A proposal to conserve black-footed ferrets and the prairie dog ecosystem

Prairie dogs (Cynomys spp.) have been poisoned throughout this century because of grazing competition with livestock. Recent evidence showed these early claims were exaggerated, but animal control was already entrenched in government policy. As a result, ongoing government subsidized poisoning has reduced prairie dogs to about 2% of their former distribution. The reduction of prairie dogs diminished species diversity in the arid grasslands of North America, including the potential extinction of the black-footed ferret (Mustela nigripes). Cost-benefit analysis revealed that poisoning costs more than any grazing benefits accrued. This analysis did not consider the long-term costs of reversing ecosystem degradation, the intangible value of biological diversity as a public benefit, or the depletion of biotic resources as a loss of actual or potential wealth. The government presently finances the poisoning policy and the preservation of endangered species like the black-footed ferret, two apparently conflicting programs. We, therefore, propose an integrated management plan that considers both interests. We propose that federal monies allocated to the poisoning program be converted into a rebate for ranchers who manage livestock while preserving the prairie dog community. This would redirect funds and personnel already allocated to prairie dog eradication to an incentive for ranchers who manage for livestock and wildlife. Livestock interests and grassland biotic diversity would both benefit.     

PLANNING FOR DROUGHT: THE ROLE OF STATE GOVERNMENT1

ABSTRACT: Although droughts are a frequent occurrence over much of the United States, response by state and federal government has been ineffective and poorly coordinated. Recently, several states have recognized the value of drought emergency planning and have developed plans to assist them in responding more effectively to prolonged periods of water shortage. These states have created an organizational structure to coordinate the assessment and response activities of state and federal agencies. Each state's drought response plan is unique since each state's water supply and management problems, and their consequent impacts, are unique. The drought response plans developed by Colorado, South Dakota and New York are reviewed here in detail. We recommend that other states affected by frequent and severe water shortages also develop drought emergency plans. These plans will enhance state government's ability to implement effective measures in a timely manner and, ultimately, may provide added incentive for the federal government to develop the national drought response plan called for by the General Accounting Office in 1979.     

Multiple Species Habitat Conservation Planning: Goals and Strategies of Local Governments

Drawing from experiences gained from the development and implementation of four approved habitat conservation plans (HCPs), I describe the goals and strategies used by the nine local government members of the Riverside County Habitat Conservation Agency (RCHCA) to reconcile conflicts among a rapidly growing population and the need to conserve the habitat of a number of declining wildlife species in western Riverside County, California. Several important goals have been pursued by RCHCA member governments in their sponsorship of multiple-species habitat conservation plans (MSHCPs), including (1) establishing certainty and control over future uses of land; (2) eliminating project-by-project negotiations with federal and state wildlife agencies; (3) coordinating mitigation obligations under the Endangered Species Act, Clean Water Act, California Environmental Quality Act, and other federal and state laws; (4) reducing conflict and litigation resulting from land development activities; and (5) ensuring that wildlife conservation activities are conducted in a manner that permits local governments to perform those functions necessary to maintain public health, safety, and welfare. I also describe the emergence of strategies by local governments to achieve MSHCP goals, including (1) use of an inclusive planning process that seeks to build consensus among affected interests; (2) extensive involvement of federal and state wildlife agencies in the preparation of MSHCP documents; (3) management of public lands to support MSHCP conservation objectives; (4) encouragement of voluntary conservation by private property owners through incentive programs; and (5) active solicitation of federal and state funding for MSHCP implementation activities.     

Conservation Opportunities for Securing In-Stream Flows in the Platte River Basin: A Case Study Drawing on Casper,Wyoming’s MunicipalWater Strategy

The Platte River Basin consists of tributaries largely in Wyoming, Colorado and Western Nebraska, with the main stem in Central Nebraska. Critical wildlife habitat on the main stem requires additional in-stream flows. The watershed is one hosting multiple resources, a variety of users, and managed by an array of state and federal agencies. This study proposes a basis for securing in-stream flows for the Platte River. Candidate water supply mechanisms are suggested based on the way in which Casper, Wyoming secured water for its municipal needs. Canal lining is compared to a dam project, increasing reservoir storage, and purchasing water rights, with consideration also made for water pricing to reduce municipal use. Comparisons are based on economic efficiency, potential water conservation, and property rights criteria. Canal lining, coupled with demand management, is shown to conserve water best, given the set of efficiency and cost criteria for in-stream flow enhancement. The approach offers an opportunity to organize the water supply choice context in a transboundary watershed when quantitative information is limited.     

MONTANA'S EXPERIENCE IN RESERVING YELLOWSTONE RIVER WATER FOR INSTREAM BENEFICIAL USES - LEGAL FRAMEWORK1

ABSTRACT: The Yellowstone River historically has produced an ample supply of high quality water which is widely used for irrigation, municipal and industrial purposes, recreation, and fish and wildlife. Recently, energy companies have attempted to obtain water rights in the Yellowstone basin for energy conversion facilities in coal-rich southeastern Montana. Existing users fear that energy diversions will impair their rights, preclude expansion of present beneficial users, degrade water quality, and adversely effect fish and aquatic life. In response to these concerns, the Montana Legislature enacted several laws to regulate water appropriations in the Yellowstone River basin, including means by which state and federal agencies could apply for reservations of water for future beneficial uses. Thereafter, both the Montana Fish and Game Commission and the State Water Quality Bureau formally requested relatively large instream flows to protect fish and wildlife and to maintain water quality. This paper describes Montana's experience through December of 1977 with the administration of water in the Yellowstone basin under these laws; emphasis is placed on the major requests for instream flows. The final resolution of the reservation applications, and the related ramifications, will be discussed in a future paper.     

A Critical Review of Assumptions About the Prairie Dog as a Keystone Species

Cynomys spp.) have been labeled as keystone species because of their influence on biological diversity and ecosystem function. However, the validity of several assumptions used to support keystone status is questionable. We review the strength of the evidence and the magnitude of the prairie dog's effects on ecosystem structure and function. We use this review to reevaluate the keystone role for prairie dogs. Our goal is to encourage sound management of the prairie dog ecosystem by improving the ecological foundation of their keystone status. Our review confirms that prairie dogs affect a number of ecosystem-level functions but that their influence on prairie vertebrates may be less than previously suggested. Species richness and abundance patterns were variable among plants, mammals, and birds and were not consistently higher on prairie dog colonies compared to uncolonized areas. In addition, only nine of the 208 species listed in the literature as observed on or near prairie dogs colonies had quantitative evidence of dependence on prairie dogs. Abundance data indicated opportunistic use of colonies for an additional 20 species. A total of 117 species may have some relationship with prairie dogs, but we lacked sufficient data to evaluate the strength of this relationship. The remaining 62 species may be accidental or alien to the system. Despite our conclusion that some prairie dog functions may be smaller than previously assumed, collectively these functions are quite large compared to other herbivores in the system. We suggest that prairie dogs also provide some unique functions not duplicated by any other species and that continued decline of prairie dogs may lead to a substantial erosion of biological diversity and landscape heterogeneity across prairie and shrub-steppe landscapes. Thus, we concur that keystone status for prairie dogs is appropriate and may aid conservation efforts that help protect species dependent on prairie dogs and support other important ecosystem functions.     

Reconciling local control with appropriate scale in Norwegian moose management

In a landscape of fragmented private ownership, the need to coordinate game management across large areas presents challenges for landowners and public agencies alike. This paper describes how a recent reorganization of moose management in Norway achieves landscape-level planning while maintaining a tradition of local management by hunting teams. These two seemingly contradictory imperatives – coordinating wildlife management across large areas while keeping benefits and control in the hands of local resource users – are resolved through a nesting of management institutions, wherein the state serves a regulatory function and mid-level government (the county) serves to facilitate inter-local cooperation. This paper documents how the system is structured and describes the balance of incentives that enable the system to work. Information was gathered via interviews with staff at the Norwegian Directorate for Nature Management (now called the Norwegian Environment Agency), with wildlife management officials at the municipal level, with hunters, and from the most recent regulatory documents.     

Public acquisition versus private stewardship for wetland protection: an evaluation of the St Lawrence valley national wildlife refuge,USA

Private stewardship can be an efficacious strategy for wetland protection in areas not subject to development pressure, provided landowners are environmentally conscious and a safety net of regulations has been enacted. Public acquisition is better directed toward areas undergoing rapid land‐use change. The St Lawrence Valley National Wildlife Refuge proposed by the United States Fish and Wildlife Service was ill‐advised, because wetlands are not being converted to other uses, landowners are engaging practices that promote and enhance wildlife, and wetlands are protected from serious losses by state regulations. A less costly and less contentious role for governmental agencies in such situations is to initiate and support activities of private landowners.     

Bioaccumulation of selenium from natural geologic sources in western states and its potential consequences

Ecological impacts of water-quality problems have developed in the western United States resulting from the disposal of seleniferous agricultural wastewater in wetland areas. Overt effects of selenium toxicosis occurred at five areas where deformities of wild aquatic birds were similar to those first observed at Kesterson National Wildlife Refuge in the west-central San Joaquin Valley of California. These areas are: Tulare Lake Bed Area, California, Middle Green River Basin, Utah, Kendrick Reclamation Project Area, Wyoming, Sun River Basin, Montana, and Stillwater Wildlife Management Area, Nevada. Potential for ecological damage is indicated at six more sites in Oregon, Colorado, the Colorado/Kansas border, and South Dakota out of 16 areas in 11 states where biological tissue data were collected. This conclusion is based on the fact that selenium bioaccumulated in bird livers to median levels that had exceeded or were in the range associated with adverse reproductive effects. Selenium concentrations in samples of fish and bird eggs support these conclusions at a majority of these areas. Reason for concern is also given for the lower Colorado River Valley, although this is not exclusively a conclusion from these reconnaissance data. Biogeochemical conditions and the extent of selenium contamination of water, bottom sediment, and biota from which this assessment was made are given here. In a companion paper, the biogeochemical pathway postulated for selenium contamination to take place from natural geologic sources to aquatic wildlife is defined.     

Bird Mortality in Oil Field Wastewater Disposal Facilities

Commercial and centralized oilfield wastewater disposal facilities (COWDFs) are used in the Western United States for the disposal of formation water produced from oil and natural gas wells. In Colorado, New Mexico, Utah, and Wyoming, COWDFs use large evaporation ponds to dispose of the wastewater. Birds are attracted to these large evaporation ponds which, if not managed properly, can cause wildlife mortality. The U.S. Fish and Wildlife Service (USFWS) and the U.S. Environmental Protection Agency (EPA) conducted 154 field inspections of 28 COWDFs in Wyoming from March 1998 through September 2008 and documented mortality of birds and other wildlife in 9 COWDFs. Of 269 bird carcasses recovered from COWDFs, grebes (Family Podicipedidae) and waterfowl (Anatidae) were the most frequent casualties. Most mortalities were attributed to oil on evaporation ponds, but sodium toxicity and surfactants were the suspected causes of mortality at three COWDFs. Although the oil industry and state and federal regulators have made much progress in reducing bird mortality in oil and gas production facilities, significant mortality incidents continue in COWDFs, particularly older facilities permitted in the early 1980’s. Inadequate operation and management of these COWDFs generally results in the discharge of oil into the large evaporation ponds which poses a risk for birds and other wildlife.     

State Forest Practice Regulatory Programs: An Approach to Implementing Ecosystem Management on Private Forest Lands in the United States

/ Implemented in the context of a long history ofintense public debate, forestry practices applied on private forest land areregulated in some form by 38 states. State regulatory activities can involvemany agencies implementing numerous regulatory laws, a single forestry agencyadministering a comprehensive regulatory program, or a combination of thetwo. Regulatory programs are designed to protect resources such as soils,water, wildlife, and scenic beauty. Program administration often involvesrule promulgation, harvest plan reviews, coordination of interagency reviews,and pre- and postharvest on-site inspections. Forest practice rules usuallyfocus on reforestation, forest roads, harvest procedures, and wildlifehabitat protection. Emerging regulatory trends include growth of multiagencyregulatory authority and associated jurisdictional conflicts, increasedtendencies to narrowly specify standards in statutes and rules, emergence ofcontingent regulations, growing sensitivity to processes enabling theadoption of new forest practice technologies and an ability to addresscumulative effects, interest in collaborative rule-making stemming fromheightened concern over legalization of administration processes, and growingconcern over the constitutional foundations for regulatory programs and thegovernment and private sector cost of implementing such programs.KEY WORDS: Ecosystem management; Forestry practices; Private landowners;Regulatory programs; State government     

Tensions between Fiscal Accountability Policy and Collaborative Management Implementation in State Wildlife Agencies

Exploration of collaborative management implementation at two state wildlife agencies (SWAs) found that government fiscal accountability requirements create tensions that negatively impact collaborative plan implementation. Interview-derived insights highlight state policy misalignments between the support of collaborative governance and the application of governmental accountability controls. Tensions from this misalignment can negatively impact implementation and disrupt relationships among the SWA management staff, their partners, and their procurement staff. Rather than working as a part of a unified state interest to implement collaborative governance, procurement processes function as an internal regulatory authority that addresses different state policies. Informant comments identify dissimilar tension levels within the two SWAs, potentially due to the organizational location of procurement staffs. Confirmation of the influence of an SWA procurement staff organizational location on collaborative implementation requires further investigation. Tensions identified here likely exist in other natural resource management agencies and represent an understudied aspect of governmental collaborative management capacity often overlooked in collaborative planning and management scholarship.     

A factor analytic study of attitudinal structure and its impact on rural landowners' access policies

Previous research has shown that rural landowners' hunter access policies are determined in large part by their attitudes towards hunters, legal liability, conservation, and economic incentives. The results of this study support this research and indicate that East Texas, USA, landowners' decisions to allow or restrict access are based, in part, on attitudes toward hunter behavior, hunting as a social activity, leasing as a management practice, and a perceived obligation toward wildlife stewardship. Attitude-based profiles of landowners who adopted one of four access policies are compared.     

Mixed-Grass Prairie Canopy Structure and Spectral Reflectance Vary with Topographic Position

Managers of the nearly 0.5 million ha of public lands in North and South Dakota, USA rely heavily on manual measurements of canopy height in autumn to ensure conservation of grassland structure for wildlife and forage for livestock. However, more comprehensive assessment of vegetation structure could be achieved for mixed-grass prairie by integrating field survey, topographic position (summit, mid and toeslope) and spectral reflectance data. Thus, we examined the variation of mixed-grass prairie structural attributes (canopy leaf area, standing crop mass, canopy height, nitrogen, and water content) and spectral vegetation indices (VIs) with variation in topographic position at the Grand River National Grassland (GRNG), South Dakota. We conducted the study on a 36,000-ha herbaceous area within the GRNG, where randomly selected plots (1?km² in size) were geolocated and included summit, mid and toeslope positions. We tested for effects of topographic position on measured vegetation attributes and VIs calculated from Landsat TM and Advanced Spaceborne Thermal Emission and Reflection Radiometer (ASTER) data collected in July 2010. Leaf area, standing crop mass, canopy height, nitrogen, and water content were lower at summits than at toeslopes. The simple ratio of Landsat Band 7/Band 1 (SR71) was the VI most highly correlated with canopy standing crop and height at plot and landscape scales. Results suggest field and remote sensing-based grassland assessment techniques could more comprehensively target low structure areas at minimal expense by layering modeled imagery over a landscape stratified into topographic position groups.     

Generating Co-Management at Kasha Katuwe Tent Rocks National Monument,New Mexico

Collaborative planning theory and co-management paradigms promise conflict prevention and the incorporation of indigenous knowledge into plans. Critics argue that without devolved power to culturally legitimate institutions, indigenous perspectives are marginalized. Co-management practice in North America is largely limited to treaty-protected fish and wildlife because federal agencies cannot devolve land management authority. This paper explores why the Pueblo de Cochiti, a federally recognized American Indian Tribe, and the U.S. Bureau of Land Management sustained an rare joint management agreement for the Kasha-Katuwe Tent Rocks National Monument in New Mexico despite a history of conflict over federal control of customary tribal lands that discouraged the Pueblo from working with federal agencies. Based on the participant interviews and documents, the case suggests that clear agreements, management attitudes, and the direct representation of indigenous forms of government helped achieve presumed co-management benefits. However, parties enter these agreements strategically. We should study, not assume, participant goals in collaborative processes and co-management institutions and pay special attention to the opportunities and constraints of federal laws and institutional culture for collaborative resource management with tribal and local communities.     

Sustainable Farming Practices: Ghanaian Farmers' Perception of Erosion and Their Use of Conservation Measures

/ Major responsibility for conserving forest biodiversity is often assigned to natural resource agencies. Often unknown is the appropriate administrative context for doing so, especially the organizational location for biodiversity programs in state government, suitable levels of financial and professional investment in biodiversity programs, processes useful for coordinating programs located in different administrative settings, and the effectiveness of biodiversity programs, especially conditions associated with programs judged to be very effective. Focusing on forests, a nationwide survey of 156 forestry agency and biodiversity program administrators in all 50 states was undertaken. Effective forest biodiversity programs were those with a long-range plan, administered as a single organizational unit, located in close organizational proximity to a state's forestry agency, actively providing management practice advice to landowners, administrators, and the public, and firm actions taken to ensure coordination with other natural resource programs.     

Industry and the environment: Chief executive officer attitudes, 1976 and 1986

This research considers the question of changing environmental values within the leadership of firms responsible for the management of pollution as an unwanted byproduct. Information was obtained from a pair of surveys mailed to the chief executive officers (CEOs) of the 50 largest firms listed within the mining and manufacturing directories of Colorado, Montana, Utah, and Wyoming in 1976 and again in 1986. The authors found that industry CEOs were more supportive of environmental concerns in 1986 than 1976, suggesting that ecological values have become institutionalized to some extent. Yet, there is little indication that this attitudinal shift in environmental concern among CEOs has been accompanied by a willingness to spend a larger proportion of the company budget on pollution control or to improve working relationships with federal regulatory officials.     

A CRITIQUE OF WATERSHED MANAGEMENT EFFORTS IN THE LOWER MISSISSIPPI ALLUVIAL PLAIN1

ABSTRACT: Integrated watershed management in the Lower Mississippi Alluvial Plain (Delta) requires blending federal, state, and local authority. The federal government has preeminent authority over interstate navigable waters. Conversely, state and local governments have authority vital for comprehensive watershed management. In the Delta, integrating three broad legal and administrative regimes: (1) flood control, (2) agricultural watershed management, and (3) natural resources and environmental management, is vital for comprehensive intrastate watershed, and interstate river basin management. Federal Mississippi River flood control projects incorporated previous state and local efforts. Similarly, federal agricultural programs in the River's tributary headwaters adopted watershed management and were integrated into flood control efforts. These legal and administrative regimes implement national policy largely in cooperation with and through technical and financial assistance to local agencies such as levee commissions and soil and water conservation districts. This administrative infrastructure could address new national concerns such as nonpoint source pollution which require a watershed scale management approach. However, the natural resources and environmental management regime lacks a local administrative infrastructure. Many governmental and non governmental coordinating organizations have recently formed to address this shortcoming in the Delta. With federal and state leadership and support, these organizations could provide mechanisms to better integrate natural resources and environmental issues into the Delta's existing local administrative infrastructure.     

TRACE ELEMENTS IN NORTHERN GREAT PLAINS STRIP MINE AND LIVESTOCK IMPOUNDMENT WATER1

ABSTRACT: The water from 32 strip mine water impoundments and nine livestock watering ponds in North Dakota, South Dakota, and Wyoming were analyzed for trace elements. Because of the high concentrations of trace elements in coal and bentonite clay, the possibility exists for these elements to dissolve or be suspended in the water. Strip mine ponds were not significantly higher in trace element concentrations compared to livestock ponds. All but one of the 41 ponds sampled contained elemental concentrations that would be detrimental for livestock use or aquatic life use. Cadmium and lead were the elements most frequently in excess of water quality crieria. Lead was found in the study ponds about 35 times the median concentration of North American rivers. Manganese concentrations were found to exceed iron in many ponds, which is unusual in natural waters. The potential for detrimental concentrations of trace elements in pond water must be evaluated when designing land use management plans for ponds intended to be used by livestock or aquatic life.     

Same but different: sources of natural resource management advice for lifestyle oriented rural landholders

Amenity migration to attractive and accessible non-metropolitan areas changes social and environmental relations with consequences for natural resource management and landscape composition and trajectories. Lifestyler oriented rural landholders are often cast as a problem for land management and extension. Managers and some researchers see them as a cause of landscape and social fragmentation and report difficulties in engaging such landowners on natural resource management issues and responsibilities. In contrast, limited existing research indicates that lifestylers do join and form networks of personal and other contacts for advice and support in land management. We contribute to this research with a survey of rural landholders in southeastern New South Wales (NSW). We explicitly compare the sources of advice for land management for lifestylers with those of farmers. We focus on the types of sources available to rural landholders in Australian regions and their relative importance to these two landholder groups. We find that lifestylers and farmers are different in their sources of advice but that both prefer personal sources rather than sources such as agencies. We reflect on the significance of the differences for engagement with lifestyle oriented rural landowners and for understanding landscape change.