Evaluating science and policy: Conservation planning and the Endangered Species Act.

摘要

The purpose of the Endangered Species Act (ESA) of 1973 is to provide protection and conservation for threatened and endangered species, and the ecosystems upon which they depend. The ESA has been amended many times since its adoption; however, the underlying principles of conservation remain largely intact. In 1982, Congress approved new amendments, allowing for the "incidental take" of federally listed species (Section 10), if a Habitat Conservation Plan (HCP) was developed and approved. This change in the ESA has led to considerable controversy, confusion, and compromise. While there are many aspects of the HCP process that are under scrutiny, three components in particular are of great concern: the selection of species for "coverage" under an HCP, the creation of an "effectiveness" monitoring plan, and the treatment of invasive species issues as they relate to covered species and their habitats. First, many permittees include a large number of covered species not known to be present in the planning area, most of which often lack species-specific conservation actions. This is a dangerous strategy, providing little confidence that some HCPs will provide adequate long-term conservation for the species. Second, with regard to monitoring plans, a rigorous framework outlining eight essential aspects of a monitoring program are provided, created from the guidance in the ecological literature, the U.S. Fish and Wildlife Service (FWS), and four examples of HCPs. Monitoring plans should be well developed and clearly articulated prior to the issuance of an incidental take permit, and this framework provides a minimal set of requirements that can assist the FWS and permittees. Finally, some HCPs do not adequately address the potential consequences regarding invasive species. The level of variability in how invasive species are dealt with across HCPs is a direct response to the lack of detailed guidance provided by the federal agencies. Clearly, articulated requirements and frameworks for invasive species management and control are the next necessary step in improving the HCP process.