This document contains a description of a multi-year national R&D program aimed at completing a Design Feasibility Study (DFS) for a Muon Collider and, with international participation, a Reference Design Report (RDR) for a muon-based Neutrino Factory. It also includes the supporting component development and experimental efforts that will inform the design studies and permit an initial down-selection of candidate technologies for the ionization cooling and acceleration systems. We intend to carry out this plan with participants from the host national laboratory (Fermilab), those from collaborating U.S. national laboratories (ANL, BNL, Jlab, LBNL, and SNAL), and those from a number of other U.S. laboratories, universities, and SBIR comp...