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Redistributed as a Service of the National Library for the Environment* |
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Ecosystem Management: Federal Agency Activities 94-339 ENR DEPARTMENT OF THE INTERIOR DEPARTMENT OF THE INTERIOR DEPARTMENT OF THE INTERIOR ECOSYSTEM MANAGEMENT ACTIVITIES The U.S. Bureau of Mines (USBM) is a research, development, information. and analysis agency, with a mission to insure mineral supplies to the country at acceptable economic, social, and environmental costs. Although the Bureau has no regulatory or land management responsibilities, it supports agencies with such duties through its knowledge and expertise in applied geosciences and engineering, mineral and material policy and economics, and natural resource modeling and analysis. The Bureau's Ecosystem Management Program was initiated in FY 1993 following involvement in several endangered species or ecosystem issues such as the Northern Spotted Owl/Old Growth Forests, and the Desert Tortoise. The program's goals are to improve understanding of the interaction between economic activities such as mining and ecosystems; identify management and policy options that can increase the potential for the coexistence of economic activities and healthy ecosystems; and identify opportunities for ecosystem-related research and development. Several other Bureau programs are directly applicable to ecosystem approaches to the management of public resources. The Environmental Technology Program focuses on the application of existing and near-term technologies to environmental problems such as the inactive and abandoned mines on Federally owned or managed lands throughout the United States. The Mineral Environmental Studies Program is also currently focused on abandoned mine lands, concentrating on a national inventory, screening and categorization methods, and site characterization. Both of these programs will be crucial to an accurate assessment of, and plans to improve many ecosystems, especially in the western States. Several other programs or activities in the Bureau, including Mineral Land Assessment, Advanced Mining, and Materials Research can provide useful inputs or technical support for Federal ecosystem management efforts. The Bureau's ecosystem and other environmental activities are conducted in cooperation with other agencies or in the context of multi-agency studies, programs or task forces. Examples include: the Eastside Ecosystem Management Project which will bring together many stakeholders to develop ecosystem management plans for Federal lands east of the Cascade Mountains in Washington and Oregon; the Klamath Basin Ecosystem Restoration Project in Oregon and California; a pilot study of the Lolo Creek watershed in Idaho, in which the impacts of mining on a forested ecosystem are being examined; another pilot study examining the same issues in the Soldier Meadow Allotment in Nevada, an arid ecosystem; and studies of threatened plant species in California. The other agencies involved in one or more of these studies are the U.S. Forest Service, the Bureau of Land Management, the U.S. Fish and Wildlife Service, the Bureau of Indian Affairs, the Bureau of Reclamation, State and local agencies, and various industry and public groups. In related or supporting work, the Bureau is working with the Terrestrial Ecosystem Regional Research Analysis Lab (TERRA Lab is a multi-agency effort in Ft. Collins CO.) to develop and share analytical tools and methodologies for application to ecosystems problems; an Environmental Protection Agency proposed consortium for site characterization technologies, and another for arid ecosystem research; the Department of the Interior's efforts to inventory, assess and address abandoned mine and hazardous waste sites on Federal lands; a Desert Research Institute study of the effectiveness of intentional and natural re-vegetation following mining in the southwest; the National Park Service on the Voyageurs National Park; and the Corps of Engineers' Topographic Engineering Center on the use of remote sensing in the identification and assessment of human and ecological hazards. In addition to the above, the Bureau is engaged in a number of studies to assist all of the land management agencies in identifying, assessing and recommending action in areas where past mining has created a threat to safety or human or ecosystem health. The USBM's involvement with the Interagency Ecosystem Management Coordination Group began in mid-1993. The group provides a forum to raise a variety of issues, communicate interests and capabilities to a large group of agencies and individuals, and distribute draft materials quickly and efficiently. It is also a convenient initial contact for those interested in learning about Federal ecosystem activities and policies. Current group activities initiated by the group include an effort to coordinate ecosystem training needs and opportunities throughout the Federal government, and a list of ecosystem terms and concepts that can facilitate future communications among agencies and the public. Geographic information systems (GIS) are central to effective implementation of ecosystem management. The USBM is using GIS in its ecosystem studies, and is working to develop ecological/economic analysis capabilities. These analytical tools will assist in anticipating ecological consequences of management decisions such as permitting mines, timber sales, or other economic activities, and help evaluate alternative technologies for development or remediation of past activities. Other tools, including Gap analysis, network analysis, sedimentation and water quality models, remote sensing, and coupled systems models will be used and integrated with GIS to anticipate the consequences of economic activities and the cumulative impacts of one or more activities over time. Other analytical capabilities available in the Bureau that are being used in ecosystems applications include engineering costing, resource assessment and evaluation, systems dynamics, and economic analysis. The Bureau is currently reviewing its programmatic structure and direction, and recently released a report recommending a series of changes. While not final, it is likely that the Bureau will add emphasis to environmental and ecosystems programs, and encourage more integrative and cooperative efforts with other agencies and groups. ECOSYSTEM MANAGEMENT LIMITS AND OPPORTUNITIES There are three categories of constraints on future Bureau activities in ecosystems management programs: legal, resource, and organizational. The legal constraint relates to the possible liability resulting from activities on Federal lands under the Comprehensive Environmental Response, Compensation, and Liability Act of 1980 (Superfund). This constraint is not unique to the USBM, and its modification would permit more rapid identification, assessment and resolution of problems already affecting ecosystems. The resource constraint (budget and FTEs) would, if relaxed, allow an acceleration of various activities supporting the ecosystem program, and permit participation in more ecosystem management projects. Organizational constraints refer to the difficulties of implementing multi-agency, multi-objective, interdisciplinary team efforts under current budgetary, personnel, and performance evaluation processes. CONTACT Thomas Gunther DEPARTMENT OF THE INTERIOR ECOSYSTEM MANAGEMENT ACTIVITIES The Bureau of Reclamation (Reclamation) is in transition. It is moving away from being primarily a water resources development agency to a water resources management agency. As part of this change, the agency is taking a more holistic approach to protecting the environment, focusing on managing projects from an ecosystem perspective and at a watershed/river basin level. This approach is embodied in Reclamation's Strategic Plan which lays out a framework for how Reclamation will manage its projects through the coming decade. As stated in the Plan, Reclamation's mission is "to manage, develop, and protect water and related resources in an environmentally and economically sound manner in the interest of the American Public." In his "Blueprint for Reform", Commissioner Dan Beard describes the reorganization that Reclamation is undergoing and the direction the agency will take in revising its programs and policies to better respond to changing public values and resource needs. As part of the reorganization, staff will be reviewing agency policies and guidance, making revisions, developing new guidance, and taking other actions, as necessary, to support Reclamation's resource management objectives, particularly with respect to ecosystem management and protection. Reclamation is presently examining the reoperation of many of its projects to improve environmental conditions. Some of the more complex projects involve: the reoperation of the Central Valley Project in California, review of system operations on the Columbia River, and reoperation of the Glen Canyon Dam. For these and other projects under its Investigation of Existing Projects Initiative, Reclamation is investigating what additional values may be obtained from changes in water and power operations and how Reclamation can better respond to resource needs. Water conservation, improvements in stream flows and water quality, and ecosystem restoration are primary elements of these investigations . Reclamation is working cooperatively at all levels with other Federal and State agencies and private entities to address environmental concerns. In each of Reclamation's regional offices, cooperative efforts are underway on particular projects and programs. Several of these are described below. In our Mid-Pacific Region, Reclamation has teamed up with the Fish and Wildlife Service, National Marine Fisheries Service and the Environmental Protection Agency to form a Federal Ecosystem Directorate, commonly known as "Club Fed", to address the complex ecological relationships and difficult resources management issues associated with the San Francisco Bay and the Sacramento-San Joaquin Delta and to improve interagency coordination on environmental matters. The Mid-Pacific Region is also a participant in California's Regional Strategy to Conserve Biological Diversity. In our Upper Colorado Region, Reclamation is participating on an interagency team to evaluate actions that could be taken to protect the Middle Rio Grande Ecosystem. In October, 1993, the team published the "Bosque Biological Management Plan". Our Great Plains Region, along with the U.S. Environmental Protection Agency and the State of Colorado, recently signed an MOU to work together to improve or maintain the aquatic ecosystem of the Upper Arkansas River Watershed. As part of the System Operation Review for the Columbia River, our Pacific Northwest Region is examining various structures for a regional forum which would be comprised of Federal, State, and Tribal agencies and the public sector to provide input on future management decisions on the Columbia River. Our Lower Colorado Region is working with the Fish and Wildlife Service to restore a number of backwater wetlands on the Colorado River. This activity will benefit the fishery, the endangered Yuma clapper rail, and species richness. Reclamation's Denver Technical Center is participating in a group called "The Colorado Ecosystem Partnership" which includes representatives from the Fish and Wildlife Service, Bureau of Land Management, the Forest Service, the National Park Service, the Environmental Protection Agency, and local and State agencies. The purpose of the group is to better coordinate resource management activities for the protection of ecosystems. The two areas that the group are focusing their attention on are: environmental education and ecosystem management. Within the group, teams have been set up to address: Conservation of Biological Diversity, Effects of Resource Management Activities on Local Communities, Ecological Stratification, and Environmental Education. Plans of the group include selecting an area within the State to test how Federal, State and local entities can work together in ecosystem management and protection. Reclamation and the National Biological Survey (NBS) are in the process of setting up a joint research facility to be located at Reclamation's Denver Technical Center. This facility will be devoted to doing research on the ecological processes and effects of controlled aquatic ecosystems and to developing and testing the technologies which would benefit ecosystem sustainability. At the Washington Office level, Reclamation is participating in several Interagency and Departmental workgroups that are seeking to address environmental issues on a broader scale and more coordinated manner. These groups are: the Interagency Ecosystem Management Coordination Group (DOI and Interagency), the Interagency Watershed Management and Protection Workgroup, and the Interagency Water Resources Workgroup. The goals of these groups are to improve natural resource management and protection among Federal agencies through collaboration and cooperation at the Federal level and also by developing mechanisms/processes which include State and local involvement. The process that Reclamation uses in developing cooperative efforts or partnerships, especially at the regional level, varies depending upon the nature of the project or effort, but it usually involves signing a formal agreement, such as a Memorandum of Agreement, which lays out the goals and purpose of the effort, as well as the responsibilities of each of the signing entities. Usually there will be an Executive Council along with smaller working groups to address particular issues. State and local agencies, representatives of the public and other interest groups are normally participants on these groups. Reclamation has more than 15 years of practical experience with automated geographic analysis tools. This experience is concentrated in 4 areas: (1) geographic information systems (GIS); (2) satellite image processing; (3) airborne video; and (4) systems integration. GIS is used in Reclamation to supply information for: RMPs (Resource Management Plans), environmental monitoring, consumptive uses and losses calculations, and water spreading issues. Satellite imagery is used to determine vegetation types, to study reservoir water quality, and for mapping basin-wide snowpack. Airborne video is used in analyzing flow-to-habitat relationships for endangered species habitat on western rivers, for monitoring weeds in canal systems, and for mapping areas of overbank flooding. Reclamation's systems integration efforts combine hydrologic models, relational databases, and GIS to examine the potential impacts of different operating decisions on river basin management. Reclamation's budget does not have a line item per se for ecosystem management. Currently, activities associated with ecosystem management are funded out of our Operation and Maintenance and General Investigation program appropriations. Reclamation is in the process of reformulating its budget to reflect its changed mission and the more holistic approach the agency is taking with respect to resource management. Ecosystem management is an area that will benefit from the change in structure. At this point, we do not know how much work will be carried out within the agency or by contractors on activities associated with ecosystem management. Our sense is that most of the activities will be carried out by Reclamation personnel. ECOSYSTEM MANAGEMENT LIMITS AND OPPORTUNITIES As other Federal agencies, Reclamation is emersed in identifying and prioritizing the actions needed to protect the sustainability of certain ecosystems and what role it and other agencies have in this effort. Because ecosystem management involves interests and actions that cut across all levels of government, as well as the public and private sectors, cooperation and the development of partnerships is the only realistic way to address ecosystem issues. Reclamation will continue to actively pursue the development of these cooperative efforts. Reclamation has not as yet identified any additional staffing needs in this area. However, we do anticipate developing a training program for selected personnel on ecosystem management. In so far as any legal restrictions which we may encounter with respect to ecosystem management, Reclamation has been constrained by State water laws on ecosystem restoration projects where water outside the beneficial uses identified by the States is required. An example of this is water for instream flows. Where we have identified additional water needs for ecosystem restoration, we have been working with individual States and water users to try and find ways to meet these needs. This has not been an easy process and has resulted in limited success. CONTACT Chris Kenney DEPARTMENT OF THE INTERIOR ECOSYSTEM MANAGEMENT ACTIVITIES The U.S. Fish and Wildlife Service's (Service) mission is to conserve, protect, and enhance the Nation's fish and wildlife and their habitats for the continuing benefit of the American people. As this mission can only be fulfilled by preventing the degradation of healthy systems and restoring those that have been damaged, it makes sense to adopt an ecosystem management approach. The Service has prepared a concept document to describe our ecosystem approach to fish and wildlife conservation. Ecosystem management is defined in the Service's concept document as, "protecting or restoring the function, structure, and species composition of an ecosystem, recognizing that all components are interrelated." We are actively seeking the input of our partners at the national and local level to refine and implement the concept. We are also developing a set of principles for this approach; making management changes to facilitate its adoption; and training employees in the concept. The Service has a wide variety of responsibilities. Our land base consists of over 91 million acres of National Wildlife Refuges, over which are superimposed Wilderness Preservation Areas, Wild and Scenic Rivers, Research Natural Areas, Wetlands of International Importance, and Shorebird Reserves. In addition to administering the vast National Wildlife Refuge System, our responsibilities include: determining what species warrant endangered status, reviewing wetland permits, setting harvest limits, restoring habitats and reintroducing or enhancing fish and wildlife populations, preventing the introduction of environmental contaminants and mitigating their adverse impacts on fish and wildlife resources. These responsibilities require a Service presence throughout the Nation and in the international conservation community. The wide array of our activities is coordinated and enhanced by our ecosystem approach. The Service is using watershed-based ecosystem units to organize our activities nationwide and set ecosystem-wide goals and objectives for each unit. We are also working with partners in each ecosystem and leveraging our joint capabilities to achieve greater results. The Service has many programs that work regionally with Federal, State and local partners to leverage dollars and resources to more effectively conserve or restore ecosystems. The Service's Private Lands Program, North American Waterfowl Management Program, Coastal Ecosystems Program, Sport Fish Restoration and Wildlife Restoration programs, Partners in Flight, and Great Lakes Initiative are just a few of our activities geared to creating partnerships in ecosystem management. The Endangered Species Act states: "The purposes of this Act are to provide a means whereby the ecosystems upon which endangered species and threatened species depend may be conserved." The Service is using an ecosystem approach in multiple species listing, such as the listings for plants in Hawaii and California. Recovery planning and implementation likewise have focused on ecosystems: the plans for the desert spring complex at Ash Meadows, Nevada, the Edwards Aquifer in Texas, and scrub habitat in central Florida all cover multiple species in the same habitat facing the same threats. At a national level, the Service participates in the White House Office of Environmental Policy's Ecosystem Management Task Force, which is addressing the National Performance Review's Ecosystem Management recommendations. The Service is one of the founding members of the Interagency Ecosystem Management Coordinating Group, a group that shares information and serves as a link across agencies working on similar programs. The Service is also involved in implementing the Biological Diversity Convention recently signed by President Clinton. Strong partnerships are critical to the success of ecosystem-level management, where the scope is so extensive that one agency cannot act effectively on its own. As mentioned earlier, the Service has many national programs, as well as regional programs, that work with Federal, State, local and private partners. These partnerships, by reducing redundancy, increasing cooperation and pooling resources, are key to leveraging resources and enhancing our ability to do more with fewer dollars. For example, the Fish and Wildlife Service and the Bureau of Reclamation are working with the State of California and other agencies to implement the Central Valley Project Improvement Act. We will restore the entire watershed, rather than develop separate plans to protect each endangered species, fish or other significant resource separately by re-assessing the same areas over and over again. The Service works with the Bureau of Land Management and other private, State, and Federal partners to protect, enhance, and restore Montana's Centennial Valley. The draft management plan calls for biological data gathering and specific projects by multiple partners to sustain the unique biological and cultural values of the Valley. The Washington State Ecosystems Conservation Program is an example of Federal and State governments working with Indian tribes, conservation groups and private land owners. So far more than 25,000 acres of wetland and upland habitat and 200 miles of stream have been enhanced or restored through cooperative efforts. The North American Waterfowl Management Plan is a cooperative effort by the U.S., Canada and Mexico to coordinate wetland conservation priorities and promote joint ventures to conserve vital wetlands in North America. Under the Plan, the Service has worked with hundreds of partners to restore, protect or enhance more than two million acres of wetlands and associated habitat, much of it on private lands. The Plan serves as a practical model of ecosystem planning, with partners working to restore priority wetlands in 12 habitat joint ventures. By relying on ecosystem rather than intensive single-species management, this habitat work benefits the overall conservation of biological diversity while at the same time providing a long-term solution to declining waterfowl populations. The Service's Fisheries Program works around the country with partners at the Federal, State and local level to restore declining fish stocks such as Atlantic salmon in New England, lake trout in the Great Lakes, striped bass on the Atlantic and Gulf coasts, paddle fish in the Missouri and Mississippi river basins, and Pacific salmonids in the Northwest. Each of these efforts requires close coordination to address interdisciplinary issues affecting population levels, such as harvest, habitat suitability, fish passage, and hatchery supplementation. The Silvio Conte National Fish and Wildlife Refuge Act authorizes the Service to establish a refuge in the 7.2 million acre Connecticut River Basin, an entire aquatic ecosystem transecting four States and urban, agricultural and natural areas. The conservation infrastructure in the basin is very complex, with hundreds of organizations at the Federal, State, and local level with resource concerns. To gather input from agencies and the public, the Refuge Planning Team has held 27 public meetings and 100 meetings with representatives from over 300 organizations. Workshops will be held later this year to identify alternatives to conserve and enhance the resource values of the basin. It is not a foregone conclusion that the end result will be a National Wildlife Refuge in the traditional sense, but the land-protection concept has provided an important catalyst for basin-wide conservation planning. The Service's Environmental Contaminants Program has an ecosystem orientation to its prevention and cleanup initiatives. Healthy ecosystems and biological diversity are a function of both habitat quantity and quality. Fish and wildlife, and natural ecosystems that support them, are affected globally by pollutants and toxic chemicals. The Service cooperates with and provides technical assistance to the Environmental Protection Agency, the National Biological Survey, the National Oceanic and Atmospheric Administration and the U.S. Coast Guard in contaminant cleanup and restoration in sites affected by pollutants. The Service's Coastal Ecosystems Program is the cornerstone of the Service's efforts to conserve coastal ecosystems and their living resources through partnerships with other agencies, the States and the private sector. The individual watershed-based projects integrate all Service activities within specific coastal watersheds and apply an ecosystem approach to correcting resource problems. The program has resulted in the reopening of hundreds of miles of coastal stream habitat to fish passage; restoration of freshwater flows to tidal wetlands; stream buffers; and improved planning and management to consider ecosystem needs. The Interagency Ecosystem Management Coordination Group (IEMCG) has given Federal agencies an excellent opportunity to exchange information and brainstorm ideas. The group is developing common ecosystem management principles, terminology, interagency training courses, and outreach activities to promote ecosystem management. We can now make decisions based on much more information than if we worked independently. One of the many IEMCG committees in which we participate is the Ecological Assessment committee. We plan to support a U.S. Forest Service initiative to conduct an interagency national ecoregion-based ecological assessment. The assessment, with assistance from numerous nongovernmental organizations, will synthesize information on the current conditions of the country's major ecosystems, the natural and human-caused actions that have contributed to these conditions, and the ecological trends and alternative futures that can be projected for these ecosystems. This is precisely the information we need to decide which ecosystems are most at risk, to develop management strategies, and to monitor changing landscapes. The Service uses geographic information systems (GIS) for many applications. We will discuss only a few of them here. Our Southern New England Office is involved in a large ecosystem-scale, two-year habitat study of the New York Bight watershed. This study has used state-of-the-art GIS to develop a comprehensive data base of natural resource information, in a form that natural resource decisionmakers can readily use to analyze the status of key species and their habitats in the Bight. This GIS system also assists other Service programs in New England to collect, digitize, store, analyze, and graphically display a large volume of data on the geographic distributions, population status, and habitats of several hundred species of regional concern. One particularly large project encompasses the four-State 7.2 million acre Connecticut River watershed. With the aid of a computerized GIS, these data are being used to identify "hot spots" in the drainage basin, which will become potential acquisition sites for the Conte National Fish and Wildlife Refuge. The Delaware Bay Estuary Program has used U.S. Forest Service satellite imagery to map forested areas on the Delaware River coastal plain. Overlying data that describes the aspects of forests needed by nesting neotropical migrant birds, the Service can target areas for acquisition and land use restrictions. Our Alaska refuges have developed extensive GIS programs, where satellite imagery and GIS used to map habitat and estimate wildlife populations have enabled the Service to more effectively manage fires and protect sensitive wildlife areas. The Charles M. Russell National Wildlife Refuge (CMR) in Montana now has over 30 data layers, which were acquired or developed in cooperation with other Federal agencies, the State and the Gap analysis has project. CMR coordinates with over 20 State and Federal groups using GIS in Montana and assists with development of GIS data standards, exchange of spatial data, and data conversions. CMR recently produced GIS composite maps that were the basis for evaluation of appropriate reintroduction sites for black-footed ferrets on Bureau of Land Management and tribal lands. The Service is also a member of the California Executive Council, a multi-agency group dedicated to designing a statewide strategy to conserve biological diversity. Working with Gap analysis, the Service has mapped coastal sage scrub and other endangered species habitat areas, and combined them with layers showing jurisdictions and land use in order to rank habitat types and make recommendations for future preservation efforts. The North American Waterfowl and Wetlands Office has created GIS data layers for the joint ventures of the North American Waterfowl Management Plan and projects funded through the North American Wetlands Conservation Act. The Service's National Wetland Inventory (NWI) generates information on the characteristics, extent, and status of the nation's wetlands. Computer operations in St. Petersburg, Florida allow NWI to construct the wetlands layer of the National Spatial Data Infrastructure, leading to the production of customized maps and the transfer of data to cooperators nationwide. About 15% of the United States' wetlands maps has been converted into digital data for computer use. Our current budget structure is structured to be functionally consistent with the organization. We have completed ecosystem project descriptions that are cross-referenced to our programs to facilitate congressional understanding of our ecosystem initiatives. The Service is proposing to implement an ecosystem approach using the existing budget structure. After one year of implementation, we will reevaluate our approach and reconsider the need to restructure the budget or the organization. The Service is briefing Congressional staffs to explain the Service's move to an ecosystem approach. The FY 1995 budget will highlight some priority ecosystem projects; however, Service programs will continue to be presented along functional lines. We anticipate that most of our coordination with partners will be done by Service staff in the field. Actual, on-the-ground ecosystem restoration or conservation work may be done by contractors, or by our field staff in concert with other partners, depending on the nature of the work and the available agency expertise. At this stage, it is too early to anticipate exactly what portion of the work will be carried out by contractors. We strive to take the most cost-effective route and meet legal requirements on hiring private-sector and minority contractors. ECOSYSTEM MANAGEMENT LIMITS AND OPPORTUNITIES Limited funds and staff dictate the need to find approaches such as ecosystem management that can increase our effectiveness and efficiency. The Service will prioritize ecosystems in order to concentrate personnel and resources in those areas most important to protecting the Nation's biological diversity. We recognize that some areas are more important than others, as reflected in our Land Acquisition Priority System and the identification of focus areas or hot spots over the last decade. While there will continue to be Service activity in all parts of the country, budget increases and shifting of resources will be directed to high-priority Ecosystem Units where the Service has the greatest likelihood of using our capabilities and tools, in partnership with others, for the greatest benefit. The process of identifying Ecosystem Units of highest emphasis will be participatory and involve our partners. Service priority-setting will recognize the need for different types of ecosystem goals, ranging from protection of pristine areas, to restoration of highly degraded areas, to crisis intervention. The Service's mission can be better achieved through ecosystem management. The Service can address its responsibilities by working within ecosystem units to join with others to achieve common goals for fish and wildlife conservation. We have all the authorities and the programs we need to participate in ecosystem management. We envision that our future role in ecosystem management will be as a member of many diverse and varying management teams, upholding our mission to conserve, protect and enhance the Nation's fish and wildlife and their habitats. We will contribute our expertise, personnel and funding within ecosystems whenever and wherever they can be of benefit. CONTACT Mary Anne Young
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