Biodiversity partnership

Defenders of Wildlife has long been a leader in the conservation of wolves and other endangered species. While Defenders takes great pride in that work, the organization's mission is to protect all native wildlife in its natural habitat and to secure biodiversity throughout the country, not only in places with large expanses of protected land and populations of large predators. As communities grow and their borders expand, Defenders' mission has led the organization to examine the land use planning process and its effect on wildlife outside of parks, preserves and refuges.

Biodiversity has been defined as "the variety of living organisms, the genetic differences among them, the communities and ecosystems in which they occur, and the ecological and evolutionary processes that keep them functioning, yet ever changing and adapting" (Noss and Cooperrider 1994). That diversity is essential to the biological processes that sustain life. The quality of the air we breathe, the water we drink, the soil we cultivate, the plants and animals we depend on for food and fiber, and the landscape we enjoy for recreation — the fundamentals of our civilization, economy, and health all depend on biodiversity.

Habitat loss is now the most significant threat to biodiversity. As many other reports and scientific papers have shown, the loss, degradation and alteration of habitat are the primary factors responsible for the worldwide decline in numbers of wild animals and plants. While many people think habitat destruction and loss of biodiversity are problems confined to exceptionally species-rich areas like the tropics, they are very real problems here in the United States. Uncontrolled growth, often referred to as "sprawl", plagues communities across the country. It permanently fragments contiguous habitat into marginal pieces of land. Habitat loss and diminishing biodiversity may be the most urgent environmental problems we now face.

In December 2000, to help draw attention to the importance of biodiversity, problems caused by habitat loss, and the potential role of land use planning in solving the current conservation crisis, the Doris Duke Charitable Foundation awarded a grant to Defenders of Wildlife, NatureServe, the Environmental Law Institute and Island Press. The Duke Foundation asked the four groups, together known as the Consortium on Biodiversity and Land Use, to examine the interaction of biodiversity, habitat protection and land use planning in a program of research, publishing, and public outreach.

To investigate the vital role conservation planning can play in connecting land use planning and biodiversity preservation, and as part of work funded by the Duke Foundation grant, Defenders of Wildlife sponsored a two-day workshop at the Wye River Conference Center in Queenstown, Maryland from February 28 to March 1, 2002. The workshop brought together over three dozen state and local land use planners, government officials, and representatives of conservation organizations from around the country, who are all involved in innovative efforts to integrate biodiversity and land use planning at the state, regional and/or local level. This report describes their discussions and the broad range of views expressed at the workshop.

One of the goals of the workshop and this report is to help promote comprehensive conservation planning by stimulating interest in ecosystem-based land use plans designed to facilitate environmental restoration, protect and conserve wildlife habitat and other natural resources. Workshop participants agreed that conservation planning presents an opportunity to make the United States' approach to conservation more proactive. Given the importance of preserving natural habitats and biodiversity, the information and insights gathered at the workshop will be relevant to communities throughout the country.

Biodiversity at Risk
The world is now in the midst of an extinction crisis. Many species have been driven to the brink of extinction or beyond, and we are in danger of losing much of the biodiversity that has made our quality of life possible. According to The Nature Conservancy and NatureServe, more than 6,700 animal and plant species in the United States are vulnerable to extinction (Stein et al. 2000). The federal Endangered Species Act currently lists only about 1,300 of those species as endangered or threatened. Losing these species could severely affect the diversity of life and the biological processes on which all living things, including humans, depend.

Populations of some species protected by the Endangered Species Act are rising, but many others are not. In 1996, the U.S. Fish and Wildlife Service reported to Congress that, despite protection under the Endangered Species Act and other laws, less than 40 percent of listed species are stable or improving. Nearly 30 percent of those listed in the early 1970s with the Act's inception continue to decline (U.S. Fish and Wildlife Service 1996).

Preventing extinction and preserving species' ecological roles requires protection of their natural habitats. The most significant threat to biodiversity now lies in the loss, degradation and fragmentation of the habitats animals and plants need to survive (Wilcove et al. 2000). According the Natural Resources Conservation Service's Natural Resources Inventory, an estimated 2.2 million acres of land are lost to development in the United States each year (Natural Resources Conservation Service 2000). The Department of the Interior reports that more than half the nation's wetlands have been filled since the American Revolution (Dahl 1990). In the Tucson area of Arizona alone, an estimated 6,400 acres of Sonoran Desert are now being converted to human use annually. A 1995 analysis by Defenders of Wildlife identified 69 ecosystems in the United States that had lost 85 percent or more of their acreage to development over the last three centuries (Noss and Peters 1995). Other studies indicate that only 42 percent of U.S. lands remain covered with natural vegetation (Bryer et al. 2000).

Parks and preserves help protect natural habitats, but they are scattered throughout the country with few natural landscape linkages between them. Most protected areas are also found at high elevations, or on biologically unproductive lands that tend to harbor fewer species than those at lower elevations (Scott et al. 2001). These low-elevation, biologically diverse areas are also attractive for development.

The Need for Conservation Planning
The federal Endangered Species Act is the most powerful regulatory tool for protecting individual species and natural habitats in the United States. The Endangered Species Act prohibits taking, killing or otherwise harming species that have been officially listed as endangered or threatened, and calls for protection of habitat critical to their survival. But the Endangered Species Act has been used to protect species only after their numbers have dropped to perilously low levels. Waiting until populations of the species reach the brink of extinction reduces their chances for successful recovery and such reactive, urgent rescue operations usually require intensive management and habitat restoration. This kind of last-minute regulatory action is also often extremely expensive and contentious.

Over the last decade, in an attempt to protect endangered species and their habitats on non-federal lands, habitat conservation plans have been adopted as a provision of the Endangered Species Act. Under 1982 amendments to the Endangered Species Act, the U.S. Fish and Wildlife Service can approve habitat conservation plans that allow the destruction or alteration of habitat for listed species in one area in exchange for conservation measures that protect those species and their habitat elsewhere. Habitat conservation plans represent a pragmatic advance in endangered species protection, but few plans are designed to preserve a full range of species over an extended area, let alone an entire region. Too many plans, especially the early ones, deal only with one or two endangered species, small parcels of land, and a limited number of landowners.

Recently, a number of habitat conservation plans that seek to protect many species and large areas of land have been undertaken at the state and regional level. In southern California, for example, multi-species conservation plans have been adopted for large portions of San Diego and Orange counties. Similar plans are underway in other California counties, as well as in Arizona and Nevada. While such multi-species plans represent progress in conservation, they are often not integrated well with local land use planning.

Experience suggests that a more comprehensive, refined, and proactive approach is needed to protect large areas that support whole communities of wildlife and other natural resources. Conservation should be initiated to prevent species from becoming endangered or threatened, rather than begun only when their numbers have declined to the point where emergency protection and recovery is required. Ultimately, preserving entire ecosystems cost less, give landowners, wildlife biologists, and land use managers greater flexibility, and reduce conflicts between conservation and economic interests.

Linking state or regional conservation planning with local land use planning is one way to achieve a more comprehensive approach to habitat and biodiversity preservation. Some states and communities have already begun to do so, but to secure the nation's biodiversity and to make habitat conservation work comprehensively across the landscape, more plans that integrate wildlife conservation and local land use planning are needed.

Conservation planning offers a powerful way to address the needs of wild animals and plants while incorporating the goals of biodiversity and habitat preservation into state, regional and/or local planning processes. With conservation planning, the needs of wild animals and plants, and the human community can be considered concurrently. Such planning can help identify where to locate new housing developments, transportation corridors, and business sites so that natural habitats, aquatic resources, open space, and wildlife will be protected and conserved. To be effective, comprehensive conservation plans should be designed on a landscape-scale as much as possible, and include active community involvement.

Promoting Comprehensive Conservation Planning
In a proactive effort to protect endangered species, a number of state agencies, local and regional governments, and conservation groups have initiated comprehensive conservation planning processes. Five states — Florida, Massachusetts, Maryland, New Jersey and Oregon — have undertaken large-scale conservation assessments. Seven other states have begun to draft assessments, and others have expressed interest in drafting plans in the near future (see status map on the next page).

Although these states' assessments differ in approach, scope and methodology, all recognize the connection between conservation and land use planning, and that these disciplines can be used in a complementary fashion to help preserve biodiversity and natural habitats. This is particularly true in urbanizing landscapes where land use planning tends to focus and is most influential.

The few existing statewide conservation assessments use habitat and species information compiled by various government and private groups. Among these sources of information are the individual state's natural heritage programs. Initiated by The Nature Conservancy more than 25 years ago, these programs catalogue inventories of each state's wild animals, plants and plant communities. The Nature Conservancy has also begun to develop ecoregional plans, using ecological boundaries defined by environmental conditions such as moisture and solar radiation, and characteristic assemblages of species and habitats (Groves et al. 2000) to define 80 ecoregions within the United States. Each plan will feature conservation sites containing native plant and animal communities representative of the ecoregion's biodiversity and provide habitat for the region's "at risk" species.

To assist state fish and wildlife agencies in developing and implementing statewide conservation plans Federal funds are available through the Department of Interior's State Wildlife Grants Program. As of 2001, this program was funded at $80 million per year. To be eligible for these grants, a state fish and wildlife agency must agree to complete a comprehensive wildlife conservation plan by October 2005, and have the federal funds matched by nonfederal funds at a level of twenty-five percent for planning activities, and fifty percent for plan implementation. The State Wildlife Grants program, along with the information compiled by The Nature Conservancy and others, puts state and local land use planners in a good position to undertake comprehensive conservation planning.

However many state and local planners remain unaware of conservation plans or how to integrate them with local land use planning. Consequently, existing conservation strategies, local land use plans and related decision-making processes are not often connected effectively. Historically, local planning has not addressed habitat conservation systematically, and conservation groups and wildlife agencies have not always used land use planning processes effectively for habitat protection, hence opportunities to protect biodiversity and conserve habitat have often been missed. Even so called "smart growth" plans have often failed to include specifically designated wildlife habitats