Designing and managing successful endangered species recovery programs

Endangered species recovery is characterized by complexity and uncertainty in both its biological and organizational aspects. To improve performance in the organizational dimension, some models of organizations are briefly introduced with an emphasis on the organization as a system for processing information, i.e., for successfully dealing with the high uncertainty in the task environment. A strong task orientation,which rewards achievement of the primary goal, is suggested as ideal for this task, as is generative rationality, which encourages workers to observe, critique, and generate new ideas. The parallel organization—a flexible, participatory, problem-solving structure set up alongside traditional bureaucracies—is offered as a useful structure for meeting the demands of uncertainties encountered during recovery. Task forces and projects teams can be set up as parallel organizations. Improved managerial functions include coordinating roles to facilitate the flow and use of information; decision making to avoid groupthink—the defects, symptoms, and countermeasures are described; and productive, active management of the inevitable conflict. The inability of organizations to solve dilemmas, to examine their own structures and management, and to change themselves for more effective, efficient, and equitable performance is seen as the major obstacle to improved recovery programs. Some recommendations for effecting change in bureaucracies are made along with a call for case studies detailing the organizational dimensions of endangered species recovery programs.     

A model for improving endangered species recovery programs

This paper discusses common organizational problems that cause inadequate planning and implementation processes of endangered species recovery across biologically dissimilar species. If these problems occur, even proven biological conservation techniques are jeopardized. We propose a solution that requires accountability in all phases of the restoration process and is based on cooperative input among government agencies, nongovernmental conservation organizations, and the academic community. The first step is formation of a task-oriented recovery team that integrates the best expertise into the planning process. This interdisciplinary team should be composed of people whose skills directly address issues critical for recovery. Once goals and procedures are established, the responsible agency (for example, in the United States, the US Fish and Wildlife Service) could divest some or all of its obligation for implementing the plan, yet still maintain oversight by holding implementing entities contractually accountable. Regular, periodic outside review and public documentation of the recovery team, lead agency, and the accomplishments of implementing bodies would permit evaluation necessary to improve performance. Increased cooperation among agency and nongovernmental organizations provided by this model promises a more efficient use of limited resources toward the conservation of biodiversity.     

Critical habitat designation: Is it prudent?

The critical habitat provision of the US Endangered Species Act was believed by many to be a key feature of the Act. It was believed that this provision would benefit federally listed endangered and threatened species. However, only 23% of the listed species in the United States have their critical habitats designated. The current trend is to forego critical habitat designation because the federal government believes that the Endangered Species Act can protect most listed species without resort to the critical habitat provision. Required publication of critical habitat locations in theFederal Register may draw vandals and collectors to rare species. In other cases, existing habitat protection already provides adequate protection for species. In a few instances critical habitat changes over time and is difficult to delineate. Lastly, designating critical habitat is time consuming, delays species listing, and is controversial, detracting from the positive image of the Endangered Species Act.     

Prioritizing Wildlife Taxa for Biological Diversity Conservation at the Local Scale

/ We identified and ranked 108 resident and migratory wildlife taxa on John F. Kennedy Space Center (KSC) that were vulnerable to local, regional, or global extinction. We ranked taxa based on their vulnerability to extinction, their potential role for maintaining faunal integrity, and the relevance of KSC for maintaining their populations in the United States and Florida. Several taxa, not listed by agencies, were vulnerable to regional or global extinction. Many taxa not vulnerable to global extinction were vulnerable to local and regional extinction. Top predators were vulnerable to extinction because of small population size, isolation from other populations, and road mortality. Many taxa were dependent on habitat conditions at different geographic locations so that conservation required greater collaboration among land owners, managers, and researchers at local, regional, and global scales.KEY WORDS: Biological diversity; Endangered species; Conservation     

“Bats,snakes and spiders,Oh my!” How aesthetic and negativistic attitudes,and other concepts predict support for species protection

This research investigates whether species are perceived differently based on aesthetic and negativistic attitudes, and whether these and other attitudes, naturalistic activities, and gender predict support for the protection of threatened species. 228 undergraduate students completed a survey in which they rated pictures of 10 endangered species on aesthetic and negativistic attitudes, and support for protection. Findings showed that the two-striped garter snake, Ozark big-eared bat, and dolloff cave spider were conceptualized differently than other species, which may be the result of “irrational” fears linked to animal phobias, culture, and emotional reactions to pictures. The regression results support the common belief that aesthetics is an important determinant in perceptions of endangered species and that the importance of negativistic attitudes may be waning. Moralistic worldviews and attitudes toward landowner rights and the Endangered Species Act were significantly related to support for governmental protection of species. Surprisingly, naturalistic activities and gender were not significantly associated with support for governmental protection of species. In general, the results were consistent across both models. However, the amount of variance explained by aesthetic and negativistic attitudes was 23 percent higher in the other species models than in the bat, snake, and spider models.     

Impending Recovery of Kirtland's Warbler: Case Study in the Effectiveness of the Endangered Species Act

Dendroica kirtlandii ). This particular recovery program actually began before passage of the federal ESA, when biologists alerted the Michigan Department of Natural Resources of the perilously low population of this bird, which only breeds under jack pine (Pinus banksiana) trees in Michigan. By the time an ESA Recovery Team was formed for this bird in 1975 (the first such team created under the ESA), a legacy of consensus and interagency cooperation was well established. This has led to successful efforts at habitat management and control of its nest parasite, the brown-headed cowbird (Molothrus ater). While the Kirtland's warbler is not yet recovered, its population is near an all-time high, and its recovery is possible within the next decade. When (and if) this happens, it will be clearly attributable to this successful model of federalism for natural resources management.     

Managing a Subsidized Predator Population: Reducing Common Raven Predation on Desert Tortoises

Human communities often are an inadvertent source of food, water, and other resources to native species of wildlife. Because these resources are more stable and predictable than those in a natural environment, animals that subsist on them are able to increase in numbers and expand their range, much to the detriment of their competitors and species they prey upon. In the Mojave Desert, common ravens (Corvus corax) have benefited from human-provided resources to increase in population size precipitously in recent years. This trend has caused concern because ravens prey on juvenile desert tortoises (Gopherus agassizii), a federally threatened species. In this paper, I discuss management strategies to reduce raven predation on desert tortoises. The recommendations fall into three categories: (1) managing raven populations by reducing access to anthropogenic resources; (2) removing offending ravens or other birds in specially targeted tortoise management zones; and (3) continuing research on raven ecology, raven behavior, and methods of reducing raven predation on tortoises. I also recommend approaching the problem within an adaptive management framework: management efforts should first be employed as scientific experiments—with replicates and controls—to yield an unbiased assessment of their effectiveness. Furthermore, these strategies should be implemented in concert with actions that reduce other causes of desert tortoise mortality to aid the long-term recovery of their populations. Overall, the approaches outlined in this paper are widely applicable to the management of subsidized predators, particularly where they present a threat to a declining species of prey.     

Balancing Army and Endangered Species Concerns: Green vs. Green

A number of endangered, threatened, or at-risk species have been identified on US Army training bases. Before further training is restricted or curtailed under provisions of the US Endangered Species Act (ESA), the Army can explore available proactive options for providing habitat protection and mitigation. This paper investigates the possibility of an Army habitat acquisition program to acquire (by lease or purchase) buffer zones of at-risk species' habitat around its bases and away from training. To identify the most cost-effective manner for acquiring habitat, auction market experiments are utilized for analyzing program design. Laboratory auction experiments provide a powerful and low-cost vehicle for investigating ex ante program design issues. We find the discriminative, as opposed to a uniform price, auction with a minimum quantity requirement to be the least-cost mechanism.     

Protecting endangered species under future climate change: From single-species preservation to an anticipatory policy approach

Anthropogenic climate climate change presents a unique challenge for endangered species policy and an opportunity for policy makers to develop a more predictive and robust approach to preserving the nation's biological resources. Biological and ecological reactions to shifting climate conditions and the potential feedbacks and synergistic effects of such changes may threaten the well-being of many species, particularly of those already in jeopardy of extinction. The United States Endangered Species Act of 1973 will fail to keep pace with increasing numbers of species needing protection as long as it remains focused on protecting species individually. The actmust not be abandoned, however; it holds tremendous promise for preserving biological diversity through a more proactive, anticipatory perspective. The current Endangered Species Act should be reinforced and improved by better integration of scientific expertise into habitat and community preservation listing decisions and recovery plan devlopment. Given the uncertainties surrounding long-term environmental consequences of human activities and resource use, a longer-term perspective must be integrated into all efforts to protect our biotic resources. Under appointment from the Graduate Fellowships for Global Change administered by the Oak Ridge Institute for Science and Ecducation for the US Department of Energy.     

Utility participation in a multispecies plan

Single-species listings under provisions of the federal Endangered Species Act (ESA) have caused, or have been accused of causing, significant regional economic impact. In an attempt to avoid such adverse effects on regional economic development, the state of California passed the Natural Communities Conservation Planning Act (NCCP) in 1991. It is a voluntary, consensus-based approach to balancing protection of sensitive biota and biodiversity with regional economic development. The pilot NCCP program for the conservation of several threatened, endangered, and category 1 species, plus an additional 35 coastal sage scrub-related species in southern California, was completed and submitted to the public for review and comment in December 1995. This program proposes the voluntary establishment of a 86,600-ha multispecies reserve system. Once completed, participating landowners will receive ESA Section 10(a) incidental take permits for present and identified future projects. Utility rights-of-way are incorporated into the program as important connective linkages between reserve units and other adjacent important habitat areas. All data and information regarding the proposed results of the NCCP are subject to change pending agency response to public comments on the draft Habitat Conservation Plan and joint EIR/EIS.     

Changes in attitudes about importance of and willingness to pay for salmon recovery in Oregon

Salmon are perhaps the quintessential icon of the Pacific Northwest, affecting the region's culture, politics, and economy. The importance Oregonians place on salmon recovery and their willingness to pay for salmon recovery efforts was assessed biennially between 1996 and 2002 through the Oregon Population Survey. Based on these data, we found that Oregonians appear to have become less supportive toward salmon recovery and salmon recovery efforts over that time period; they were less likely to say salmon recovery is important and chose lower willingness to pay responses in 2002 than in 1996.Attitudes do appear to be related to the economic conditions and demographic composition of residents of the state. In particular, we found that local unemployment rates, age of respondent, and rural county residence are significantly negatively correlated with the respondent's expressed support for salmon recovery efforts. Attributes positively correlated with expressions of support for salmon include male gender, graduate-level education, and American Indian identity. We found that a significant portion of the decline in support is unexplained by the variables included in the analysis.     

Site examination for threatened and endangered plant species

A procedure is described for conducting floristic examinations of prospective sites of development in order to determine the presence of threatened and/or endangered plant species. The timed meander search procedure provides information to document the level of effort expended in the examination as well as to describe the floristic resources of the site. Tests of the procedure during the 1979 and 1980 field seasons have demonstrated its value both as a means of discovering threatened and endangered species on a site and as a means of documenting a low probability of occurrence of such species if not found during application of the procedure.     

Sea-level rise: Destruction of threatened and endangered species habitat in South Carolina

Concern for the environment has increased over the past century, and the US Congress has responded to this concern by passing legislation designed to protect the nation’s ecological biodiversity. This legislation, culminating with the Endangered Species Act of 1973, has been instrumental in defining methods for identifying and protecting endangered or threatened species and their habitats. Current legislation, however, assumes that the range of a protected species will stay constant over time. This assumption may no longer be valid, as the unprecedented increase in the number and concentration of greenhouse gases in the atmosphere has the potential to cause a global warming of 1.0–4.5°C and a sea-level rise (SLR) of 31–150 cm by the year 2100. Changes in climate of this magnitude are capable of causing shifts in the population structure and range of most animal species. This article examines the effects that SLR may have on the habitats of endangered and threatened species at three scales. At the regional scale 52 endangered or threatened plant and animal species were found to reside within 3 m of mean sea level in the coastal stages of the US Southeast. At the state level, the habitats of nine endangered or threatened animals that may be at risk from future SLR were identified. At the local level, a microscale analysis was conducted in the Cape Romain National Wildlife Refuge, South Carolina, USA, on the adverse effects that SLR may have on the habitats of the American alligator, brown pelican, loggerhead sea turtle, and wood stork. Prepared by the Oak Ridge National Laboratory, Environmental Sciences Division, Oak Ridge, Tennessee 37831, USA; managed by Martin Marietta Energy Systems. Inc. for the US Department of Energy under contract DE-AC05-84OR21400.     

Decline in Endangered Species as an Indication of Anthropic Pressures: The Case of European Mink Mustela lutreola Western Population

Populations of threatened species, especially predators at the top of the food chain, may be affected by anthropic pressures. The endangered western population of European mink Mustela lutreola has shown a large decline over 50% of its natural range. M. lutreola disappeared from northwestern France between 1984 and 1997, and the decline was associated with an increase in mustelid trapping, changes in watercourse quality, and habitat modifications due to agricultural practices. The pattern of decline showed a fragmentation restricting the minks into very small areas. Trapping was the first known cause of mortality. Although feral American mink Mustela vison may compete with autochthonous carnivores, M. lutreola had disappeared from streams before the introduction of the American species, suggesting that competitive interactions were not responsible. Furthermore, American mink has never been found or has remained rare in 62.4% of the area from which M. lutreola has disappeared. During the past 25 years, permanent grassland surfaces were reduced by 40%, whereas fodder culture increased by 470%, causing considerable habitat changes. Furthermore, 55.7% of water courses were classified as being of bad quality or polluted. Therefore, our data suggests that a conjunction of intensive trapping, alterations in water quality and habitat modification was critical for the European mink's decline. Although there are difficulties in ascribing specific cause to distribution changes in a top predator, this decline can be regarded as an indication for anthropic pressures on natural habitats.     

Temperatures and Locations Used by Hibernating Bats,Including <Emphasis Type="Italic">Myotis sodalis</Emphasis> (Indiana Bat), in a Limestone Mine: Implications for Conservation and Management

Understanding temperatures used by hibernating bats will aid conservation and management efforts for many species. A limestone mine with 71 km of passages, used as a hibernaculum by approximately 30,000 bats, was visited four times during a 6-year period. The mine had been surveyed and mapped; therefore, bats could be precisely located and temperatures (T _s) of the entire hibernaculum ceiling accurately mapped. It was predicted that bats should hibernate between 5 and 10°C to (1) use temperatures that allow a near minimal metabolic rate, (2) maximize the duration of hibernation bouts, (3) avoid more frequent and prolonged arousal at higher temperatures, (4) avoid cold and freezing temperatures that require an increase in metabolism and a decrease in duration of hibernation bouts or that could cause death, and (5) balance benefits of a reduced metabolic rate and costs of metabolic depression. The distribution of each species was not random for location (P < 0.000) or T _s (P < 0.000). Myotis sodalis (Indiana bat) was most restricted in areas occupied, hibernating in thermally stable yet cold areas ( = 8.4 ± 1.7°C); 99% associated with cement block walls and sheltered alcoves, which perhaps dampened air movement and temperature fluctuations. Myotis lucifugus (little brown myotis) hibernated in colder, more variable areas ( = 7.2 ± 2.6°C). Myotis septentrionalis (northern myotis), Pipistrellus subflavus (eastern pipistrelle), and Eptesicus fuscus (big brown bat) typically hibernated in warm, thermally stable areas ( = 9.1 ± 0.2°C, = 9.6 ± 1.9°C, and = 9.5 ± 1.5°C, respectively). These data do not indicate that hibernacula for M. sodalis, an endangered species, should be manipulated to cool below 5°C.     

When biologists and engineers collide: Habitat conservation planning in the middle of urbanized development

The City of Austin, Texas, is one of the fastest growing metropolitan areas in the United States. It is also in one of the most biologically diverse terrestrial ecosystems in the world: the Balcones Canyonlands. Five cave invertebrates and two species of birds that inhabit the area are listed as threatened or endangered, two species of plants are candidates for listing, several others are considered rare and of concern, and a species of the salamander has also been proposed for listing. A habitat conservation plan, of national significance according to Secretary of Interior Bruce Babbit (Haurwitz 1996), has been under development for the last several years to conserve those endangered species through a 2400-ha system of preserves and to allow development to continue in more than 162,000 ha of surrounding area. The preserve system, comprising several units ranging in size from less than a hundred to several thousand hectares, would be bordered in many instances by developed areas. Development and maintenance of the infrastructure necessary for new and existing development, both commercial and residential, could have negated the biological value of the preserves (e.g., power-line corridors, water-treatment pipelines and facilities). The challenge of bringing this plan to fruition illustrates the complex biological, technical, and sociological context within which habitat conservation planning may occur. Resolving resource use conflicts of this nature have several commonalities that overarch these contexts. If recognized and addressed, one may move easily and foster positive results. These commonalities can be expressed as principles such as: relying on scientists to recognize, but not solve problems; acting before a scientific consensus is achieved; including human motivation and responses as part of the system to be studied and managed; and confronting uncertainty.     

Prairie dog poisoning in northern Great Plains: An analysis of programs and policies

This paper describes the programs and policies regarding prairie dog control in the northern Great Plains states of Montana, South Dakota, and Wyoming. The poisoning programs of federal and state agencies are described, along with the statutes and legal mandates that shape agency management of prairie dogs. Current policies on National Grasslands and other federal lands typically limit prairie dogs to small percentages of available potential habitat, to the detriment of prairie dogs and associated species. State programs to assist landowners in prairie dog control differ greatly, employing cost-share incentives (Wyoming) and regulatory fines (South Dakota) to encourage the poisoning of prairie dogs. Prairie dog control is not actively funded or practiced by state or county agencies in Montana. We document federal and state involvement in more than 1 million acres of prairie dog poisoning in the study area during 1978–1992. In combination with undocumented poisoning by private landowners, plague, and shooting, prairie dogs may be experiencing net regional declines, contributing to the disintegration of the prairie dog ecosystem. We recommend that Animal Damage Control operations concerning prairie dogs be terminated, on the basis that they duplicate state programs and are at cross purposes with federal wildlife management programs that seek to perpetuate and/or recover wildlife species that depend on the prairie dog ecosystem. We further recommend that federal range improvement funds be offered as subsidies for the integration of prairie dogs in range management, as opposed to funding prairie dog eradication programs.     

Compliance of Australian threatened species recovery plans with legislative requirements

Recovery plans are the main documents supporting management decision-making for threatened species. We evaluated Australian recovery plans to assess their appropriateness as conservation and management planning instruments. Six legislative requirements (species information and general requirements, species distribution and location, known and potential threats, objectives, performance criteria and actions, duration of the plan, and estimated costs of plan implementation) were used to assess the degree of compliance of recovery plans with the relevant legislation. We assessed all 236 official recovery plans which had been adopted as at January 2006. The results showed that plans were most compliant regarding the setting of objectives, performance criteria, recovery actions, and duration of plan. Most plans included a single performance criterion that was generally related to the population status of target species. Improvement is required in relation to identification of current threats and critical habitats, and the establishment of basic elements of monitoring and evaluation for measuring recovery progress. Gaps in ecological information are the main factors affecting adequate compliance with legislative requirements as opposed to managerial information (e.g. clarity in establishing the implementation schedule, costs and resource allocation). Planning deficiencies could be addressed by improving the recovery planning guidelines and more carefully reviewing the drafting and adoption of new plans.     

On the value of endangered and other species

This paper describes two frameworks—utilitarian and Kantian—society uses to make decisions concerning environmental management and, in particular, species protection. The utilitarian framework emphasizes the consequences of choices for prior preferences. A perfectly competitive market, on this model, correctly values environmental resources. The Kantian approach identifies rules appropriate to recognized situations given the identity of the decision maker. It relies on democratic political processes and institutions to provide the means by which citizens determine the identity of their community—its moral character and aspirations—and match appropriate rules to recognized situations. This paper argues that markets do not fail in any general way in measuring the economic value of plants and animals. Market prices, in general, correctly represent the marginal or exchange value of species. If society legislates against extinction, this must be understood as an exercise in Kantian decision making in view of the moral value of species, not as an attempt to correct a market failure or to promote social welfare or utility.