The Evolution of the U.S. National Wildlife Refuge System and the Doctrine of Compatibility

This paper reviews the history and evolution of the United States National Wildlife Refuge System, perhaps the largest and oldest wildlife conservation system in the world. The refuge system is guided by the doctrine of compatibility, which permits only those uses on a refuge which are "compatible with the purposes for which the refuge was established." Memoranda and documents spanning the last 100 years were examined, and key refuge personnel interviewed, to understand the historical basis for current refuge policies. Topics of particular importance were the origins of the compatibility doctrine, the origin and meaning of the sanctuary concept, and the means by which refuges were established.
Through time, the refuge system has shifted from a policy of strict protection of wildlife to a policy of integrating public uses of refuges. The doctrine of compatibility has evolved to facilitate public use of wildlife refuges. Increasingly, the needs for recreation and resource use have interfered with the purposes far which refuges were established. A legislative solution may be needed to ensure that these areas are protected and remain viable reserves for wildlife and natural communities.
The sustained conservation of reserve areas often represents a delicate balance between political constraints and biological realities. The examination of the National Wildlife Refuge System not only has ramifications for North American conservation, but illustrates many of the problems and pitfalls facing conservation and land management worldwide.     

Species‐level persistence probabilities for recovery and conservation status assessment

Recovery planning for species listed under the U.S. Endangered Species Act has been hampered by a lack of consistency and transparency, which can be improved by implementing a standardized approach for evaluating species status and developing measurable recovery criteria. However, managers lack an assessment method that integrates threat abatement and can be used when demographic data are limited. To help meet these needs, we demonstrated an approach for evaluating species status based on habitat configuration data. We applied 3 established persistence measures (patch occupancy, metapopulation capacity, and proportion of population lost) to compare 2 conservation strategies (critical habitat designated by the U.S. Fish and Wildlife Service and the Forest Service's Carbonate Habitat Management Strategy) and 2 threat scenarios (maximum limestone mining, removal of all habitat in areas with mining claims; minimum mining, removal of habitat only in areas with existing operations and high‐quality ore) against a baseline of existing habitat for 3 federally listed plant species. Protecting all area within the designated critical habitat maintained a similar level (83.9–99.9%) of species persistence as the baseline, whereas maximum mining greatly reduced persistence (0.51–38.4% maintained). The 3 persistence measures provided complementary insights reflecting different aspects of habitat availability (total area, number of patches, patch size, and connectivity). These measures can be used to link recovery criteria developed following the 3 R principles (representation, redundancy, and resilience) to the resulting improvements in species viability. By focusing on amount and distribution of habitat, our method provides a means of assessing the status of data‐poor species to inform decision making under the Endangered Species Act.     

Minimum area requirements for an at‐risk butterfly based on movement and demography

Determining the minimum area required to sustain populations has a long history in theoretical and conservation biology. Correlative approaches are often used to estimate minimum area requirements (MARs) based on relationships between area and the population size required for persistence or between species’ traits and distribution patterns across landscapes. Mechanistic approaches to estimating MAR facilitate prediction across space and time but are few. We used a mechanistic MAR model to determine the critical minimum patch size (CMP) for the Baltimore checkerspot butterfly (Euphydryas phaeton), a locally abundant species in decline along its southern range, and sister to several federally listed species. Our CMP is based on principles of diffusion, where individuals in smaller patches encounter edges and leave with higher probability than those in larger patches, potentially before reproducing. We estimated a CMP for the Baltimore checkerspot of 0.7–1.5 ha, in accordance with trait‐based MAR estimates. The diffusion rate on which we based this CMP was broadly similar when estimated at the landscape scale (comparing flight path vs. capture‐mark‐recapture data), and the estimated population growth rate was consistent with observed site trends. Our mechanistic approach to estimating MAR is appropriate for species whose movement follows a correlated random walk and may be useful where landscape‐scale distributions are difficult to assess, but demographic and movement data are obtainable from a single site or the literature. Just as simple estimates of lambda are often used to assess population viability, the principles of diffusion and CMP could provide a starting place for estimating MAR for conservation.     

Use of standardized methods to improve extinction-risk classification

Standardized classification methods based on quantifiable risk metrics are critical for evaluating extinction threats because they increase objectivity, consistency, and transparency of listing decisions. Yet, in the United States, neither federal nor state agencies use standardized methods for listing species for legal protection, which could put listing decisions at odds with the magnitude of the risk. We used a recently developed set of quantitative risk metrics for California herpetofauna as a case study to highlight discrepancies in listing decisions made without standardized methods. We also combined such quantitative metrics with classification tree analysis to attempt to increase the transparency of previous listing decisions by identifying the criteria that had inherently been given the most weight. Federally listed herpetofauna in California scored significantly higher on the risk-metric spectrum than those not federally listed, whereas state-listed species did not score any higher than species that were not state listed. Based on classification trees, state endemism was the most important predictor of listing status at the state level and distribution trend (decline in a species’ range size) and population trend (decline in a species’ abundance at localized sites) were the most important predictors at the federal level. Our results emphasize the need for governing bodies to adopt standardized methods for assessing conservation risk that are based on quantitative criteria. Such methods allow decision makers to identify criteria inherently given the most weight in determining listing status, thus increasing the transparency of previous listing decisions, and produce an unbiased comparison of conservation threat across all species to promote consistency, efficiency, and effectiveness of the listing process.     

Interacting Effects of Landownership, Land Use, and Endangered Species on Conservation of Southwestern U.S. Rangelands

Abstract:  The contemporary southwestern United States is characterized by fire-adapted ecosystems; large numbers of federally listed threatened and endangered species; a patchwork of federal, state, and private landownership; and a long history of livestock grazing as the predominant land use. I compared eight sites in southern Arizona and New Mexico to assess the interacting effects of these characteristics on conservation practices and outcomes. There was widespread interest and private-sector leadership in restoring fire to southwestern rangelands, and there is a shortage of predictive scientific knowledge about the effects of fire and livestock grazing on threatened and endangered species. It was easier to restore fire to lands that were either privately owned or not grazed, in part because of obstacles created by threatened and endangered species on grazed public lands. Collaborative management facilitated conservation practices and outcomes, and periodic removal of livestock may be necessary for conservation, but permanent livestock exclusion may be counterproductive because of interactions with land-use and landownership patterns.     

Avian Conservation under the Endangered Species Act: Expenditures versus Recovery Priorities

Abstract: Budget constraints require the U.S. Fish and Wildlife Service to prioritize species for recovery spending. Each listed species is ranked according to the degree of threat it faces, its recovery potential, and its taxonomic distinctness. We analyzed state and federal government expenditures for recovery of threatened and endangered birds ( n = 85 species) from 1992 to 1995 to determine if the priority system was being followed. Although recovery spending correlated with priority rank, priority rank explained <5% of the variation in spending. A small number of the same moderately ranked species dominated expenditures each year (41–79% of total annual budgets). Species with wide distributions, high recovery potential, and captive breeding programs received the most funding, and more funding than their priority ranks dictated. Island species received significantly less funding than expected based on priority rank. Twelve species, 10 of which resided on islands, received <$5000 at least once from 1992 to 1995. Recovery spending was unrelated to degree of threat, taxonomic distinctness, and migratory status. There also was no relationship between land-purchase expenditures and priority ranks. To improve the relationship between recovery spending on threatened and endangered birds and their priority rank, significant changes need to be made within the private sector ( less litigation and special-interest lobbying  ), U.S. Congress (increased budget and reduced earmarking  ), and the U.S. Fish and Wildlife Service (restructuring of regional offices and increased accountability).     

A Critical Assessment of the Use of Surrogate Species in Conservation Planning in the Sacramento‐San Joaquin Delta,California (U.S.A.)

Abstract: Conservation biology has provided wildlife managers with a wealth of concepts and tools for use in conservation planning; among them is the surrogate species concept. Over the past 20 years, a growing body of empirical literature has demonstrated the limited effectiveness of surrogates as management tools, unless it is first established that the target species and surrogate will respond similarly to a given set of environmental conditions. Wildlife managers and policy makers have adopted the surrogate species concept, reflecting the limited information available on most species at risk of extirpation or extinction and constraints on resources available to support conservation efforts. We examined the use of surrogate species, in the form of cross‐taxon response‐indicator species (that is, one species from which data are used to guide management planning for another, distinct species) in the Sacramento‐San Joaquin Delta, California (U.S.A.). In that system there has been increasing reliance on surrogates in conservation planning for species listed under federal or state endangered species acts, although the agencies applying the surrogate species concept did not first validate that the surrogate and target species respond similarly to relevant environmental conditions. During the same period, conservation biologists demonstrated that the surrogate concept is generally unsupported by ecological theory and empirical evidence. Recently developed validation procedures may allow for the productive use of surrogates in conservation planning, but, used without validation, the surrogate species concept is not a reliable planning tool.     

Correlations among Extinction Risks Assessed by Different Systems of Threatened Species Categorization

Abstract:  Many different systems are used to assess levels of threat faced by species. Prominent ones are those used by the World Conservation Union, NatureServe, and the Florida Game and Freshwater Fish Commission (now the Florida Fish and Wildlife Conservation Commission). These systems assign taxa a threat ranking by assessing their demographic and ecological characteristics. These threat rankings support the legislative protection of species and guide the placement of conservation programs in order of priority. It is not known, however, whether these assessment systems rank species in a similar order. To resolve this issue, we assessed 55 mainly vertebrate taxa with widely differing life histories under each of these systems and determined the rank correlations among them. Moderate, significant positive correlations were seen among the threat rankings provided by the three systems (correlations 0.58–0.69). Further, the threat rankings for taxa obtained using these systems were significantly correlated to their rankings based on predicted probability of extinction within 100 years as determined by population viability analysis (correlations 0.28–0.37). The different categorization systems, then, yield related but not identical threat rankings, and these rankings are associated with predicted extinction risk.     

A Critique of the Recovery of Greenback Cutthroat Trout

Abstract: There are no examples of recovery of fish listed under the U.S. Endangered Species Act, but the number of federally threatened greenback cutthroat trout (  Oncorhynchus clarki stomias ) populations is approaching the delisting goal. We evaluated recovery of this subspecies in light of developing theory in conservation biology and with regard to recovery of other salmonids in the inland western United States. Four of the five criteria used to define populations that would count toward delisting appeared to underestimate the risk of extinction of those populations. Typically, recovery goals for numbers of greenback cutthroat trout populations were less stringent than those for other inland salmonids petitioned for listing or listed as threatened under the Endangered Species Act and were comparable to those for a federally endangered species. Before delisting is considered, we propose that historical populations be replicated in additional waters to protect genetic diversity and that existing populations be enlarged to reduce their vulnerability to demographic variation, to increase their access to refugia, and to permit reestablishment of mobile life histories. Existing stocks should also be evaluated to determine whether they represent distinct population segments.     

Contribution of the Natura 2000 Network to Biodiversity Conservation in Italy

Abstract:  The Natura 2000 network is the most important conservation effort being implemented in Europe. Nevertheless, no comprehensive and systematic region—or nationwide evaluation of the effectiveness of the network has been conducted. We used habitat suitability models and extent of occurrence of 468 species of vertebrates to evaluate the contribution of the Natura 2000 network to biodiversity conservation in Italy. We also estimated the population size of 101 species inside the Natura 2000 network to assess its capacity to maintain or improve the population status of listed species. In general the Italian Natura 2000 did not seem to integrate existing protected areas well. The Natura 2000 network increased from 11% to 20% the area devoted to conservation in Italy and the coverage provided to areas with high biodiversity. Nevertheless, some areas with high numbers of species were devoid of conservation areas, and more than 50% of the highly irreplaceable areas were not considered in the system. Moreover, the Natura 2000 network cannot maintain 44–80% (depending on the taxa considered) of the species in a "favorable conservation status" under World Conservation Union Red List criteria. The Natura 2000 network is probably stronger than the results of our analyses suggest. The system is based on a site-specific expert-based strategy and is driven by direct and detailed knowledge of local diversity. Nevertheless, if Natura 2000 is taken to represent the final point of all the EU conservation policies, it will inevitably fail. Its role in conservation could be enhanced by integrating the Natura 2000 system into a more general strategy that considers natural processes and the ecological and evolutionary mechanisms underlying these processes.     

Planting State-Listed Endangered and Threatened Plants

The distribution and planting of state-listed endangered and threatened plants is outlawed in most states of the United States, yet listed species are commonly used in landscaping and restorations. There is a need to re-examine policy regarding planting and propagation of endangered and threatened plants outside of planned recovery efforts. Potential advantages associated with increased outplanting of rare species include (1) improved public education and relations; (2) demographic security derived from creation of new populations; (3) provision of new, appropriate gene-flow opportunities; (4) applied research opportunities; and (5) ability to regulate a currently uncontrolled activity. Potential disadvantages are (1) confusion of natural and planted populations; (2) bureaucratic problems with protection of planted populations; (3) potential far inappropriate gene flow between natural and planted populations causing outbreeding depression and loss of genetic purity of natural populations; and (4) extension of the natural geographic and ecological range of the species. Policies, regulations, and nursery practices exist that would maximize the potential advantages and minimize the risks associated with the distribution of endangered and threatened plants. Policy considerations discussed include selection of appropriate species, production of appropriate and high-quality genetic stock, and regulation of outplanting programs. I weigh the risks and benefits of a program that would allow the general public access to some state-listed plants for natural landscaping. I conclude that a less restrictive but enforceable set of policies and regulations may be preferable to the status quo.     

Law and Large Carnivore Conservation in the Rocky Mountains of the U.S. and Canada

The law governing large carnivores in the western U.S. and western Canada abounds in jurisdictional complexity. In the U.S., different federal and state laws govern large carnivore conservation efforts; species listed under the Endangered Species Act are generally protected, whereas those subject to state regulation can be hunted, trapped, or otherwise taken. Neither federal nor state environmental or land management laws specifically protect large carnivores, though these laws can be used to protect habitat. A similar situation prevails in Canada. Canadian federal law does not address large carnivore conservation, although the national parks provide some secure habitat. Provincial laws vary widely; none of these laws specifically protect large carnivores, but some provisions can be invoked to protect habitat. Although the two nations have not entered any bilateral treaties to protect large carnivores, several species receive limited protection under multilateral treaty obligations. Despite these jurisdictional complexities, the existing legal framework can be built upon to promote large carnivore conservation efforts, primarily through a legally protected reserve system. Whether the political will exists to utilize fully the available legal authorities remains to be seen.     

Critique of the Evolutionarily Significant Unit as a Definition for "Distinct Population Segments" under the U.S. Endangered Species Act

The U.S. Endangered Species Act grants protection to species, subspecies, and "distinct population segments" of vertebrate species. Historically, Congress included distinct population segments into endangered species legislation to enable the U.S. Fish and Wildlife Service to implement a flexible and pragmatic approach in listing populations of vertebrate species. Recently, the U.S. Fish and Wildlife Service and the National Marine Fisheries Service have proposed a policy that would narrowly define distinct population segments as evolutionarily significant units based on morphological and genetic distinctiveness between populations. Historically, the power to list species or populations as distinct population segments has been used to tailor management practices to unique circumstances; grant varied levels of protection in different parts of a species' range; protect species from extinction in significant portions of their ranges as well as to protect populations that are unique evolutionary entities. A strict redefinition of distinct population segments as evolutionarily significant units will compromise management efforts because the role of demographic and behavioral data will be reduced. Furthermore, strictly cultural, economic, or geographic justifications for listing populations as threatened or endangered will be greatly curtailed.     

Biodiversity Conservation and Indigenous Land Management in the Era of Self‐Determination

Abstract: Indigenous people inhabit approximately 85% of areas designated for biodiversity conservation worldwide. They also continue to struggle for recognition and preservation of cultural identities, lifestyles, and livelihoods—a struggle contingent on control and protection of traditional lands and associated natural resources (hereafter, self‐determination). Indigenous lands and the biodiversity they support are increasingly threatened because of human population growth and per capita consumption. Application of the Endangered Species Act (ESA) to tribal lands in the United States provides a rich example of the articulation between biodiversity conservation and indigenous peoples' struggle for self‐determination. We found a paradoxical relationship whereby tribal governments are simultaneously and contradictorily sovereign nations; yet their communities depend on the U.S. government for protection through the federal‐trust doctrine. The unique legal status of tribal lands, their importance for conserving federally protected species, and federal environmental regulations' failure to define applicability to tribal lands creates conflict between tribal sovereignty, self‐determination, and constitutional authority. We reviewed Secretarial Order 3206, the U.S. policy on “American Indian tribal rights, federal–tribal trust responsibilities, and the ESA,” and evaluated how it influences ESA implementation on tribal lands. We found improved biodiversity conservation and tribal self‐determination requires revision of the fiduciary relationship between the federal government and the tribes to establish clear, legal definitions regarding land rights, applicability of environmental laws, and financial responsibilities. Such actions will allow provision of adequate funding and training to tribal leaders and resource managers, government agency personnel responsible for biodiversity conservation and land management, and environmental policy makers. Increased capacity, cooperation, and knowledge transfer among tribes and conservationists will improve biodiversity conservation and indigenous self‐determination.     

Quantifying the importance of patch-specific changes in habitat to metapopulation viability of an endangered songbird

A growing number of programs seek to facilitate species conservation using incentive-based mechanisms. Recently, a market-based incentive program for the federally endangered Golden-cheeked Warbler (Dendroica chrysoparia) was implemented on a trial basis at Fort Hood, an Army training post in Texas, USA. Under this program, recovery credits accumulated by Fort Hood through contracts with private landowners are used to offset unintentional loss of breeding habitat of Golden-cheeked Warblers within the installation. Critical to successful implementation of such programs is the ability to value, in terms of changes to overall species viability, both habitat loss and habitat restoration or protection. In this study, we sought to answer two fundamental questions: Given the same amount of change in breeding habitat, does the change in some patches have a greater effect on metapopulation persistence than others? And if so, can characteristics of a patch (e.g., size or spatial location) be used to predict how the metapopulation will respond to these changes? To answer these questions, we describe an approach for using sensitivity analysis of a metapopulation projection model to predict how changes to specific habitat patches would affect species viability. We used a stochastic, discrete-time projection model based on stage-specific estimates of survival and fecundity, as well as various assumptions about dispersal among populations. To assess a particular patch's leverage, we quantified how much metapopulation viability was expected to change in response to changing the size of that patch. We then related original patch size and distance from the largest patch to each patch's leverage to determine if general patch characteristics could be used to develop guidelines for valuing changes to patches within a metapopulation. We found that both the characteristic that best predicted patch leverage and the magnitude of the relationship changed under different model scenarios. Thus, we were unable to find a consistent set of relationships, and therefore we emphasize the dangers in relying on general guidelines to assess patch value. Instead, we provide an approach that can be used to quantitatively evaluate patch value and identify critical needs for future research.     

Importance of Well-Designed Monitoring Programs for the Conservation of Endangered Species: Case Study of the Snail Kite

Abstract:  Monitoring natural populations is often a necessary step to establish the conservation status of species and to help improve management decisions. Nevertheless, many monitoring programs do not effectively address primary sources of variability in monitoring data, which ultimately may limit the utility of monitoring in identifying declines and improving management. To illustrate the importance of taking into account detectability and spatial variation, we used a recently proposed estimator of abundance (superpopulation estimator) to estimate population size of and number of young produced by the Snail Kite ( Rostrhamus sociabilis plumbeus ) in Florida. During the last decade, primary recovery targets set by the U.S. Fish and Wildlife Service for the Snail Kite that were based on deficient monitoring programs (i.e., uncorrected counts) were close to being met (by simply increasing search effort during count surveys). During that same period, the Snail Kite population declined dramatically (by 55% from 1997 to 2005) and the number of young decreased by 70% between 1992–1998 and 1999–2005. Our results provide a strong practical case in favor of the argument that investing a sufficient amount of time and resources into designing and implementing monitoring programs that carefully address detectability and spatial variation is critical for the conservation of endangered species.     

Assessing ecological function in the context of species recovery

Species interactions matter to conservation. Setting an ambitious recovery target for a species requires considering the size, density, and demographic structure of its populations such that they fulfill the interactions, roles, and functions of the species in the ecosystems in which they are embedded. A recently proposed framework for an International Union for Conservation of Nature Green List of Species formalizes this requirement by defining a fully recovered species in terms of representation, viability, and functionality. Defining and quantifying ecological function from the viewpoint of species recovery is challenging in concept and application, but also an opportunity to insert ecological theory into conservation practice. We propose 2 complementary approaches to assessing a species’ ecological functions: confirmation (listing interactions of the species, identifying ecological processes and other species involved in these interactions, and quantifying the extent to which the species contributes to the identified ecological process) and elimination (inferring functionality by ruling out symptoms of reduced functionality, analogous to the red-list approach that focuses on symptoms of reduced viability). Despite the challenges, incorporation of functionality into species recovery planning is possible in most cases and it is essential to a conservation vision that goes beyond preventing extinctions and aims to restore a species to levels beyond what is required for its viability. This vision focuses on conservation and recovery at the species level and sees species as embedded in ecosystems, influencing and being influenced by the processes in those ecosystems. Thus, it connects and integrates conservation at the species and ecosystem levels.     

Diversity and community structure of butterfly of Arignar Anna Zoological Park, Chennai, Tamil Nadu

Investigation was carried out on the diversity of butterfly fauna in selected localities of conservation and breeding center of Arignar Anna Zoological Park (AAZP), Chennai, Tamil Nadu. Atotal of 56 species were recorded, 15 of them belonged to Pieridae, 12 Nymphalidae, 9 Satyridae, 8 Papilionidae, 7 Danaidae, 3 Lycaenidae and 1 species each belonged to the families Acraeidae and Hesperidae. Qualitatively and quantitatively Pieridae family were comparatively dominant than that of other families. The notable addition to the 25 more species listed during this observation were compared to previous field survey. Comparison of butterfly species distribution between the different localities revealed that butterfly species richness was higher at mountain region with 52 species and lowest of 25 species at public visiting areas. Visitor's activities may be that reason for effects on butterfly distribution and lack of vegetation. Each five endemic and protected species (i.e. endangered) listed under the Wildlife (Protection)Act were highlighted greater conservation importances of the AAZP. It is suggest that butterfly species diversity generally increase with increase in vegetation and declines with the increase in disturbance.     

The Biopolitics of the Mt. Graham Red Squirrel (Tamiasciuris hudsonicus grahamensis)

This essay presents (1) a short status summary on the population biology of the Mt. Graham red squirrel on the Pinaleño Mountains, Arizona; (2) a biopolitical history of the controversy surrounding the Mt. Graham red squirrel, the Endangered Species Act (ESA), and the astronomical consortium that has constructed two telescopes within the squirrel's critical habitat; and (3) a discussion of specific biopolitical issues related to the squirrel's taxonomy, minimal viable habitat, critical habitat, population viability analysis, risk management, and Congressional actions to by-pass its own laws. The biopolitical history shows how specific administrative actions within the U.S. Forest Service and the U.S. Fish and Wildlife Service and special interest politics by the Arizona Congressional delegation and the University of Arizona prevented an accurate assessment of the status of the Mt. Graham red squirrel and implementation of alternatives to insure its survival and recovery. Conservation biology can influence management decisions when not overridden by special-favor politics. To improve the influence of the science of conservation biology, I recommend that the ESA language protecting isolated populations (Section 3) remain intact and that the ESA make a legal distinction (Section 4) between minimal viable habitat and critical habitat. To improve the application of the ESA, I recommend that Congress require committee hearings before it can exempt a project from federal environmental laws; that fraudulent Biological Opinions automatically trigger a complete review of long-term viability; that conservation biologists prepare a handbook for the Fish and Wildlife Service on risk assessment techniques; that all data and analyses within the Biological Opinion include a ranking by their statistical and biological certainty as well as a worst-case scenario; and that each Biological Opinion be certified as risk averse.