Service Manual Chapter 630 FW 6

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6

Topics
Overview

Responsibilities

TABLE OF CONTENTS
Sections
6.1 What is the purpose of this chapter?
6.2 What are concessions?
6.3 What is the scope and organization of the chapters about
concessions (630 FW 6 - 8)?
6.4 What is the overall policy?
6.5 What are the authorities for this chapter?
6.6 Who is responsible for the concessions policy and its
implementation?

OVERVIEW
6.1 What is the purpose of this chapter? This chapter establishes U.S. Fish and Wildlife
Service (Service) policy, scope, authorities, and responsibilities for concession operations within
the National Wildlife Refuge System (NWRS).
6.2 What are concessions? Concessions:
A. Are businesses operated by private enterprise that provide recreational, educational, and
interpretive enjoyment of our lands and waters for the visiting public.
B. Provide commercial visitor services, such as lodging, food, transportation, and supplies and
equipment for the enjoyment of the visiting public.
6.3 What is the scope and organization of the chapters about concessions (630 FW 6 8)?
A. Service Manual chapters 630 FW 6 through 8 apply to concession operations at national
wildlife refuges and at other NWRS sites.
B. The chapters do not apply to:
(1) NWRS lands and waters in Alaska. The Alaska National Interest Lands Conservation Act
(ANILCA) exempts Alaskan lands and waters from this policy. We administer permits and
contracts for those refuges under 50 CFR 36 Subpart D and Subpart F.
(2) Commercial recreation guides. We issue commercial special use permits (SUP) for
commercial recreation guides or special recreation permits (SRP) if a site under the Federal
Lands Recreation Enhancement Act charges a permit fee. However, if there are so many
commercial SUPs or SRPs issued that a site has difficulty managing them, the Project Leader
may consider issuing a concession contract or permit for recreation guides.

11/03/19
Supersedes Director’s Order 139, 11/07/2001

PUBLIC USE MANAGEMENT

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6
C. In addition to this chapter, which provides an overview of concessions, our concessions
policy also includes:
(1) 630 FW 7, Soliciting and Awarding Concession Contracts, and
(2) 630 FW 8, Administering Concessions.
6.4 What is the overall policy?
A. Project Leaders may allow concession contracts to provide or enhance appropriate and
compatible wildlife-dependent recreation and other activities detailed in the National Wildlife
Refuge System Improvement Act of 1997.
B. We allow private businesses to provide and operate facilities and services to accommodate
visitors.
C. We offer concessions only where visitation is sufficient for a sustainable venture, where they
will have minimal impact on refuge wildlife resources, and where additional recreational
opportunities will enhance the visitor’s appreciation of the Refuge System.
D. We generally require some capital investment by the concessionaire for structures, boat
docks, boats, etc., as approved in advance by the Project Leader.
E. Obtaining revenue from concessions is never as important to the Service as the refuge
objectives of protecting wildlife resources and providing necessary and appropriate services for
visitors at reasonable rates.
6.5 What are the authorities for this chapter?
A. National Wildlife Refuge System Administration Act of 1966, as amended by the National
Wildlife Refuge System Improvement Act of 1997 (16 U.S.C. 668dd-668ee).
B. Refuge Recreation Act of 1962 (16 U.S.C. 460k-460k-3).
C. Refuge Revenue Sharing Act (16 U.S.C. 715s).
D. Regulations on Concessions – General Provisions (50 CFR Part 25.61).

RESPONSIBILITIES
6.6 Who is responsible for the concessions policy and its implementation? See Table 6-1.
Table 6-1 Responsibilities for Concessions
These employees…
Are responsible for…
A. The Director
Approving or declining to approve our national concessions policy.

PUBLIC USE MANAGEMENT

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6
These employees…
B. The Chief – NWRS

Are responsible for…
(1) Developing and updating Service policy on concessions; and
(2) Providing staff who oversee concession management at the
national level to:
(a) Maintain national consistency in the concession
program;
(b) Develop strategies for requesting legislation related to
concessions;
(c) Establish general standards for paying the Service
franchise fees; and

C. The Chief, NWRS
Division of Visitor
Services and
Communications

(d) Oversee allocation of funds to Assistant Regional
Directors (ARD) – NWRS for cost recovery of necessary
expenses associated with prior year concession revenues.
(1) Keeping this chapter up-to-date;
(2) Providing national expertise and guidance to Regional and field
staff on concession management and operations; and
(3) Consulting with Solicitors, as needed, on the interpretation of
law, regulations, and policies related to concessions.

D. The Chief, NWRS
Division of Budget,
Performance, &
Workforce
E. Regional Directors

Allocating funds to ARDs – NWRS for cost recovery of necessary
expenses associated with prior year concession revenues.

(1) Approving plans to solicit concessions and approving
concession contract awards in their Regions;
(2) Maintaining consistency in the concession program within the
Regions and with national policy and guidance; and

F. Assistant Regional
Directors, NWRS (ARDs
– NWRS)

(3) Approving in writing any sale or transfer of interest to another
party, or placing appropriate conditions on any approval with input
from the Contracting Officer.
(1) Approving concession operations by:
(a) Working with the Project Leader and Concession
Manager to prepare a prospectus (solicitation of offers),

11/03/19
Supersedes Director’s Order 139, 11/07/2001

PUBLIC USE MANAGEMENT

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6
These employees…

Are responsible for…
(b) Reviewing proposals, and
(c) Selecting the best offer based on established criteria;
(2) Sending proposed contracts to the Regional Solicitor’s Office
for review before contract award;
(3) After receiving approval from the Regional Director and the
Solicitor on the proposed contract, working with a Contracting
Officer to award them;
(4) Overseeing concession contracts within the Regions;
(5) Signing modifications to concession contracts and substantive
administrative documents; and
(6) Ensuring that funds allocated by Headquarters for cost
recovery of necessary expenses are disbursed to the appropriate
field stations.

PUBLIC USE MANAGEMENT

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6
These employees…
G. Project Leaders

Are responsible for…
(1) Serving as the Concession Manager or assigning and
supervising a Concession Manager (see section 6.6H);
(2) Ensuring any proposed concession(s) on his/her duty station is
appropriate and compatible with the mission of the site;
(3) Performing National Environmental Policy Act (NEPA) reviews
for proposed concessions;
(4) Ensuring concessions comply with our Environmental
Management Program. The objectives of the Environmental
Management Program are to:
(a) Protect human health and environment;
(b) Incorporate best management practices in a
concessionaire’s operation, construction, maintenance,
acquisition, provision of visitor services, and other activities
under the concession contract; and
(c) Account for all concessionaire activities that have
potential environmental impacts (e.g., using recycled
products, using environmentally sensitive materials, battery
powered vs. gasoline powered engines); and
(5) Depositing all net receipts from concession revenues into the
Service’s Refuge Revenue Sharing account.

11/03/19
Supersedes Director’s Order 139, 11/07/2001

PUBLIC USE MANAGEMENT

FISH AND WILDLIFE SERVICE
PUBLIC USE MANAGEMENT
Public Use Management
Part 630: Public Use - General
Chapter 6 Overview of Concessions, Authorities, and Responsibilities
630 FW 6
These employees…
H. Concession Managers
(may be the Project
Leader or another
employee)

Are responsible for…
(1) Preparing public notices about intent to solicit concessions;
(2) Developing the prospectus based on the established activities
for the refuge;
(3) Working with the servicing Contracting staff to coordinate
posting the prospectus solicitation and contract selection process,
as well as to prepare the concession contract;
(4) Making recommendations to the Regional Chief about
awarding concession contracts;
(5) Prior to final contract approval, negotiating the franchise fee(s)
and percentage payment of gross receipts using the fair prevailing
rates for local, comparable enterprises;
(6) Coordinating with the Regional Engineering office and
concessionaire for facility improvements and cyclical maintenance
work that involve life safety issues and building code compliance
issues; and
(7) Administering the contract.

/sgd/ Margaret Everson
PRINCIPAL DEPUTY DIRECTOR
Date: November 3, 2019

PUBLIC USE MANAGEMENT