Biological invasions: recommendations for U.S. policy and management.

The Ecological Society of America has evaluated current U.S. national policies and practices on biological invasions in light of current scientific knowledge. Invasions by harmful nonnative species are increasing in number and area affected; the damages to ecosystems, economic activity, and human welfare are accumulating. Without improved strategies based on recent scientific advances and increased investments to counter invasions, harm from invasive species is likely to accelerate. Federal leadership, with the cooperation of state and local governments, is required to increase the effectiveness of prevention of invasions, detect and respond quickly to new potentially harmful invasions, control and slow the spread of existing invasions, and provide a national center to ensure that these efforts are coordinated and cost effective. Specifically, the Ecological Society of America recommends that the federal government take the following six actions: (1) Use new information and practices to better manage commercial and other pathways to reduce the transport and release of potentially harmful species; (2) Adopt more quantitative procedures for risk analysis and apply them to every species proposed for importation into the country; (3) Use new cost-effective diagnostic technologies to increase active surveillance and sharing of information about invasive species so that responses to new invasions can be more rapid and effective; (4) Create new legal authority and provide emergency funding to support rapid responses to emerging invasions; (5) Provide funding and incentives for cost-effective programs to slow the spread of existing invasive species in order to protect still uninvaded ecosystems, social and industrial infrastructure, and human welfare; and (6) Establish a National Center for Invasive Species Management (under the existing National Invasive Species Council) to coordinate and lead improvements in federal, state, and international policies on invasive species. Recent scientific and technical advances provide a sound basis for more cost-effective national responses to invasive species. Greater investments in improved technology and management practices would be more than repaid by reduced damages from current and future invasive species. The Ecological Society of America is committed to assist all levels of government and provide scientific advice to improve all aspects of invasive-species management.     

Judging adaptive management practices of U.S. agencies

All U.S. federal agencies administering environmental laws purport to practice adaptive management (AM), but little is known about how they actually implement this conservation tool. A gap between the theory and practice of AM is revealed in judicial decisions reviewing agency adaptive management plans. We analyzed all U.S. federal court opinions published through 1 January 2015 to identify the agency AM practices courts found most deficient. The shortcomings included lack of clear objectives and processes, monitoring thresholds, and defined actions triggered by thresholds. This trio of agency shortcuts around critical, iterative steps characterizes what we call AM‐lite. Passive AM differs from active AM in its relative lack of management interventions through experimental strategies. In contrast, AM‐lite is a distinctive form of passive AM that fails to provide for the iterative steps necessary to learn from management. Courts have developed a sophisticated understanding of AM and often offer instructive rather than merely critical opinions. The role of the judiciary is limited by agency discretion under U.S. administrative law. But courts have overturned some agency AM‐lite practices and insisted on more rigorous analyses to ensure that the promised benefits of structured learning and fine‐tuned management have a reasonable likelihood of occurring. Nonetheless, there remains a mismatch in U.S. administrative law between the flexibility demanded by adaptive management and the legal objectives of transparency, public participation, and finality.     

Robust population management under uncertainty for structured population models.

Structured population models are increasingly used in decision making, but typically have many entries that are unknown or highly uncertain. We present an approach for the systematic analysis of the effect of uncertainties on long-term population growth or decay. Many decisions for threatened and endangered species are made with poor or no information. We can still make decisions under these circumstances in a manner that is highly defensible, even without making assumptions about the distribution of uncertainty, or limiting ourselves to discussions of single, infinitesimally small changes in the parameters. Suppose that the model (determined by the data) for the population in question predicts long-term growth. Our goal is to determine how uncertain the data can be before the model loses this property. Some uncertainties will maintain long-term growth, and some will lead to long-term decay. The uncertainties are typically structured, and can be described by several parameters. We show how to determine which parameters maintain long-term growth. We illustrate the advantages of the method by applying it to a Peregrine Falcon population. The U.S. Fish and Wildlife Service recently decided to allow minimal harvesting of Peregrine Falcons after their recent removal from the Endangered Species List. Based on published demographic rates, we find that an asymptotic growth rate lambda > 1 is guaranteed with 5% harvest rate up to 3% error in adult survival if no two-year-olds breed, and up to 11% error if all two-year-olds breed. If a population growth rate of 3% or greater is desired, the acceptable error in adult survival decreases to between 1% and 6% depending of the proportion of two-year-olds that breed. These results clearly show the interactions between uncertainties in different parameters, and suggest that a harvest decision at this stage may be premature without solid data on adult survival and the frequency of breeding by young adults.     

Geography and Recovery under the U.S. Endangered Species Act

Abstract: The U.S. Endangered Species Act (ESA) defines an endangered species as one “at risk of extinction throughout all or a significant portion of its range.” The prevailing interpretation of this phrase, which focuses exclusively on the overall viability of listed species without regard to their geographic distribution, has led to development of listing and recovery criteria with fundamental conceptual, legal, and practical shortcomings. The ESA's concept of endangerment is broader than the biological concept of extinction risk in that the “esthetic, ecological, educational, historical, recreational, and scientific” values provided by species are not necessarily furthered by a species mere existence, but rather by a species presence across much of its former range. The concept of “significant portion of range” thus implies an additional geographic component to recovery that may enhance viability, but also offers independent benefits that Congress intended the act to achieve. Although the ESA differs from other major endangered‐species protection laws because it acknowledges the distinct contribution of geography to recovery, it resembles the “representation, resiliency, and redundancy” conservation‐planning framework commonly referenced in recovery plans. To address representation, listing and recovery standards should consider not only what proportion of its former range a species inhabits, but the types of habitats a species occupies and the ecological role it plays there. Recovery planning for formerly widely distributed species (e.g., the gray wolf [Canis lupus]) exemplifies how the geographic component implicit in the ESA's definition of endangerment should be considered in determining recovery goals through identification of ecologically significant types or niche variation within the extent of listed species, subspecies, or “distinct population segments.” By linking listing and recovery standards to niche and ecosystem concepts, the concept of ecologically significant type offers a scientific framework that promotes more coherent dialogue concerning the societal decisions surrounding recovery of endangered species.     

Fishery resource management in Chilika lagoon: a study on coastal conservation in the Eastern Coast of India

A significant proportion of the fishing population comprises small-scale fishermen and many studies illustrate that these people are exploited by middlemen in the process of fish marketing combined with money lending. The negative dependency gives rise to poverty and triggers indiscriminate fish catch that threatens fishery resources depletion. This article explores the root causes of failures in resource-led development from the viewpoint of coastal resource conservation. The study presents a case study of Chilika lagoon, India and focuses on the interaction between small-scale fishermen and middlemen. The findings reveal that most of the small-scale fishermen have been exploited by specific middlemen and the underlying causes of the present fish marketing structure stem from (i) indebtedness and (ii) the unstable situation because of perpetual conflicts over fishery resources among the fishers across Chilika lagoon. Based on these observations, this article presents some recommendations on fishery resource conservation from the perspective of a fish marketing structure.

Dynamic resource management under the risk of regime shifts

This paper provides a framework through which a dynamic resource management problem with potential regime shifts can be analyzed both in a strategic environment and from a social planner?s perspective. Based on a fairly general model, a condition for a precautionary policy is discussed. By applying the framework to a common-property resource problem with a linear production technology, we illustrate how the qualitative as well as quantitative nature of equilibrium is altered due to the possibility of regime shifts. In particular, when the risk is endogenously affected by the players? behavior, potential regime shifts can facilitate the precautionary management of resources as long as the resource stock is in good shape. As the stock of resource becomes scarce, however, the precautionary effect vanishes and more aggressive resource exploitation emerges. The impacts of irreversibility on the equilibrium behavior are highlighted. It is also shown that there can exist a resource-depletion trap in which a regime shift, once it happens, triggers a continuous decline of resource stock no matter which regime materializes in the subsequent periods.     

Factors associated with preemptive conservation under the U.S. Endangered Species Act

In recent decades, there has been an increasing emphasis on proactive efforts to conserve species being considered for listing under the U.S. Endangered Species Act (ESA) before they are listed (i.e., preemptive conservation). These efforts, which depend on voluntary actions by public and private land managers across the species’ range, aim to conserve species while avoiding regulatory costs associated with ESA listing. We collected data for a set of social, economic, environmental, and institutional factors that we hypothesized would influence voluntary decisions to promote or inhibit preemptive conservation of species under consideration for ESA listing. We used logistic regression to estimate the association of these factors with preemptive conservation outcomes based on data for a set of species that entered the ESA listing process and were either officially listed (n = 314) or preemptively conserved (n = 73) from 1996 to 2018. Factors significantly associated with precluded listing due to preemptive conservation included high baseline conservation status, low proportion of private land across the species’ range, small total range size, exposure to specific types of threats, and species’ range extending over several states. These results highlight strategies that can help improve conservation outcomes, such as allocating resources for imperiled species earlier in the listing process, addressing specific threats, and expanding incentives and coordination mechanisms for conservation on private lands.     

The Effects of Blister Rust on Post-Fire Regeneration of Whitebark Pine: The Sundance Burn of Northern Idaho (U.S.A.)

In the northern Rocky Mountains, whitebark pine ( Pinus albicaulis ) is rapidly declining as a result of previous fire exclusion policies, mountain pine beetle ( Dendroctonus ponderosae ) outbreaks, and white pine blister rust ( Cronartium ribicola ). Blister rust is potentially the most destructive agent, killing seedlings, cone-bearing branches, and, eventually, mature trees. We examined densities of whitebark pine regeneration and the incidence and severity of blister-rust infection of seedlings and saplings in the 25-year-old Sundance Burn in the Selkirk Range of northern Idaho, an area heavily infected by blister rust. We found that the mean regeneration density of whitebark pine was significantly lower than that of two other comparably aged burns in western Montana. The low density was attributed to the severe damage to the seed source on the burn perimeter, resulting from previous infestation of mountain pine beetle and blister rust. Overall, 29% of the whitebark pine regeneration in the Sundance Burn was infected by blister rust. Age and height of seedlings were important predictors of incidence of infection, and height was the most important predictor of severity of infection. Thus, as seedlings grow larger, they present a bigger target to airborne blister-rust spores. Because of the lack of seed production in the adjacent forest and expected mortality, regeneration of whitebark pine in the Sundance Burn will be slow. In areas of northern Idaho and northwestern Montana affected by blister rust and pine beetle, prescribed fires for managing whitebark pine ecosystems should be restricted to small areas or should require plantings of rust-resistant seedlings.     

Optimal monitoring and control under state uncertainty: Application to lionfish management

State variables in many renewable resource management problems, such as the abundance of a fish stock, are imperfectly observed over time. In systems characterized by state uncertainty, decision makers often invest in monitoring to learn about the level of a stock. We develop a stochastic bioeconomic model of marine invasive species management under state uncertainty. The decision maker in our model simultaneously evaluates optimal investment in monitoring and population control. Using a recently-devised method for solving continuous-state Partially Observable Markov Decision Processes (POMDPs), we find that the ability to learn through monitoring can alter the role of population control in the optimal policy function, for example by reducing control intensity in favor of monitoring. Optimal monitoring depends on the management context, including in our application lionfish population structure. The rich transient dynamics of our model depend critically on the relationship between the initial conditions for information and invader abundance.     

Developing Classification Criteria under the U.S. Endangered Species Act: Bowhead Whales as a Case Study

Abstract: Under the U.S. Endangered Species Act, a species is classified as endangered, threatened, or recovered based on the extent to which its survival is affected by one or more of five subjective factors. A key criticism of the act is that it makes no reference to quantitative or even qualitative parameters of what constitutes "danger of extinction." Without objective standards to guide decisionmakers, classification decisions fall prey to political and social influences. We recommend the development of species-specific, status-determining criteria as a means to rationalize and expedite the listing process and reclassification decisions, independent of the requirement for delisting criteria in recovery plans. Such criteria should (1) clearly define levels of vulnerability, (2) identify gaps in information on life-history parameters, and (3) address uncertainty in existing data. As a case study, we developed preliminary criteria for bowhead whales (    Balaena mysticetus ). Thresholds for endangered and threatened status were based on World Conservation Union ( IUCN) Red List criteria and population viability analyses. Our analysis indicates that particular attention must be focused on population structure within the species to appropriately classify the degree to which one or more components of a species are vulnerable to extinction. A similar approach could be used in the classification of other species. According to our application of the IUCN criteria and those developed for similar species by Gerber and DeMaster (1999) , the Bering Sea population of bowhead whales should be delisted, whereas the other four populations of bowheads should continue to be considered endangered.     

A dynamical approach to evaluate risk in resource management.

With the depletion of many natural resources, we are growing aware of the need to understand the risks that stem from different management decisions. Here, we outline an approach to test the ability of different dynamical signatures to characterize time-series data: how likely is it that a natural population is declining, sustainable, or increasing, and at what rates are these temporal changes likely occurring? These dynamical signatures can serve as a robust foundation on which to formulate alternative scenarios in a decision analysis. They take account of much of the uncertainty in model parameters and have precise mathematical underpinnings with associated risks. We present methods to evaluate the likelihood of these scenarios, and ways that the analysis can be graphically represented. We discuss different ecological factors such as climate variability, life history, ecosystem interactions, and a changing population age structure, all of which impact the dynamics of natural populations. Considering the types of dynamical signatures that emerge from these factors can change our understanding of risk and the decisions that we make.     

Science and management in four U.S. coastal ecosystems dominated by land-ocean interactions

The influence of science in the recognition of the effects of landscape changes on coastal ecosystems and in the development of effective policy for managing and restoring these ecosystems is examined through four case studies: Chesapeake Bay, San Francisco Bay, the Mississippi Delta, and Florida Bay. These ecosystems have undergone major alterations as a result of changes in the delivery of water, sediments and nutrients from their watersheds. Both science and management have been challenged by the spatial, functional and temporal scale mismatches inherent in the watershed-coastal ecosystem relationship. Key factors affecting the influence of science on management include (1) sustained scientific investigation, responsive to but not totally defined by managers; (2) clear evidence of change, the scale of the change and the causes of the change; (3) consensus among the scientific communities associated with various interests; (4) the development of models to guide management actions; (5) identification of effective and feasible solutions to the problems.     

Science and management in four U.S. coastal ecossytems dominated by land-ocean interactions

The influence of science in the recognition of the effects of landscape changes on coastal ecosystems and in the development of effective policy for managing and restoring these ecosystems is examined through four case studies: Chesapeake Bay, San Francisco Bay, the Mississippi Delta, and Florida Bay. These ecosystems have undergone major alterations as a result of changes in the delivery of water, sediments and nutrients from their watersheds. Both science and management have been challenged by the spatial, functional and temporal scale mismatches inherent in the watershed-coastal ecosystem relationship. Key factors affecting the influence of science on management include (1) sustained scientific investigation, responsive to but not totally defined by managers; (2) clear evidence of change, the scale of the change and the causes of the change; (3) consensus among the scientific communities associated with various interests; (4) the development of models to guide management actions; (5) identification of effective and feasible solutions to the problems.     

Testing the robustness of management decisions to uncertainty: Everglades restoration scenarios.

To effectively manage large natural reserves, resource managers must prepare for future contingencies while balancing the often conflicting priorities of different stakeholders. To deal with these issues, managers routinely employ models to project the response of ecosystems to different scenarios that represent alternative management plans or environmental forecasts. Scenario analysis is often used to rank such alternatives to aid the decision making process. However, model projections are subject to uncertainty in assumptions about model structure, parameter values, environmental inputs, and subcomponent interactions. We introduce an approach for testing the robustness of model-based management decisions to the uncertainty inherent in complex ecological models and their inputs. We use relative assessment to quantify the relative impacts of uncertainty on scenario ranking. To illustrate our approach we consider uncertainty in parameter values and uncertainty in input data, with specific examples drawn from the Florida Everglades restoration project. Our examples focus on two alternative 30-year hydrologic management plans that were ranked according to their overall impacts on wildlife habitat potential. We tested the assumption that varying the parameter settings and inputs of habitat index models does not change the rank order of the hydrologic plans. We compared the average projected index of habitat potential for four endemic species and two wading-bird guilds to rank the plans, accounting for variations in parameter settings and water level inputs associated with hypothetical future climates. Indices of habitat potential were based on projections from spatially explicit models that are closely tied to hydrology. For the American alligator, the rank order of the hydrologic plans was unaffected by substantial variation in model parameters. By contrast, simulated major shifts in water levels led to reversals in the ranks of the hydrologic plans in 24.1-30.6% of the projections for the wading bird guilds and several individual species. By exposing the differential effects of uncertainty, relative assessment can help resource managers assess the robustness of scenario choice in model-based policy decisions.     

A landscape of conservation philanthropy for U.S. land trusts

Finding ways to increase financial support is critical to conservation efforts. We used conservation fundraising data, unprecedented in their resolution, to reveal spatial patterns in philanthropic giving to a major land protection organization in the United States. We also quantified the relationship between the amount of effort devoted to fundraising and donations received. Around 40% of the variation in the propensity to give and overall value of gifts was explained by sociodemographic and other predictors. For example, education level had greater predictive capacity than income, political views, and other factors often considered important. Fundraising effort was strongly predictive of the amount donated in an area. Our model estimated a doubling of funds raised with a 5-fold increase of effort. Conservation organizations could use our statistical framework to inform efforts aimed at increasing philanthropic giving by identifying locations with large model residuals. An example application of our framework showed an almost 40% increase (US$200 million) in fundraising revenue for the case-study conservation organization.     

Developing a Criterion for Delisting the Southern Sea Otter under the U.S. Endangered Species Act

Recent surveys of recovery plans indicate that criteria, such as population sizes, for delisting species from the U.S. Endangered Species Act (ESA) are often unrealistically low by scientific standards. We describe the delisting criterion for the threatened southern sea otter (Enhydra lutris nereis) developed by the Southern Sea Otter Recovery Team. A major oil spill is the most serious threat to this sea otter population. After extensive modeling of oil spills, the recovery team concluded that it was not scientifically defensible to develop a delisting criterion in terms of a single probability of extinction over a specified time period. Instead, the team decided to define a size at which it would consider the population endangered and to consider the population threatened as long as a major oil spill might reduce it to that size. The effective population size (N_e) for endangered status was set at 500, estimated to be about 1850 otters. Using a spill the size of the Exxon Valdez spill (250,000 bbl), the oil spill model was iterated to generate a frequency distribution of the number of sea otters contacted by oil, from which the team estimated that less than 800 otters would be killed by 90% of the simulated spills. Thus, the delisting criterion was set at 1850 + 800 = 2650 individuals. There have been several proposals to improve the Endangered Species Act by providing quantitative guidance, in the form of specific probabilities of extinction within some time frame or specific criteria like those used by the World Conservation Union as to the levels of extinction risk represented by the terms "threatened" and "endangered." Experiences of the Sea Otter Recovery Team indicate that guidelines should not be overly rigid and should allow flexibility for dealing with specific situations. The most important consideration is to appoint a recovery team that is both technically well qualified and unconstrained by pressures from management agencies.