fish, wildlife, and plants. In addition, the Advisory Committee on Climate Change and Natural Resource Sciences will aid the
Working Group by offering a multi-stakeholder perspective in the fields of ecology, biology, and climate change13
. The Secretary
of the Interior will establish this Advisory Committee and fill it with representatives from the private sector, public sector, and
non-governmental organizations.
4.2. The Formulation of Local Adaptation Plans
SAFE allows the Department of Interior and the Department of Commerce to allocate funding from existing grant programs to
states that submit wildlife climate adaptation plans14
. Each State will be eligible to be considered for funds within one year of
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SAFE’s passage and within one year of each revision of the National Strategy. The Secretary of the Interior and the Secretary of
Commerce will review and approve each state’s plan based on its consistency with the National Strategy as well as existing laws.
SAFE stipulates that these plans must be revised every four years and must involve public comment. The goal of this process is
to build capacity at the state-level for adaptive management. Instead of overseeing conservation practices directly, the federal
government will instead provide support in the form of these grants, the National Strategy, the Working Group, and the Science
Center.
To successfully aid wildlife climate change adaptation, it will be necessary to engage local conservation actors, making use of
their scientific knowledge and management expertise. Many of these actors have already started developing local adaptation
programs. The grants distributed under the SAFE Act will provide resources to implement these and future adaptation programs.
While federal agencies will provide strategic and scientific support, the majority of adaptive management efforts will be performed
either by state wildlife agencies or collaborations between different combinations of government, private, or non-profit
organizations. Rather than being a regulatory bill that mandates certain actions, placing federal agencies in a ‘command and
control’ position, SAFE is a non-regulatory solution that solidifies partnerships between federal and state agencies working on
conservation efforts. This report will focus on designing a program for the United States Fish and Wildlife Service, an agency
that was founded for the purpose of protecting, conserving, and managing fish, wildlife, and plants.
4.3. Review and Revision
The National Strategy and each state’s adaptation plan will undergo periodic review and revision15
. Each plan can be considered
a “living document,” subject to adaptation due to changes in climatic patterns, scientific understanding, as well as the social and
political environment. To address ecological and climatic variance, the programs established by the SAFE Act must remain
dynamic and innovative.
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5. SAFE in Action
As previously stated, local and federal agencies will work in tandem to develop SAFE’s climate change adaptation strategies for
fish, wildlife, and plants. However, a realignment of these agencies’ current missions at all levels of government will be required
in order to incorporate innovative solutions to the unique problems introduced by climate change. The Fish and Wildlife Service
will serve as the pilot agency to establish a first-year program to catalyze the legislation’s goals and objectives, and the program
design identifies three of the National Strategy’s time-sensitive goals and pairs them with feasible actions.
5.1. Overview of First Year Implementation of SAFE within USFWS
SAFE intends to build upon existing initiatives of governmental agencies to catalyze action and collaboration between different
tiers of the government. Furthermore, the National Strategy outlines key implementation goals related to conservation of wildlife
and habitat, capacity building at all agency levels, and increasing awareness regarding the impact of climate change. As
mentioned, several governmental agencies within the Working Group including NOAA, EPA, and others, will be working
together on the implementation of SAFE. However, the scope of the program outlined in this report is limited to the purview of
the U.S. Fish and Wildlife Service (FWS).
Given the key role of the FWS in the development of the National Strategy, and its subsequent involvement in the conservation
plans conceived and developed under the Strategy, it has been chosen as the lead agency to spearhead the implementation of
SAFE. Created in 1871, the agency is now considered a principal federal conservation agency with strong biological science
expertise. This pilot program design addresses the process by which the FWS will incorporate climate-sensitive capabilities to
facilitate stakeholders, advise in state and local conservation plan designs, and offer technical support. The timeline for the
proposed program design is limited to one year, and the following analysis includes specific steps required to complete each of
the three first-year goals of the program design, as well as the budgeting and staffing requirements they entail. A performance
management system for the first year of the program is also outlined. Beyond the first year of the legislation’s passage, the
outcome of the steps described will guide the required subsequent actions.
5.2. Program Goals
Without requiring any additional Congressional funding to the agency and without requiring funding from the grants referenced
in the legislation, the program design will address the most pertinent objectives outlined within the National Strategy. For the
program’s purposes, the strategy’s objectives are translated into three goals and six actions for the FWS.
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Figure 1: SAFE First Year Goals and Actions
The first goal, “Conserve”, entails identification and prioritization of conservation activities. This includes collecting existing best
conservation practices employed by the local, regional, and national levels of FWS, and identifying federal and state wildlife
agencies for collaboration. The second goal, bolstering management capacity for implementation, or “Enhance Capacity”, requires
incorporating the SAFE Act’s mission into existing FWS personnel responsibilities and employment of SAFE-focused
professional training. The third goal, “Increase Knowledge”, entails optimizing agency technical support. The goal’s two actions
include identifying climate change trends in concert with other Federal agencies and the establishment of a wildlife climate change
adaptation database.
In order to achieve the agency’s internal transition to address these goals and develop climate-smart capacity for conservation
plans, the program has a complementary master calendar, staffing plan, and budget plan for translating goals into specific actions.
5.3. Program Calendar
In constructing a calendar for the first year of implementation for the SAFE Act, all six preliminary actions were considered. Each
action was then broken down to the tasks that would be completed in the first twelve months. The time needed to complete each
of these steps was considered, compiled, and charted to provide clear depictions of the timelines. If properly adhered to, this
master calendar sets up FWS for the next year of planning so that SAFE can be implemented as effectively as possible.
For example, the steps required to implement the collection of best conservation practices are, first, to appoint the Deputy Assistant
Director from FWS headquarters Ecological Services department as manager of the collection process. Next, the designated staff
from headquarters will create criteria for “Initial Review Standards” to be used by the eight regional FWS Ecological Services
departments. These departments will then contact local offices, and those local offices will identify best conservation practices
within their respective jurisdictions. Finally, localized, climate-specific best practices will be submitted by the eight regional
departments to the manager.
Note: Individual action calendars of each goal can be referred to in the Appendix.
Figure 2: First Year Master Calendar
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5.4. US Fish and Wildlife Service Organizational Structure with SAFE Proposed Changes
Within the existing FWS organizational structure, the current Director reports to the Department of the Interior’s Assistant
Secretary for Fish, Wildlife, and Parks and has direct authority over FWS headquarters and eight Regional Directors. The
Headquarters-based Assistant Directors provide policy, program management, and administrative support to the Director. The
Regional Directors then guide the agency’s policy and program implementation, supervise fieldwork, and coordinate activities
with partners. To make effective progress on SAFE’s first-year goals, all three goals have been outlined and assigned to several
departments for completion (shown below). This alignment adheres to the central principle of the SAFE Act, which emphasizes
the coordination of different agencies and their efforts to ensure species’ adaption to climate change.
Figure 3: US Fish Wildlife Service Organization Chart
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5.5. SAFE Staffing Implementation within the FWS
Upon implementation of the SAFE Act within the first year at FWS, the Office of the Director will engage the legislation’s Joint
Implementation Working Group, along with other federal agencies such as the EPA, NOAA, and USGS. Engagement with the
Working Group will allow the FWS to develop a more effective approach to the six actions outlined within the program’s three
goals.
Eight of the agency’s departments will be directly involved in the actions outlined in order for FWS to adopt the National Strategy.
These eight departments are responsible for workflows that align with the respective actions required by the program, which are
described below. Within each department, staffing needs are quantified in full-time equivalents (FTEs). These FTEs will
incorporate the SAFE mission into their current FWS duties. The finalized numbers and divisions were taken from the official
FWS budget from fiscal year 2015.
Figure 4: Staffing Plan within FWS Headquarters
Ten FTEs would be required to identify federal and state wildlife agencies for collaboration and assess climate change trends
recognized by those agencies, the actions associated with the goal of “Conservation.” To “Enhance Capacity”, twenty FTEs
would be allocated for the development and implementation of SAFE-focused professional training workshops and lectures to
incorporate the SAFE mission into existing FWS personnel responsibilities. An additional five FTEs would be tasked with
implementing the “Increase Knowledge” goal through the collection of best conservation practices at the regional and federal
level and aiding an external contractor in the development of a climate change adaptation database. Overall, thirty-five FTEs
would be dedicated to the incorporation of SAFE in the FWS’ daily operations.
5.6. Contracting Plan
As previously mentioned, a wildlife climate change adaptation database will be established in the first year under the goal of
‘Increasing Capacity.’ The information that would populate the database would be formulated through research and collected by
designated FTEs within the Science Applications Department and the four other conservation-oriented departments. However,
the creation and design of the online portal for the database will be outsourced to a contractor. This activity will be overseen and
managed by the Deputy Assistant Director of Science Applications program from the Adaptive Science team. The FWS will use
17

the Department of Interior’s Design-Build, Construction and Construction Services Multiple Award Task Order Contract
(MATOC) Ordering Guide, thus delegating roles and responsibilities to comply with the needs of the database creation16.
5.7. Program Budget
The US Fish and Wildlife Service will not receive any additional federal funding for the implementation of SAFE, but will make
use of its existing budget allocation. Each year, FWS is required to submit a Budget Justification to the Department of the Interior
which, upon review, is then submitted to Congress, where the appropriate amount of agency funding is then determined. By
examining the FWS Budget Justification, the ‘actual budget’ can be used to estimate the cost of SAFE implementation. This
‘actual budget’ indicates the specific budget amount spent by the FWS during a given year. Because 2015 is the most recent fiscal
year available, the expenses from that year will be used. As the first-year program design targets the FWS headquarters, the funds
allocated to that particular office are used for the following program estimates. In fiscal year, 2015, this amounted to a sum of
$40 million17
. As the FWS would be incorporating SAFE programming into their existing operations, only 15% of this budget
would be allocated specifically for the bill’s implementation.
The funding available for SAFE implementation will be divided so that each of the three aforementioned goals would be
appropriately funded to satisfy their first-year objectives. Allocation of funds for each goal is proportional to the number of FTEs
required to achieve it. Therefore, $1.4 million will go toward ‘Conserve’, $2.8 million toward ‘Enhance Capacity’, and $1.2
million toward ‘Increase Knowledge’. The graph below illustrates the FWS headquarters budget as divided between these three
overarching goals.
Figure 5. Budget Allocation for the Implementation of SAFE within the FWS Headquarters
5.8. Allocation of Funding
Typically, funding is initially allocated to both personnel and ‘other than personnel services’ (OTPS). While each aforementioned
goal would receive funds that encompass both areas, there is a differentiation in allocation of funds between the different goals.
For example, “Conserve” would have additional funds to be used towards travel. This determination was made because travel
would be necessary in order to identify existing conservation practices at regional and federal levels. Such travel would involve
conference attendance and in-person meetings with conservation practitioners with the purpose of sharing information and
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strengthening collaboration and partnership. With regard to the “Enhance Capacity” goal, supplies would represent a larger portion
of the budget due to the manuals and training books required to employ SAFE-focused professional training. However, the goal
of “Increase Knowledge” would have a different budget designation because it is the only goal that requires the hiring of an
outside contractor to assist in establishing a wildlife climate change adaptation database.
The table below illustrates the final line-item budget. The total for each of the categories is shown, as well as the overall budget
allocated for the implementation of SAFE within FWS, totaling $5.44 million.
Figure 7: FWS Line-Item Budget for First Year SAFE Program
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6. Performance Management and Measuring Success
The implementation and overall impact of the SAFE Act on the Fish and Wildlife Service must be effectively measured to evaluate
its success. Progress for the six actions outlined will be measured using a performance management system. A key component of
this system will be a management innovation process by which director-level feedback can systematically address problems or
capitalize on identified opportunities.
The SAFE performance management system will be integrated and aligned with current methods already in place within the FWS.
The management strategy will stem from the six overarching actions which are defined and observed at the director level. The
progress of the goals will then be monitored by managers who will review progress in relation to determined benchmarks and
provide feedback to teams and individuals with assigned responsibilities.
6.1. Overview of the Performance Management System
The six first-year actions of the SAFE Act within FWS will utilize four performance activities. Namely, data will be measured,
collected, and reported, and periodic feedback will be integrated into the sub-actions for each goal. Measures of performance will
identify needs, identify goals and provide a means to monitor progress in relation to determined milestones. Identification of
needs will occur through surveying future users and scheduling a series of benchmarks in route to the completion of each output.
This activity will occur at the level of individuals and their immediate managers performing action specific functions. Collection
of data will be accomplished through meetings and the compiling of interim product outputs as appropriate. These actions will
occur primarily at the managerial level with an initial bi-weekly frequency. Reporting will be achieved by managers who directly
oversee progress and receive reports from individuals performing specific sub-actions. Managers will then submit monthly reports
to their department Director, who will review the progress being reported. Finally, quarterly feedback will originate from
department directors and will first address the questions of whether or not key milestones have been achieved. Specific projects
can then be considered either completed, on-track, or requiring managerial intervention. In the third case, the director will
determine necessary adjustments and changes to the original plan. Feedback may consist of alterations of the original plan for
each task, modifying or adding benchmarks, or the adjustment of collection and reporting schedules.
6.2. Action-Specific Methods
The performance management system deployed within the FWS will employ the aforementioned performance activities for each
action to be completed within the first year. As shown below, the specific performance measures that will be completed for each
action are specific to each action. Outputs that are generated for ongoing and dynamic use by FWS employees will first have their
scope determined by end-user surveys. Outputs which result in the identification of a series of elements are represented by lists.
Uniquely, the establishment of a climate change adaptation database will not only have its scope determined by surveys, but it
will be the only goal that is also measured by the development of software, described below as coding, but inclusive of all
intermediate elements in the creation of this specific software platform.
The collection of data for all actions will include meetings between managers and teams or individuals responsible for defined
activities. Actions which include the creation of a specific product will have their intermediate outputs collected and shared.
Notably, the collection of best practices will have information primarily collected through meetings, as composed lists will be
incorporated into the developing database.
20

Reporting for all goals will include monthly progress reports communicating collected information between managers and
directors. The identification of climate trends and potential collaborators with whom the FWS could partner will require analysis
from the managerial level, but because the product takes the form of a list, it is not expected to initially require monthly meetings
with a director. The more complex outputs, whose directions are expected to require supervisory input, would require meetings
between managers and directors to ensure their effective implementation.
Feedback for every action will originate from the director level. If determined benchmarks are met and directors are satisfied,
each action could then move forward with the original schedule. Similarly, each action may be modified if determined to be
sluggish or ineffectual. Finally, the goals of ‘Establishing a Database’ and ‘Identifying Partners’ are planned to be completed after
one year, at which point the director would officially consider those actions to be complete.
These performance measures should allow seamless transition from the agency’s first year of program implementation to long-
term success of all agencies in addressing the concerns identified by the SAFE Act and its National Strategy. By measuring,
monitoring, reporting, and innovating, this program will provide a model for associated and partnering agencies and organizations
to emulate within their own structures.
Figure 8: Performance Measurement Framework
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7. Conclusion
Studies undertaken by United States research institutions and federal agencies, as well as international scientists, have observed
that climate change is negatively impacting biodiversity and threatens the ecosystem services they provide18
. Local and regional
communities, as well as the national economy, are already experiencing the effects associated with fish, wildlife, and plant
populations that have been compromised and degraded by climate change. The SAFE Act intends to unify and maximize the
efficiency of wildlife adaptation activities that have begun to take form but are still disparate. The primary method by which the
SAFE Act will achieve this will be through the coordination of federal, state, local, and tribal governments and the implementation
of the National Strategy.
Creating innovative and effective adaptation plans will require input and effort from the FWS as well as collaboration with other
agencies to build the foundation on which to implement the SAFE Act. The FWS will implement the first-year goals of SAFE to
protect, manage, and conserve fish, wildlife, and plants. After the first year of SAFE implementation within FWS, specific
adaptation plans can then be researched, designed, and executed as a result of the first-year goals and actions being successfully
completed.
As climate change continues to incur greater ecological repercussions, conservation plans can no longer remain “static,” but must
instead embrace flexible management with continuously updating research. The long-term initiatives identified within the first-
year plan will can help shift conservation strategies towards more dynamic models of management, where climatic trends combine
with ecological parameters in determining adaptation plans. Effective federal engagement, as well as multi-stakeholder
cooperation, will ensure the successful merging of conservation and climate science, as well as the continued survival of the fish,
wildlife, and plant species upon which the United States depends.
22

Appendix
Schedules for Individual Goals
Conserve: Identify Federal and State Wildlife Agencies for Collaboration
Conserve: Collect Best Conservation Existing Practices at the Regional and Federal Level
Enhance Capacity: Incorporate SAFE Mission into Existing FWS Personnel Responsibilities
23

Enhance Capacity: Employ SAFE-focused Professional Training
Increase Knowledge: Establish a Wildlife Climate Change Adaptation Database
Increase Knowledge: Identify Climate Change Trends While Working with Other Federal Agencies
24

References
1 “SAFE Act (H.R. 2804).” GovTrack.us. Accessed November 20, 2016. https://www.govtrack.us/congress/bills/114/hr2804
[hereafter SAFE]
2 “Climate Impacts on Ecosystems.” EPA. Accessed November 20, 2016. https://www.epa.gov/climate-impacts/climate-
impacts-ecosystems.
3 “Integrated Risk and Uncertainty Assessment of Climate Change Response Policies.” Climate Change 2014 Mitigation of
Climate Change, 2014, 151-206. Accessed November 20, 2016. doi:10.1017/cbo9781107415416.008.
4 “Red Squirrel.” NWF. Accessed November 29, 2016. http://www.nwf.org/wildlife/wildlife-library/mammals/red-squirrel.aspx
5 “The International Union for Conservation of Nature and Natural Resources Red List of Threatened Species Epioblasma
capsaeformis”. Accessed November 29, 2016. http://www.iucnredlist.org/details/7866/0
6 “Birds in a Changing Climate.” Birds in a Changing Climate | EnvironmentalScience.org. Accessed November 20, 2016.
http://www.environmentalscience.org/birds-changing-climate.
7 “U.S. Senate Committee on Environment & Public Works Subcommittee on Water and Wildlife Legislative Hearing.”
Accessed November 20, 2016.
https://www.voxgov.com/documents/34853571?SearchURL=/search/results&t=%22safeguarding+america%27s+future+and+e
nvironment%22
8 Center for Responsive Politics. Accessed November 20, 2016. http://www.opensecrets.org/industries../indus.php?ind=Q11.
9 SAFE, 8
10 National Fish, Wildlife, and Plants Climate Adaptation Strategy. Association of Fish and Wildlife Agencies, Council on
Environmental Quality, Great Lakes Indian Fish and Wildlife Commission, National Oceanic and Atmospheric Administration,
U.S. Fish and Wildlife Service. National Fish, Wildlife, and Plants Climate Adaptation Partnership. 2012. 7-10.
11 SAFE, 8
12 SAFE, 14
13 SAFE, 15
14 SAFE, 20
15 SAFE, 23
16 “Standard Operating Procedures & Ordering Guide.” December 2009. Accessed November 20, 2016.
https://www.fws.gov/contracts/docs/DOI MATOC SOP and Ordering Guide.pdf.
17 “Budget Justifications and Performance Information Fiscal Year 2017.” 2016. Accessed November 20, 2016.
https://www.fws.gov/budget/2016/FY2017_FWS_Greenbook.pdf.
18 “Integrated Risk and Uncertainty Assessment of Climate Change Response Policies.” Climate Change 2014 Mitigation of
Climate Change, 2014, 151-206. Accessed November 20, 2016. doi:10.1017/cbo9781107415416.008.
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