[House Hearing, 106 Congress]
[From the U.S. Government Publishing Office]
H.R. 39, TO REQUIRE THE SECRETARY OF THE INTERIOR TO ESTABLISH A
PROGRAM TO PROVIDE ASSISTANCE IN THE CONSERVATION OF NEOTROPICAL
MIGRATORY BIRDS
=======================================================================
HEARING
before the
SUBCOMMITTEE ON FISHERIES CONSERVATION, WILDLIFE AND OCEANS
of the
COMMITTEE ON RESOURCES
HOUSE OF REPRESENTATIVES
ONE HUNDRED SIXTH CONGRESS
FIRST SESSION
__________
FEBRUARY 11, 1999, WASHINGTON, DC
__________
Serial No. 106-5
__________
Printed for the use of the Committee on Resources
Available via the World Wide Web: http://www.access.gpo.gov/congress/house
or
Committee address: http://www.house.gov/resources
U.S. GOVERNMENT PRINTING OFFICE
55-004 WASHINGTON : 1999
------------------------------------------------------------------------------
For sale by the U.S. Government Printing Office
Superintendent of Documents, Congressional Sales Office, Washington, DC 20402
COMMITTEE ON RESOURCES
DON YOUNG, Alaska, Chairman
W.J. (BILLY) TAUZIN, Louisiana GEORGE MILLER, California
JAMES V. HANSEN, Utah NICK J. RAHALL II, West Virginia
JIM SAXTON, New Jersey BRUCE F. VENTO, Minnesota
ELTON GALLEGLY, California DALE E. KILDEE, Michigan
JOHN J. DUNCAN, Jr., Tennessee PETER A. DeFAZIO, Oregon
JOEL HEFLEY, Colorado ENI F.H. FALEOMAVAEGA, American
JOHN T. DOOLITTLE, California Samoa
WAYNE T. GILCHREST, Maryland NEIL ABERCROMBIE, Hawaii
KEN CALVERT, California SOLOMON P. ORTIZ, Texas
RICHARD W. POMBO, California OWEN B. PICKETT, Virginia
BARBARA CUBIN, Wyoming FRANK PALLONE, Jr., New Jersey
HELEN CHENOWETH, Idaho CALVIN M. DOOLEY, California
GEORGE P. RADANOVICH, California CARLOS A. ROMERO-BARCELO, Puerto
WALTER B. JONES, Jr., North Rico
Carolina ROBERT A. UNDERWOOD, Guam
WILLIAM M. (MAC) THORNBERRY, Texas PATRICK J. KENNEDY, Rhode Island
CHRIS CANNON, Utah ADAM SMITH, Washington
KEVIN BRADY, Texas WILLIAM D. DELAHUNT, Massachusetts
JOHN PETERSON, Pennsylvania CHRIS JOHN, Louisiana
RICK HILL, Montana DONNA CHRISTIAN-CHRISTENSEN,
BOB SCHAFFER, Colorado Virgin Islands
JIM GIBBONS, Nevada RON KIND, Wisconsin
MARK E. SOUDER, Indiana JAY INSLEE, Washington
GREG WALDEN, Oregon GRACE F. NAPOLITANO, California
DON SHERWOOD, Pennsylvania TOM UDALL, New Mexico
ROBIN HAYES, North Carolina MARK UDALL, Colorado
MIKE SIMPSON, Idaho JOSEPH CROWLEY, New York
THOMAS G. TANCREDO, Colorado
Lloyd A. Jones, Chief of Staff
Elizabeth Megginson, Chief Counsel
Christine Kennedy, Chief Clerk/Administrator
John Lawrence, Democratic Staff Director
------
Subcommittee on Fisheries Conservation, Wildlife and Oceans
JIM SAXTON, New Jersey, Chairman
W.J. (BILLY) TAUZIN, Louisiana ENI F.H. FALEOMAVAEGA, American
JAMES V. HANSEN, Utah Samoa
WAYNE T. GILCHREST, Maryland BRUCE F. VENTO, Minnesota
RICHARD W. POMBO, California PETER A. DeFAZIO, Oregon
WALTER B. JONES, Jr., North NEIL ABERCROMBIE, Hawaii
Carolina SOLOMON P. ORTIZ, Texas
MARK E. SOUDER, Indiana FRANK PALLONE, Jr., New Jersey
ROBIN HAYES, North Carolina CARLOS A. ROMERO-BARCELO, Puerto
MIKE SIMPSON, Idaho Rico
ADAM SMITH, Washington
Harry Burroughs, Staff Director
Dave Whaley, Legislative Staff
Jean Flemma, Democratic Legislative Staff
C O N T E N T S
----------
Page
Hearing held February 11, 1999................................... 1
Statement of Members:
Faleomavaega, Hon. Eni, a Delegate in Congress from the
Territory of American Samoa, prepared statement of......... 15
Pallone, Jr., Hon. Frank, a Representative in Congress from
the State of New Jersey, prepared statement of............. 15
Saxton, Hon. Jim, a Representative in Congress from the State
of New Jersey, prepared statement of....................... 2
Young, Hon. Don, a Representative in Congress from the State
of Alaska, prepared statement of........................... 2
Statement of Witnesses:
Beard, Daniel, Senior Vice President for Public Policy,
National Audubon Society................................... 24
Prepared statement of.................................... 41
McDowell, Robert, Director, Division of Fish, Game and
Wildlife, New Jersey Department of Environmental Protection 20
Prepared statement of.................................... 37
Reininger, Ken, Curator of Birds, North Carolina Zoological
Park....................................................... 22
Prepared statement of.................................... 40
Rogers, John, Deputy Director, U.S. Fish and Wildlife
Service, Department of the Interior........................ 16
Prepared statement of.................................... 36
Stangel, Peter, Ph.D., Director of Neotropical Migratory Bird
Conservation Initiative, National Fish and Wildlife
Foundation................................................. 25
Prepared statement of.................................... 49
Williams, Christopher E., Director of U.S. Species
Conservation, World Wildlife Fund.......................... 28
Prepared statement of.................................... 43
Winegrad, Gerald, Vice President for Policy, American Bird
Conservancy................................................ 29
Prepared statement of.................................... 45
Additional material supplied:
Text of H.R. 39.............................................. 4
HEARING ON H.R. 39, TO REQUIRE THE SECRETARY OF THE INTERIOR TO
ESTABLISH A PROGRAM TO PROVIDE ASSISTANCE IN THE CONSERVATION OF
NEOTROPICAL MIGRATORY BIRDS
----------
THURSDAY, FEBRUARY 11, 1999
House of Representatives,
Subcommittee on Fisheries Conservation,
Wildlife and Oceans,
Committee on Resources,
Washington, DC.
The Subcommittee met, pursuant to notice, at 10:07 a.m., in
Room 1334, Longworth House Office Building, Hon. Jim Saxton
presiding.
Mr. Saxton. Good morning. The Subcommittee on Fisheries
Conservation, Wildlife and Oceans will come to order.
Good morning and welcome to the first hearing of the
Subcommittee on Fisheries Conservation, Wildlife and Oceans in
the 106th Congress. The Subcommittee has been very productive
in the past four years, having held 82 hearings, 22 markups,
and 60 bills have become public law. That is due largely to the
hard work of our members in shaping legislation within our
purview, as well as to our staff.
I have an equally ambitious agenda for this year, and so we
will move on to today's hearing, H.R. 39, the Neotropical
Migratory Bird Conservation Act of 1999, which was introduced
on January 6, 1999, by Resources full Committee Chairman, Don
Young, and Ranking Member, George Miller and, of course, by me.
This bill is modeled after the highly successful efforts to
assist African and Asian elephants, rhinoceroses and tigers.
Under the terms of this measure, Congress would create a
Neotropical Migratory Bird Conservation Account. The account
would be a separate entity within the Multinational Species
Conservation Fund, which is a mechanism now used to finance
projects to assist the four previously mentioned keystone
species. This account would be authorized to receive up to $8
million per year in Federal appropriations until September 30th
in the year 2004.
The Secretary of the Interior will be charged with the
responsibility of evaluating and selecting meritorious
conservation projects. H.R. 39 is simple. It is a
straightforward, bipartisan proposal that builds upon the
success of existing conservation programs. The fundamental goal
of this legislation is to help formulate an effective
international plan to assist the conservation of these
important neotropical migratory birds.
I look forward to hearing from our witnesses this morning.
[The prepared statement of Mr. Saxton follows:]
Statement of Hon. Hon. Jim Saxton, a Representative in Congress from
the State of New Jersey
Good morning and welcome to the first hearing of the
Subcommittee on Fisheries Conservation, Wildlife and Oceans in
the 106th Congress. We have a number of new Members on the
Subcommittee this year and I look forward to working with each
of you to add to what I believe is an impressive list of
accomplishments. This Subcommittee has been very productive in
the past four years, having held eighty-two hearings, twenty-
two markups, and sixty bills have become public law. That's due
largely to the hard work of our Members in shaping legislation
within our purview, and I thank those of you who have played a
part in these accomplishments. We have an equally ambitious
agenda for this year, so let's move on to the subject of
today's hearing--H.R. 39, the Neotropical Migratory Bird
Conservation Act of 1999, which was introduced on January 6,
1999, by Resources Full Committee Chairman Don Young, Ranking
Democratic Member George Miller and me.
This bill is modeled after the highly successful efforts to
assist African and Asian elephants, rhinoceroses, and tigers.
Under the terms of this measure, Congress would create a
Neotropical Migratory Bird Conservation Account. This account
would be a separate entity within the Multinational Species
Conservation Fund, which is the mechanism now used to finance
projects to assist the four previously mentioned keystone
species. This account would be authorized to receive up to $8
million per year in Federal appropriations until September 30,
2004.
The Secretary of the Interior would be charged with the
responsibility for evaluating and selecting meritorious
conservation projects. While the bill does not exclude any
group or individual from applying for a Federal grant, H.R. 39
does give preference to projects supported by relevant wildlife
management authorities. In addition, the bill limits the
Federal share of the costs of the project to not greater than
33 percent of the total expenditures.
Finally, the proposal requires the Secretary of the
Interior to submit a report to Congress, not later than October
1, 2002, on the effectiveness of the Act and to suggest ways to
improve the operation of the account in the future.
While the legislation does not limit the type of
conservation projects, based on the history of the various
conservation Funds, the Department is likely to receive
proposals to determine the condition of neotropical migratory
bird habitat, undertake population studies, implement new
conservation plans in range states, educate the public as to
the value of these species, and reduce the destruction of
essential habitat.
H.R. 39 is a simple, straightforward bipartisan proposal
that builds upon the success of existing conservation programs.
The fundamental goal of this legislation is to help formulate
an effective international plan to assist in the conservation
of these important neotropical migratory birds.
I am looking forward to hearing from our distinguished
witnesses. Welcome.
[The prepared statement of Mr. Young follows:]
Statement of Hon. Don Young, a Representative in Congress from the
State of Alaska
Mr. Chairman, I want to compliment you for scheduling this
timely hearing on our bill, H.R. 39, the Neotropical Migratory
Bird Conservation Act.
Neotropical migrants are birds that travel across
international borders and depend upon thousands of miles of
suitable habitat. Each autumn some 5 billion birds from 500
species migrate between their breeding grounds in North America
and their tropical homes in the Caribbean and Latin America.
Birdwatching is one of America's fastest growing forms of
outdoor recreation. Nearly 70 million Americans enjoy watching
and feeding birds. These activities generate some $20 billion
in economic activity each year. In addition, healthy bird
populations are a valuable asset for both farmers and timber
interests. They consume detrimental insects and rodents, help
to pollinate and disperse agricultural seeds, and literally
prevent the loss of millions of dollars.
Regrettably, the population of many neotropical migratory
bird species has declined to dangerously low levels. In fact,
there are currently 90 North American bird species that are
listed as either threatened or endangered. Furthermore, the
Gov-
ernment of Mexico has identified some 390 bird species as being
endangered, threatened, vulnerable or rare.
There are many reasons for this population collapse
including nest predation, competition among species, hazards
along migration routes, pesticide use, and loss of essential
habitat.
What is lacking, however, is a strategic international plan
for bird conservation, money for on-the-ground projects, public
awareness, and any real cooperation between those countries
where these birds live.
While H.R. 39 will not solve all the problems facing
neotropical migratory birds, it is a positive step. Under this
bill, we would create a Neotropical Migratory Bird Conservation
Account. This account would be used to finance worthwhile
conservation projects approved by the Secretary of the
Interior.
Under the terms of H.R. 39, we would authorize up to $8
million in Federal appropriations each year. The bill does not
exclude any group or individual from applying for a Federal
grant. It does, however, limit the Federal share of any one
project to not more than 33 percent of the total cost.
This legislation is modeled after our successful efforts to
assist African and Asian elephants, rhinos, and tigers. It is
my hope that we will add neotropical migratory birds to that
list of keystone species and that we can persuade our
colleagues on the Appropriations Committee to allocate a
sufficient amount of financial support.
Again, I am pleased that we are moving this legislation
forward. I am confident that the Neotropical Migratory Bird
Conservation Account would provide much-needed support for
projects to conserve these species in a cost-effective manner.
I look forward to hearing from our distinguished witnesses
and I am anxious to obtain their input on this important
conservation legislation.
[The text of the bill follows:]
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Mr. Saxton. The Ranking Member, the gentleman from American
Samoa, may be here a little bit later, but he does have an
opening statement which will be included in the record at this
point.
[The prepared statement of Mr. Faleomavaega follows:]
Statement of Hon. Eni Faleomavaega, a Delegate in Congress from the
Territory of American Samoa
Mr. Chairman, I support H.R. 39, the Neotropical Migratory
Bird Conservation Act, and I applaud the gentleman from
Alaska's efforts to address an issue that has been ignored for
too long.
Every year, billions of birds of some 350 species migrate
thousands of miles between breeding grounds in North America
and winter habitat in the tropics of Latin America and the
Caribbean. The migratory lifestyle of these species makes them
vulnerable to habitat destruction throughout their entire
range, including stopover points along the migration routes.
Scientists assert that populations of many species of migrant
birds have declined precipitously over the last several decades
for a variety of reasons, primarily from habitat loss and
fragmentation, but also as a result of invasive species,
pesticides, nest parasitism, and deliberate poisonings. For
many neotropical birds, abundance trends are unknown or poorly
understood.
This Act authorizes the Secretary of the Interior to
provide funding for projects that conserve neotropical migrants
and to promote partnerships that improve cooperation among the
wide number of agencies and organizations involved with ongoing
conservation efforts. This Act is not intended to supplant
efforts initiated by organizations such as the National Fish
and Wildlife Foundation, but rather to complement them. This
legislation is good public policy: It will save time and money,
as well as preserve biodiversity, by protecting bird
populations before they have declined to the verge of
extinction and more drastic measures are required.
Mr. Saxton. I ask unanimous consent that all members be
permitted to include their opening statements in the record.
[The prepared statement of Mr. Pallone follows:]
Statement of Hon. Frank Pallone, Jr. a Representative in Congress from
the State of New Jersey
Mr. Chairman, thank you for holding this hearing on H.R.
39, the Neotropical Migratory Bird Conservation Act of 1999.
This bill would require the Secretary of the Interior to create
a conservation program for neotropical migratory birds.
As you know, neotropical migratory birds travel thousands
of miles every year from regions as far North as Canada, to as
far South as Central and South America. There are 90 North
American bird species listed as endangered under the Endangered
Species Act, some of which are neotropical migratory birds. In
addition, the U.S. Fish and Wildlife Service has unfortunately
placed many neotropical migratory birds on the Migratory
Nongame Birds of Management Concern list.
The neotropical migratory bird species on these lists are
either threatened, or endangered, due in part to the continuing
deterioration of essential habitat, especially in the Caribbean
and Latin America. The loss of these essential habitats will
continue unless Congress implements an effective conservation
measure directed at protecting neotropical migratory birds.
I feel that conservation of neotropical migratory birds is
an important priority to consider. Activites such as
birdwatching and birdfeeding can generate nearly $20 billion in
revenue each year in the U.S. The agricultural and
environmental benefits of neotropical migration are essential
to survival of certain plants and animals. A cost effective
measure would be to prevent the decline of these species before
they need to be listed under the Endangered Species Act.
H.R. 39 would authorize $8 million per year through Fiscal
Year 2004 for neotropical migratory bird conservation programs.
Given the severity of the situation with neotropical migratory
birds, I am interested to know how much of a difference $8
million per year will contribute to conservation efforts, and
whether any Federal support has already been provided to these
particular species that are regarded as threatened or
endangered.
I applaud the good intent behind H.R. 39, and I am
interested to hear from the panel about what improvements can
be made with the bill in order to better protect these birds.
Does the panel support the idea of an advisory committee to
assist the Secretary of Interior with this conservation effort?
I think these are questions that should be answered and
areas that should be further explored, and I look forward to
hearing from our witnesses today on the issues related to the
legislation before us.
Mr. Saxton. I would now like to open the hearing with our
first witness, who happens to be an old friend, Mr. John
Rogers, Deputy Director of Fish and Wildlife, U.S. Fish and
Wildlife Service.
I would just like to remind our witnesses that our oral
testimony is limited to five minutes, and we have that nasty
red light that comes on there in front of you. So if you would
just pay mind to it.
Mr. Rogers, you may begin your leisure.
STATEMENT OF JOHN ROGERS, DEPUTY DIRECTOR, U.S. FISH AND
WILDLIFE SERVICE, DEPARTMENT OF THE INTERIOR
Mr. Rogers. Thank you very much, Mr. Chairman. It is a
pleasure to be here before you this morning to comment on H.R.
39. I think, significant to the importance that this Committee
places on the bill, that it does serve as the inaugural event
for your efforts in the 106th.
The Neotropical Migratory Bird Conservation Act will aid in
the conservation and management of neotropical birds. The
administration supports this legislation. The bill provides a
mechanism for coordination and funding to promote the
conservation of neotropical migratory birds and their habitats
throughout Latin America, the Caribbean and North America.
We acknowledge, also, that other House members have
introduced a separate bill, and the Senate has its own version
of this legislation which we could support.
We will be happy to work with the Subcommittee, other House
members, as well as the Senate to resolve any differences among
the bills and to ensure that the final legislation serves the
needs of neotropical migratory birds.
At the outset, Mr. Chairman, we would like to support you,
as well as Chairman Young and Ranking Member Miller, of the
full Committee for co-sponsoring this important legislation.
H.R. 39 establishes a grants program to provide financial
assistance to Federal, State, local, as well as Latin American
and Caribbean government agencies, along with nonprofit and
international organizations, as well as others, to fund
projects for the conservation of neotropical migratory birds.
The legislation recognizes the need for international
cooperation in these conservation efforts and establishes a
project selection process to ensure that they focus on long-
term sustainability of local efforts.
The bill establishes a Neotropical Migratory Bird
Conservation Account within the Multinational Species
Conservation Fund and limits the Federal cost-share of the
projects to 33 percent, thus, leveraging the Federal funds
provided. We are pleased with the flexibility that this
legislation provides and with the increase in authorization to
$8 million per year to enable the Service to increase the size
and scope of the program over the next four years.
The Service, through four bilateral treaties, has
responsibility for maintaining healthy populations of some 778
species of migratory nongame birds and 58 species of migratory
game birds. Approxi-
mately, 350 of these species, the so-called neotropical
migrants, migrate between the Caribbean, Latin America and
North America.
Unfortunately, despite our best efforts, many of these
birds continue to decline, some quite markedly. For example,
124 species of migratory birds are currently on the Service's
list of migratory nongame birds of management concern. If
population trends of these birds continue on their present
downward slope, the next list these species may appear on will
be the endangered species list. That list currently contains 90
species of North American birds, and Mexico presently lists
some 390 species as endangered, threatened or rare.
Birds are important to us for many reasons, whether we
reside in North America, Latin America or the Caribbean. Bird
watching and other forms of bird-related recreation are highly
valued pastimes in North America, with a growing interest in
the Caribbean and Latin America as well. Nearly 70 million
Americans spend approximately $20 billion each year
participating in bird-related recreation. Bird watching is
America's fastest growing form of major outdoor recreation.
Additionally, birds prevent billions of dollars of economic
losses each year by eating crop-damaging insect pests and weed
seeds. They are important pollinators of many commercially
valuable plants. Neotropical birds are an important shared
component of the biological diversity of the Western
Hemisphere.
Neotropical birds spend approximately five months of the
year in the Caribbean and Latin America, four months in their
North American breeding sites, and another three months
migrating in the fall and autumn between the two. The nature of
this shared trust makes migratory bird management an
international issue.
Our most immediate challenge is to halt the precipitous
declines of many of these species due, in major part, to
habitat destruction and degradation. H.R. 39 is a major step in
the right direction, in that it will reverse these trends.
Severely declining bird species are causing great concerns
among natural resource managers, both in the public and private
sectors of Caribbean and Latin American countries, as well as
in North America.
H.R. 39 will help the U.S. and our international partners
reverse species declines, conserving bird populations before
they reach the point of endangerment. Equally as important,
this legislation will help keep our common birds common. This
visionary Act will help unite all of the Americas in a
coordinated effort to protect a vital component of our shared
biological heritage.
Mr. Chairman, that concludes my comments right now. I would
be happy to answer any questions that you may have.
[The prepared statement of Mr. Rogers may be found at the
end of the hearing.]
Mr. Saxton. Thank you, Mr. Rogers.
Can you enlighten us on what Federal efforts are currently
underway to carry out the same general objectives as this
proposed legislation.
Mr. Rogers. Our budget contains approximately $2.5 million,
for which we look after the problems of neotropical birds. Much
of this has been spent, in our international efforts, has been
spent in capacity building; that is, training of biologists,
development of ecotourism efforts in Latin America. We have not
had the resources to invest in the kind of habitat-related work
in Latin America, outside of this country, that we have been
able to. We have, however, had some limited activity, directly
through the Fish and Wildlife Service, on our National Wildlife
Refuges, et cetera, to manage habitat that would benefit these
birds.
Mr. Saxton. Well, there is, as a matter of fact, a fairly
significant effort, is there not, through the Fish and Wildlife
Service, particularly in our refuges, to protect habitat and
protect species?
Mr. Rogers. Correct. The mission of the National Wildlife
Refuge System is, among other things, to restore and maintain
habitat for the variety of wildlife.
One of the unfortunate things about the ability of the
National Wildlife Refuge System to unilaterally deal with some
of these issues is that many of these species are dependent on
large, undivided, unfragmented blocks of habitat that are much
larger than our National Wildlife Refuges can protect
unilaterally right now.
Mr. Saxton. We have had some success in New Jersey with
regard to the piping plover, in terms of protecting its habitat
and in terms, as well, of watching the nesting pairs numbers
grow, and I am wondering if you can point to other success
stories such as that.
Mr. Rogers. Well, all of our efforts on trying to increase
endangered species, in general, such as they are birds, have
met with similar successes. The peregrine falcon, for example,
is a neotropical migrant that, through intense effort over the
last many years, has produced benefits to the point where we
are proposing delisting.
One of the other issues that we have, by asking and
responding to that kind of question, we are talking about
individual species. What we need to be worried about and what
this bill will help us do is to worry about larger blocks of
habitat that will take care of the needs of multiple species
with single actions as opposed to the kind of historic
excruciating and labored species-by-species activity.
Mr. Saxton. Will this authorization, which amounts to $8
million per year, make a real difference in terms of
conservation of our target species?
Mr. Rogers. Mr. Chairman, I suppose, as a good government
witness and meeting the conventional wisdom, I am supposed to
say that, no, there is not enough money. We need a lot more.
But, in fact, an authorization of $8 million will give us the
opportunity, over the next few years, to demonstrate the
utility of the program and the sorts of benefits that can
accrue to neotropical migrants through it. And then, if
justified, at the end of the current authorization, we might
explore further appropriations. But $8 million should be
sufficient.
Mr. Saxton. Let me ask you this: It seems to me that many
of the species that we are interested in, particularly those
which we protect here, try to protect here, suffer because of
conflicts between human beings and species. I am wondering if
there might be an opportunity to use some of these monies to
bring awareness of these conflicts and to try and provide some
level of awareness, education to people who, for example, I
have a lot of surf fishermen who think we are being pretty mean
to them because we won't let them fish in certain areas during
certain times of the year because the plovers are there. And
yet, there seems to be a lack of understanding as to why these
types of actions are necessary.
Mr. Rogers. You are exactly right, Mr. Chairman. Habitat
work, we believe, should be the emphasis of this. But quietly
going on about doing our business with partners of saving big
chunks of habitat, or trying to, and doing that alone, is not
going to be successful. The public has got to understand why
birds are important, that birds are important and need to join
with us in both understanding it and doing something about it.
So education and public outreach are going to be an important
part of that.
Mr. Saxton. Thank you. Let me ask one final question for
the record. Is there a need to stipulate in statutory language
that the Secretary of Interior may convene an advisory
committee to assist him in the conservation of neotropical
migratory birds and, if so, why?
Mr. Rogers. We think it is very important to involve the
conservation community in this effort broadly and that an
advisory committee, laid out in the legislation, would be very
helpful to us in that regard. We would hope that, if the
Committee decides that the advisory committee is the
appropriate way to go, it would also provide us the appropriate
regulatory flexibility so we could do it quickly with a minimum
of administrative burden.
Mr. Saxton. So you would favor some statutory language?
Mr. Rogers. Yes, sir.
Mr. Saxton. Thank you very much. We appreciate you being
with us this morning, and we look forward to working with you
in the days ahead on this legislation.
Mr. Rogers. Thank you very much, Mr. Chairman. As always,
it has been a pleasure.
Mr. Saxton. Thank you.
I will now introduce our second panel. We have Mr. Robert
McDowell, Director of Fish, Game and Wildlife at the New Jersey
Department of Environmental Protection, someone whom I know
very well. We fish together, almost hunted together this year,
but didn't quite make it.
Mr. McDowell. Almost drowned together.
Mr. Saxton. Almost got hit by lightening together and
almost sunk the boat; that is right.
[Laughter.]
Mr. Saxton. Welcome. Glad we are both here, by the way.
[Laughter.]
Mr. McDowell. Yes, so am I.
Mr. Saxton. In addition, Dr. Daniel Beard, the Senior Vice
President of the National Audubon Society; Dr. Peter Stangel,
the Director of Neotropical Migratory Birds at the National
Fish and Wildlife Foundation; Mr. Christopher Williams, the
Director of the U.S. Species Conservation at the World Wildlife
Fund; Mr. Ken Reininger, the Curator of Birds at the North
Carolina Zoological Park; and Mr. Gerald Winegrad, the Vice
President for Policy of the American Bird Conservancy.
I just want to welcome you. And please, if you will, take
note of the lights in front of you, inasmuch as there are
several witnesses, all of whose testimony is very important,
and we will begin with Mr. McDowell.
STATEMENT OF ROBERT McDOWELL, DIRECTOR, DIVISION OF FISH, GAME
AND WILDLIFE, NEW JERSEY DEPARTMENT OF ENVIRONMENTAL PROTECTION
Mr. McDowell. Thank you very much, Congressman Saxton, for
this opportunity. I am here representing the International
Association of Fish and Wildlife Agencies, and I appreciate
this opportunity to comment on H.R. 39.
The Association supports strongly H.R. 39, and it is a good
start to address the conservation needs of this important group
of migratory birds, especially in Latin America and the
Caribbean. But I will also point out the unfulfilled
conservation needs for those species, these species in the
United States and our domestic programs to address those needs.
All 50 State Fish and Wildlife Agencies are a member of
this Association. As you are aware, the Association has long
played an active role in migratory bird conservation, from
1916, with the Migratory Bird Treaty, and the passage of the
Migratory Bird Treaty Act in 1918, to the North American
Wetlands Conservation Act.
The Association has also given the highest priority of
securing necessary funding to enable our State Fish and
Wildlife Agencies to address the conservation needs of the so-
called nongame species, such as neotropical migratory birds,
and their habitats before they reach a point where we have to
apply the Endangered Species Act. We hope we will be able to
fulfill those objectives with the passage of the Conservation
and Reinvestment Act from Chairman Young and Congressman
Dingell in Congress.
Most of our member State Fish and Wildlife Agencies
participating in the North American Waterfowl Management Plan
are currently sending matching funds, to both Canada and
Mexico, to facilitate the conservation objectives of this plan.
Our agencies in the border States of California, Arizona, New
Mexico and Texas are already engaged in conservation efforts in
Mexico and other Latin American countries to restore indigenous
fauna. We anticipate that our State Fish and Wildlife Agencies
would likewise participate in a matching fund protocol for H.R.
39 and this established fund for the migratory bird species in
Latin America and the Caribbean. So it is a good first step.
The Association recognizes that effective conservation of
the 800-plus species of birds that occurred in the United
States during some part of their life cycle requires
cooperative efforts of conservationists at international,
national, regional, state and local geographic levels. The
Association has recently created an ad hoc committee on
migratory bird funding to make progress in the effort to
improve our abilities to effectively conserve these birds.
Let me relate to you a few examples of demonstrating that,
in order to successfully secure the conservation in these
neotropical migrants, we need to address their life needs and
the habitat requirements in both the United States, which
encompasses mostly the breeding range, stopover habitats, where
they stop on their way to the Arctic, in the cases of some
species, to nest, and the southern terminus of their migration,
which is their winter range in South America and the Caribbean.
The Cerulean Warbler is a neotropical migratory bird that
breeds across the United States and winters in Northern South
America, mostly to the east of the Andes Mountains. The North
American Breeding Bird Survey indicates this species declined
significantly between 3.5 and 4 percent each year for the past
30 years in the breeding grounds in the United States,
primarily as a result of the loss and fragmentation of
bottomland hardwood forest during the nonbreeding season. The
species is known to frequent coffee farms in Latin America
where it forages in the mid-story and the canopy vegetation
that provides cover and shade for growing coffee plants.
However, much of that acreage is being converted into sun-
tolerant varieties of coffee. Sun-tolerant coffee plantations
do not provide the kind of habitat needed for over-wintering
warblers.
On the West Coast of the continent, the Alaska shorebird
working group is developing a statewide comprehensive
monitoring program. Since nearly the entire world population of
Western Sandpipers breeds in Alaska, monitoring of population
numbers and productivity is very important.
There are many, many of these examples. In our own State of
New Jersey, we are the spring stopover for shorebirds in
Delaware Bay, one of the top three in the world, and includes
over 15 species, some making round-trip flights over 20,000
miles. Both fall and spring migrants gain weight while stopping
over and can be crucial to the success of their migration.
Shorebirds double their body weight. Cape May Peninsula and
Delaware Bay is one of the most used ecotourism designations--
desti--people come there--in the country.
[Laughter.]
Mr. McDowell. An estimated $30 million in the fall, an
estimated $5- to $10 million in the spring are spent each year
by people visiting the area to see birds.
A major portion of world population lives in that area.
Nearly 15 percent of the people living in the United States
live within a three-hour drive of this area. It adds to a
tremendous amount of pressure on the area. If we are not able
to work with local landowners, provide habitat in the area,
have projects that deal with conserving this area and
conserving the habitat in that area, we are not going to be
able to keep this thing going in the State of New Jersey.
I have submitted written testimony to this effect in far
more detail, and I appreciate the opportunity to talk to you
today.
[The prepared statement of Mr. McDowell may be found at the
end of the hearing.]
Mr. Saxton. Thank you very much, Mr. McDowell.
We are going to deviate from our regular order now. At this
point, I would like to introduce the gentleman from North
Carolina, my friend, Mr. Coble.
Mr. Coble. Thank you, Mr. Chairman. I appreciate that.
Ken, my good friend, Jimmy Saxton, and I continue to try to
``outbrag'' each other concerning our respective districts. So
I want to do a little boasting, if I may, Mr. Chairman.
Ken Reininger is here to testify in support of H.R. 39, and
he is a Curator of Birds for the North Carolina Zoological Park
in Asheboro. Mr. Chairman, I would like to extend an invitation
to you and to the gentleman from the Eastern Shore, as well as
all other members of your Committee to come to Carolina because
this is one of two state-owned and operated zoos in the
country, and I think we are second to none.
Ken has a total of 24 years' experience as an agriculturist
and an avian collection manager in public zoological park
setting, including six years as the Bird Curator at the North
Carolina Zoo. He came to our zoo from the Burnette Park Zoo in
Syracuse and earned his B.S. in Multiple Science from Le Moyne
College in Syracuse, New York. And, Ken, I apologize for my
belated arrival. I have got to go to another meeting probably
before you finish.
But, Mr. Chairman, I thank you for letting me present Ken
to you.
Mr. Saxton. Mr. Reininger, we are pleased that you are here
today. And if all of those nice things that Mr. Coble said,
obviously, inasmuch as he said them, they must be true----
[Laughter.]
Mr. Saxton. And so why don't you proceed at this time, sir.
KEN REININGER, CURATOR OF BIRDS, NORTH CAROLINA ZOOLOGICAL PARK
Mr. Reininger. Thank you, Mr. Coble and Mr. Chairman. Thank
you for the opportunity to testify in support of H.R. 39, the
Neotropical Migratory Bird Conservation Act. My name is Ken
Reininger. I am Curator of Birds at the North Carolina
Zoological Park in Asheboro. The North Carolina Zoo is an
accredited member of the American Zoo and Aquarium Association.
It has been since 1974. The AZA represents 183 accredited zoos,
aquariums, oceanariums and wild animal parks in North America,
as well as most of its professional employees.
As Mr. Coble said, I have a number of years' experience as
an avian collection manager in a public zoo setting. I have
also had the pleasure of participating in a number of bird
recovery programs, including those for the Hawaiian Nene Goose,
the South African wattled crane and the Indonesian Bali mynah.
I have worked on field programs from North Carolina to South
Africa and other points around the world and also serve on
several AZA scientific advisory committees.
Mr. Chairman, I would like to take this opportunity to
thank you, Congressman Miller and Chairman Young of
reintroducing H.R. 39 and for conducting this hearing so early
in the session. I also thank the Chairman for making some of
the recommended changes offered by the administration in 1998.
As you are well aware, one of the greatest threats to many
species is habitat loss and degradation. One of the more
successful practices to reduce these pressures has been to
encourage habitat conservation in the form of public-private
partnerships, such as those mentioned earlier; the African and
Asian Elephant, Rhino and Tiger Conservation Acts. I believe
H.R. 39 will continue this relatively new formula of success
and, at the same time, complement existing conservation
programs and initiatives, such as Partners in Flight and the
North American Waterfowl Management Plan.
Although migratory birds are protected by the Migratory
Treaty Act and the United States is party to four other
bilateral treaties, as has been mentioned previously, a number
of migratory songbird species continue to face increasing
challenges throughout North America. These species face
challenges from forest fragmentation, a loss of habitat on
wintering areas and the loss of habitat at key migration
stopover sites.
I know from personal experience the importance of these key
areas, such as the Outer Banks of North Carolina, to birds
making the long migratory journey. Moreover, as previously
stated, over 90 North American bird species are listed as
endangered and threatened under the ESA, while another 124 are
currently are on the list of Migratory Nongame Birds of
Management Concern. Mexico lists some 390 bird species as
vulnerable or endangered. So much more needs to be done.
There needs to be a commitment from many at both ends of
the migratory route, from the wintering grounds in more
tropical regions, to the cooler northern breeding habitats and
all of the critical habitat in between to conserve these
species. Preserving habitat for neotropical migratory birds is
truly a team effort. We cannot allow continued fragmentation of
habitat to occur.
I know and understand the importance of community
involvement and the value of partnerships and educational
outreach for a wildlife conservation program to be successful.
Whether it is balancing the needs of bald eagles with logging
interests, land developers and power companies, as I had the
pleasure to participate in, in the Yadkin PeeDee Lakes region
of Central North Carolina, or involving South African trout
farmers in wetlands and wattled crane preservation, I have
learned the value of ensuring that all stakeholders are brought
into the problem-solving process.
I believe H.R. 39 is a step in that direction. The
legislation and its subsequent fund create a cooperative
atmosphere and the foundation for a win-win situation for
neotropical migratory birds and their important migratory
habitat, also for our international partners in conservation
and the millions of Americans who spend an increasing amount of
time bird-watching and on other bird-related activities.
H.R. 39 continues the innovative cost-sharing formulas from
early conservation measures, utilizing both Federal and non-
Federal support. Most of all, by establishing the Neotropical
Migratory Bird Conservation Fund, the United States elevates
the importance of protecting critical migratory bird habitat in
Latin America, and the Caribbean and throughout the Americas.
Moreover, from a biological perspective, H.R. 39 will help to
ensure that the ecosystems which neotropical birds and humans
depend on, are managed in a more sustainable way.
In conclusion, H.R. 39 represents the best in conservation
legislation--a targeted strategy to protect critical habitat
and biodiversity, a proven formula to foster public-private
partnerships through a competitive grant process and a program
that complements existing national and international programs.
As John Rogers stated last year in his testimony before the
Senate Committee on Environment and Public Works, ``The nature
of this `shared trust' resource makes migratory bird management
a true international challenge.''
Mr. Chairman, thank you for the opportunity to appear
before you today. I would be happy to answer any questions you
might have.
[The prepared statement of Mr. Reininger may be found at
the end of the hearing.]
Mr. Saxton. Thank you, Mr. Reininger, very much.
The National Audubon Society is most ably represented today
by Mr. Dan Beard.
STATEMENT OF DANIEL BEARD, SENIOR VICE PRESIDENT FOR PUBLIC
POLICY, NATIONAL AUDUBON SOCIETY
Mr. Beard. Thank you, Mr. Chairman. I am pleased to appear
before you today on behalf of the one million members and
supporters of the National Audubon Society throughout the
Americas, in strong support of H.R. 39.
This legislation, plus H.R. 381, introduced by Congressman
Jim Greenwood, are major steps forward in our efforts to
protect and enhance bird habitat in Latin America and the
Caribbean. I want to compliment Chairman Young, Mr. Greenwood,
yourself, and Mr. Miller for introducing these bills and giving
this matter the important attention it deserves.
I would like to express our wholehearted support for the
Neotropical Migratory Bird Conservation Act. This bill
addresses the important needs of protecting and enhancing
populations of neotropical birds, using effective and, we
think, relatively inexpensive means.
While neotropical migratory birds are beautiful and an
important part of our natural heritage, they have also become
fundamental components of our local economies. According to
surveys completed by the Fish and Wildlife Service, more than
63 million Americans watch and feed birds, and each year more
than 24 million Americans travel to watch birds. In 1991, the
last year we have specific data available, bird-watchers spent
more than $5 billion on goods and services related to these
activities and these expenditures generated more than $600
million in tax revenue for local, state and Federal
governments. Nonconsumptive bird use supports almost 200,000
American jobs.
Many of these remarkable creatures are disappearing due to
the loss and declining quality of habitat in the United States,
Canada and throughout Latin America and the Caribbean. If we
want to protect these birds, we must protect their habitat here
in the United States as well as Latin America and the
Caribbean.
H.R. 39 is an efficient bill because it does not rely
solely on the taxpayers for the funding of these programs. The
bill would encourage leveraging Federal dollars by helping to
build partnerships with the business community, nongovernment
organizations and foreign governments. The flexible matching
fund requirements of this bill will give the Department of
Interior greater flexibility to choose the appropriate
projects.
I would like to offer some suggestions to the Committee,
should the decision be made to move the bill. First, we would
urge that the Committee substitute the purposes language
contained in H.R. 4517, in the 105th Congress, for the language
that is currently in H.R. 39. The language in H.R. 39, as it
currently exists, especially in subsection (2), is overly broad
and does not include language calling for protection of
neotropical birds. We think that this is important.
Second, if a decision is made to report H.R. 39, I would
urge the Committee to consider adding language authorizing the
establishment of a neotropical migratory bird advisory
committee. H.R. 381 authorizes such a committee and we really
believe that it could be an important focal point for raising
the visibility of this issue among Federal agencies but more
importantly, in Latin America and in the Caribbean within the
institutions that exist there.
Third, the bill should be amended to make it clear that a
majority of the funds appropriated should be spent in Latin
America and the Caribbean. Habitat in these areas is in dire
need of restoration. Dollars spent in these areas will, in many
cases, have greater impact because of the lower cost of land
and labor. It would be a tragedy if we passed this bill and a
majority of the funds were spent in the United States. We don't
see that as the fundamental purpose of this legislation.
Finally, as currently drafted, H.R. 39 could potentially
allow the Secretary to make available all of the funds for
neotropical projects to U.S Federal agencies. I would urge you
to revise the language to ensure that a majority of the funds
be made available to foreign governments and nongovernmental
organizations to promote conservation projects in Central
America and the Caribbean.
If a bill passes and a majority of the funds are diverted
to U.S. Federal agencies, our efforts to save neotropical birds
will have been curtailed, and I think we will have lost a great
opportunity.
Mr. Chairman, again, I want to express to you our strong
support for this legislation. We appreciate you holding this
hearing and we look forward to working with the members of the
Committee to move this bill forward.
Thank you.
[The prepared statement of Mr. Beard may be found at the
end of the hearing.]
Mr. Saxton. Thank you very much, Mr. Beard.
The National Fish and Wildlife Foundation, better known
around here as the Foundation, is represented today by Dr.
Peter Stangel.
You may proceed, sir.
STATEMENT OF PETER STANGEL, Ph.D., DIRECTOR OF NEOTROPICAL
MIGRATORY BIRD CONSERVATION INITIATIVE, NATIONAL FISH AND
WILDLIFE FOUNDATION
Dr. Stangel. Thank you, very much. Good morning, Mr.
Chairman, and thank you for the opportunity to appear this
morning and express our support for this initiative. We would
like to commend you, and Mr. Young and your colleagues for your
leadership in this effort.
I think this initiative is one of the most exciting
opportunities we have had in bird conservation in recent
history, and if the program described in this bill is fully
developed, it will go a long way towards preventing dozens of
species of neotropical migratory birds from ever reaching the
endangered species list.
As you well know, the Fish and Wildlife Service and others
have estimated that about half of all of the neotropical
migratory birds are declining, and if these declines are
allowed to continue, literally dozens of species could reach
the endangered species list, creating an environmental disaster
the likes of which the conservation community has never
witnessed.
Despite this possibility, I don't think we are in a
situation where the sky is falling. I think there is a lot of
optimism, and I would liken the situation more to that what
occurs when you are driving down the road and the red light on
the dashboard of your car comes on, indicating that it is time
for an oil change. That red light suggests that, if you make a
small investment now and change your oil, you will save your
engine. I think that is exactly where we are with migratory
birds. The red light is on, and a modest investment now will
prevent disasters further down the road.
For the past ten years, the Foundation, the Fish and
Wildlife Service, Audubon Society, American Bird Conservancy
have been working cooperatively to develop a comprehensive
strategy for neotropical migratory birds called Partners in
Flight. We launched this effort because we felt it was critical
that we take a hemispheric approach to conservation of
neotropical migrants and that we take a cooperative approach.
Quite simply, the issue is too complex for any one organization
or agency to save migratory birds on their own, no matter how
much money they have. The only answer is to work cooperatively.
And after a decade of efforts on behalf of migratory birds, we
are convinced that this is still the best approach.
Over the past ten years, we have also had the opportunity
to run a grant program very similar to that which you propose
in this legislation, and we would like to offer a few
suggestions, based on our experience, that we think will assist
you with development of this bill.
First of all, we urge you to make this process as
cooperative as possible. As I said before, it is not possible
for any one organization or agency to fix this problem on their
own, and the only chance we have for these birds and their
habitats is to work cooperatively. At the Foundation, we do
this through a series of advisory committees that are informal.
We bring together experts from Federal agencies, State
agencies, industries and our nonprofit partners to work with us
to identify trends in conservation, help us select projects and
develop programs that benefit migratory birds. These advisory
committees help us foster partnerships and leverage our Federal
funds.
We think it is critical that the Service establish a
similar sort of advisory committee. It doesn't have to be a
bureaucratic exercise. We don't pay our committee members. We
don't fly them around the country to meetings. We simply meet
two to three times a year to exchange ideas and build
partnerships, and we think it would be particularly helpful if
the Service were allowed or excused from some of the FACA
responsibilities that might prohibit this sort of interaction.
Second, we fully support the idea of match for the Federal
funds in this program. Over the past ten years, the Foundation
has awarded 470 grants to benefit migratory birds. We are
required to have a one-to-one match for these grants. But, in
reality, on average, we obtain better than a three-to-one match
domestically and almost one and a half-to-one for international
programs. We think the Service is fully capable of the same
sort of match. This match not only leverages taxpayer dollars,
but it also strengthens the ability of the grantees to continue
the programs long after their grant funds are gone because they
develop a network for obtaining funds for future projects.
Third, we think it is very important that this Act include
continued opportunities to bring industry into this program.
When we launched Partners in Flight, we made sure that the
forest products industry, and the grazing industry and other
industries were present at the very beginning because we felt
that the future of neotropical migratory birds was on private
lands. Private lands dominate our landscape; 70 percent of the
country nationwide, 90 percent here in the eastern United
States. No matter how good our National Wildlife Refuge System
is, unless we reach out to private landowners, our efforts will
not be successful.
Two years ago, we established a cooperative agreement with
17 of the largest forest products companies to work with us in
conservation of neotropical migratory birds. We have awarded
over a million dollars of grants to these companies to leverage
their considerable financial resources and to establish
cutting-edge projects on private lands. These projects will not
only benefit industry, but will benefit Federal agencies and
other landowners, and we see it as critical that industry
continue to be an important component of this program.
And, finally, and perhaps most importantly, we would like
to recommend that the funds from this Act be used to implement
the conservation recommendations from Partners in Flight. For
the past decade, hundreds and hundreds of people from Federal
agencies, State agencies, industries and nonprofits have been
working together to develop comprehensive plans not just for
neotropical migratory birds, but for all birds. And these plans
are breaking the barriers between game and nongame management,
and they are building partnerships between agencies, and
nonprofits and industries that we only dreamed of in the past.
Quite simply, these are the best conservation plans for
birds that have ever been developed, and we think it is
essential that these funds be used to implement the
recommendations from those plans. We don't need more funds to
develop studies or to prioritize. That has already been done.
And we think the most effective use of these funds would be to
implement these programs.
Thank you for letting us appear in support of this
initiative, and we look forward to working with the Service and
other partners to help conserve these species.
[The prepared statement of Mr. Stangel may be found at the
end of the hearing.]
Mr. Saxton. Thank you very much, Dr. Stangel. We appreciate
your optimism, and we believe that this legislation will go a
long way towards carrying out the kinds of objectives that you
have just mentioned.
Christopher Williams, with the World Wildlife Fund, is our
next witness.
You may proceed, sir.
STATEMENT OF CHRISTOPHER E. WILLIAMS, DIRECTOR OF U.S. SPECIES
CONSERVATION, WORLD WILDLIFE FUND
Mr. Williams. Thank you, Mr. Chairman. Thank you for the
opportunity to come and talk to the Committee today.
I am here on behalf of the 1.2 million members of World
Wildlife Fund to express support for H.R. 39, the Neotropical
Migratory Bird Conservation Act of 1999.
Mr. Rogers and my fellow panelists have done a terrific job
of describing the plight of migratory birds and the need for
this legislation. So I would like to spend a few minutes
talking about what World Wildlife Fund considers to be the
strong points of this legislation and then make recommendations
that we believe will make it even stronger.
One aspect of the bill that we feel makes it a strong,
creative, and very useful tool for conservation is that it
encourages proactive conservation measures that go beyond
regulation to conserve neotropical migratory birds. Regulation
is an important tool for conserving wildlife, endangered
species, and migratory birds and, in fact, it may be that more
regulation is necessary to really achieve the goal of
conserving neotropical migrants.
However, it has become obvious, over the past 25 years of
environmental law and regulation, that regulation is not enough
to do the job. We must enlist private landowners, corporations,
entities all across the spectrum in voluntary, proactive
measures to conserve and restore wildlife habitat and
populations. This bill, with its expansive language of who is
eligible for funding and the types of projects that can be
funded, goes a long way toward moving us toward those proactive
conservation approaches.
A second strong point of the legislation, in our view, is
its fostering of partnerships: fostering partnerships across
international borders, fostering partnerships between agencies,
local communities and private landowners to conserve migratory
bird populations and habitat.
With that, I would like to suggest a few recommendations
that would make the bill still stronger, in our view.
First, we believe that the bill should be amended to
explicitly include Canada in the program. While there is no
language right now in the bill that explicitly eliminates or
prohibits funds from going to Canada for the conservation of
migratory birds, the language of the bill, as written, suggests
that its scope be limited to the United States and Latin
America. As we all know, there are many migratory birds that
make the long journey from the Arctic Circle deep into South
America during their migratory route. If we want to make this a
truly hemispheric initiative benefiting birds, such as the
American golden plover, the semipalmated sandpiper, or the
American peregrine falcon, Canada should be included in the
program.
The second recommendation that we would make is to raise
the ceiling that now limits the Federal cost-share to 33
percent. I believe that cost sharing is an important tool and
the funds from the Act should be used to leverage conservation
resources from other sources. However, poorly funded
conservation agencies or local communities in Latin America or
local NGOs who are strapped for resources are going to have a
very hard time coming up with a 67-percent match to qualify for
funds coming from the program. So I believe that the match
limitation should be on a sliding scale from 33 percent up to
as much as 75 percent, again, to empower communities and
agencies with fewer resources to be involved in the program.
And the third recommendation that I would make is that the
annual appropriations in the later years of the program be
increased. We heard from Mr. Rogers that $8 million was
adequate for our immediate purposes, and I will take him at his
word. But in my view, during the out-years of the program, the
appropriation should be increased as the program gets its legs
under it and more projects could potentially come on-line.
That is the extent of my oral comments today. I am happy to
answer any questions you may have, and thank you for the
opportunity for World Wildlife Fund to express our thoughts on
this important issue.
[The prepared statement of Mr. Williams may be found at the
end of the hearing.]
Mr. Saxton. Thank you very much.
I would now like to ask the gentleman from the gorgeous
Eastern Shore of Maryland if he would like to make an
introduction.
Mr. Gilchrest. Thank you, Mr. Chairman.
Turner's Creek and the Sassafras River.
I would like to introduce Mr. Winegrad, Gerald Winegrad,
Delegate from the State of Maryland to the General Assembly for
a number of years, and pretty much--I know we are calling for
partnerships here, but partnerships require leadership, and I
am not going to say totally singlehandedly, but Mr. Winegrad is
responsible for just countless numbers of environmental
policies that have proven to be very successful in preserving
the beautiful Chesapeake Bay and habitat for a number of
species.
So, Jerry, it is good to have you in the Nation's capital
this morning, and it is good to see you again. We are glad that
you are participating in this panel this morning. I see you
have, at least to me, anyway, it is a new job. So that is good.
Welcome, Jerry.
STATEMENT OF GERALD WINEGRAD, VICE PRESIDENT FOR POLICY,
AMERICAN BIRD CONSERVANCY
Mr. Winegrad. Thank you. Thank you, Mr. Chairman, and thank
you very much, Representative Gilchrest. Mr. Gilchrest is my
Congressman. I am proud to be one of his constituents, and his
environmental leadership is known throughout our great State
and throughout the United States.
I am Gerald Winegrad. I represent the American Bird
Conservancy. I am Vice President for Policy and, as
Representative Gilchrest said, I am a recovering politician as
well. I did serve in the Maryland legislature for 16 years and
chose not to run again. So I have dedicated myself to working
in conservation, and here I am.
We are a nonprofit conservation group dedicated to the
conservation of wild birds in the Americas. We operate with
many different programs run by excellent ornithologists,
including the National Coordinator for Partners in Flight who
works for us. We do the Important Bird Areas program in
conjunction with National Audubon. We have a Pesticide and
Birds Campaign and a full-time coordinator working on
pesticides impacts on wildlife, as well as a CATS INDOORS!
coordinator and a collaborative partnership through a 78-member
organization Policy Council. That includes groups such as
National Audubon and World Wildlife Fund, present here, as well
as groups such as the New Jersey Audubon Society, the Maryland
Ornithological Society, Del Marva Ornithological Society and
groups all over the country.
We are very pleased to support H.R. 39 and hope that this
is a beginning of a recognition by the Congress of the need for
a comprehensive approach to resolve the very serious threats to
migratory bird populations in this country and in nations to
our south. These threats include habitat loss, habitat
degradation, habitat fragmentation, pesticides and other
contaminants, introduced exotic species, human-constructed
barriers to migration, such as communication towers, free-
roaming domestic cats, and insufficient funding, both in this
Nation, as well as nations to our south, and incentives to
better manage existing habitat.
This legislation is particularly opportune because of the
very significant increase in people's concerns over birds. Bird
watching is big business. You have heard the figures from 1991.
Over $5 billion in direct expenditures related to feeding,
watching, viewing and traveling to watch birds.
In fact, the studies show that through the year 2050, it is
expected to be the only outdoor recreation that actually grows
greater than the increase in population. There are over 70
million Americans that participate in some manner of bird
activities.
Having said that, the decline is significant in many of our
neotropical migratory birds and other migratory bird species.
You have heard the figures. There is data in my statement. But
of serious concern to this subcommittee, this committee and the
Congress should be the fact that, of the 800-and-some species
in our country, 778 of which are nongame species, of these
species, fully more than one-quarter are either listed as
endangered or threatened under our Endangered Species Act--that
is 90 species--and another 124 on the Migratory Nongame Birds
of Management Concern list published by the Fish and Wildlife
Service. There is grave concern that these species may, one
day, be listed or are in decline or need specialized local help
to keep them from going into decline.
And many of those species you would recognize. They include
species that are common to the Eastern Shore, such as the marsh
hawk, also known as the northern harrier. That is a species of
concern. The common loon is a species of concern, the snowy
plover, the red-shouldered hawk, the American bittern, the
black tern, the short-eared owl, the red-headed woodpecker that
we see here in the East, all of these are species of concern,
coupled with the 90 species that are on the endangered species
list, from whooping cranes to the piping plover that you have
mentioned, Mr. Chairman, that New Jersey shares with Maryland's
Eastern Shore, as well as the Aleutian Canada Goose and the
Everglade snail kite.
We see this legislation as a beginning of a great movement
forward of the Congress and the United States to protect and
conserve these neotropical migratory bird species.
We would suggest in the legislation, having as a background
Senator Abraham's bill of last year, Senate Bill 1970, and S.
148 this year, as well as the other iterations that went back
and forth near the end of the last Congress, that, number one,
that we would like to see--joining some of our colleagues--the
funding increased for the percentage share. It would really
help if we could go to 50 percent for U.S. projects from the
Federal money and 50 to 75 percent, depending on the priority
needs, as the Secretary determines, for funding south of the
border.
We would also suggest that there be an advisory committee
spelled out in the legislation. The Partners in Flight program
is excellent. The North American bird conservation plan is
nearing completion. They should be completed this year for 51
geophysical regions of the country, with very specific planning
for priority species that will need to be funded. And that
expertise has burgeoned into a Partners in Flight program in
Canada, and now the North American Bird Conservation
Initiative, which also involves Mexico. There were very
successful meetings just last year in Puebla, Mexico. These
programs are extant, need to be funded and should be recognized
in the legislation.
With that, we urge the Congress to pass this legislation
expeditiously and, most importantly, to fund, in this fiscal
year, the full $8 million or else this will be another nongame
bill that never makes a difference because of no funding.
[The prepared statement of Mr. Winegrad may be found at the
end of the hearing.]
Mr. Saxton. Well, thank you very much.
Before I ask Mr. Gilchrest for his questions, let me just
make note, in my opening statement, I noted that our
Subcommittee has been very productive over the past four years;
that we have held 82 hearings, 22 markups, and 60 of our bills
have ended up being law.
The road to doing that, in today's environment, can be
bumpy at times. But we, as a Committee, have been able to move
forward, and the members and the Chairman have been able to
take credit, but we didn't do the hard work. We have folks in
back of us here who have made it possible for Neil Abercrombie,
and Jim Saxton, and Don Young, and George Miller, and Gary
Studds to go to the floor on a bipartisan basis and do the work
of the country, usually in the conservation sense.
Today, I would just like to say that two of the people who
have made this possible are soon to leave us. It is Chris Mann,
who came to the committee as a Sea Grant Fellow in the late
1980s and then, actually, the Merchant Marine and Fisheries
Committee, at the time, and worked with the Merchant Marine and
Fisheries Committee and is now in his fifth year here. We have
had a great working relationship with Chris, and he is going
over to the State Department, where we will continue to work
together on conservation issues and, hopefully, continue the
same kind of progress, only in a more far-reaching way, even,
than we have been able to do here.
Chris, it has been a pleasure to have you with us, and we
look forward to continuing the great relationship, and we will
miss you, to say the least.
Also, soon to depart Washington, DC, is the young lady to
my right who came to us after a short stint working as a
staffer in the Senate, came to work on my personal staff, and
has been making me look smart ever since, I think.
[Laughter.]
Mr. Saxton. And Sharon has, obviously, been with this
Committee since the Merchant Marine and Fisheries Committee
went away and was a staffer on the Merchant Marine and
Fisheries Committee before that. She and her family, two kids
and Mike, have already actually moved back to New Jersey. Mike
is working for the Atlantic City Press, and Sharon will be
going back. You won't see as much of her, but I will because
she is going to be living in my district, fortunately, and I
will miss Sharon a great deal as well.
I just wanted to make note of these two individuals because
they have been such a key part of the successes that we are
able to claim, and we will miss you both here in Washington
very much. But I am sure we will see you both in different
capacities very often.
So, with that, Mr. Gilchrest, if you would like to ask
whatever questions you think are pertinent.
Mr. Gilchrest. Thank you, Mr. Chairman.
I don't have any real specific questions. I appreciate the
testimony with their clear direction for recommendations, which
I think will help continue to improve the legislation. Some of
them, for example, cooperate with a whole range of partners,
including the public and the private, the ag community, the
forestry logging community, the subdivision community, the
construction industry and so on. So I think these are all very
helpful recommendations that we can take and, to the extent
that it is possible, turn into law and appropriate the kind of
funds that will be needed. Funds around Washington are becoming
increasingly more scarce, so it does take a lot of effort on
the part of us, the staff and all of you to make these things
happen.
I would like to describe a situation that I am working on
in Maryland, if I can be parochial for a second, that will
include a section of New Jersey, and Virginia and a piece of
Pennsylvania, and I have talked to Frank about this--LoBiondo.
He has Cape May, doesn't he?
I would like to solicit some of your help in creating a
long-term project, and which I am going to refer to as a
habitat conservation corridor that will go from the lower
Eastern Shore of Virginia up through the DelMarva Peninsula,
including Delaware, a piece of Pennsylvania, and the flyway of
New Jersey, right across the Delaware River. It has been in the
discussion stage right now. We are going to meet with Governor
Carper I believe the latter part of March, the first part of
April. The Department of Natural Re-
sources in Maryland, we have had a number of discussion with
them, Jerry. We have had some brief discussions with their
counterpart in Delaware.
We have not had any discussions with anybody in New Jersey.
So it is really an opportunity, Mr. McDowell, that you are here
today because when we set up the time frames for these
meetings, we would really like your participation. And we stuck
New Jersey in there, besides the fact that it is a beautiful
state, the Garden State, because we did recognize that those
are some of the areas where these neotropical birds migrate
through, and it is some pretty beautiful habitat up there that
could be preserved.
So it is a long-range plan. It is something that will have
to be done with conservation easements, with voluntary
easements, with maybe open-space ag preservation purchase of
property, environmental trusts, a whole range of people we feel
could participate in this.
Two other quick things, we realize that the coastal areas
of New Jersey, Maryland and Virginia are very important to
preserve and so are the shorelines of the Chesapeake Bay.
Several of you mentioned the idea that the problems with
neotropical birds is fragmentation of their habitat. What we
want to do with this habitat conservation corridor is to make
sure there is nothing fragmented. So if you can picture,
perhaps, a tree and its roots, with the center trunk going up
the middle of Del Marva, but the roots reaching out to the
shorelines of the bay and the coastlines of the ocean, not
fragmented. And our DNR has a number of really good maps to
show the most prioritized areas that can be preserved.
So this is something that it was an opportunity that you
all came here this morning. We would like to send you the
information as we progress. And the concept is like the
Appalachian Trail. We know it is not going to happen in two
years, but the Appalachian Trail and its similar counterparts
around the country, the Long Trail in Vermont, the Sierra
Nevadas and those things, it took a long time to actually
connect, put together. And so this is what we are going to try
to do here.
Mr. Beard. Mr. Chairman, I wonder if I might be able to
comment?
Mr. Saxton. Please proceed.
Mr. Beard. Mr. Gilchrest, I think this is an absolutely
fascinating idea. The one analogy I thought of was the
historical corridors that we have done through park
legislation. Mr. Regula, for example, has been very supportive
of that in his State, and we have also done a number of
historical trails, such as the Underground Railroad
legislation.
The importance of what you can bring to this kind of a
concept is a framework within which State governments, local
governments, private nonprofit organizations and private-sector
interests can operate within that overall framework. A
designation as a habitat conservation corridor is an exciting
concept because what that can do is provide the framework, the
structure, within which the rest of us can do individual
projects.
It also offers us an opportunity to make some headway in
dealing with some very difficult issues. The one that comes
immediately to mind is horseshoe crabs. One of the difficulties
we are having is getting people's attention that horseshoe
crabs are fundamentally important to the ecotourism. It is a
business issue, as well as an issue of migratory birds. Having
a habitat conservation corridor like that, with some
designation, would give us the context within which we can
work.
It will also improve the relationship between Delaware,
Maryland, New Jersey and Virginia. Horseshoe crabs are, again,
the classic example. Governors of the States of New Jersey,
Delaware and Maryland have been very aggressive in managing
those horseshoe crabs and protecting birds, but Virginia
hasn't. As a result, in organization, for example, we have to
run from state to state to try to make some headway, and right
now we are not making as much as we would like in Virginia.
Mr. Gilchrest. We'll put them all in the same room for you.
Mr. Beard. That is great. We would love it. It would be a
great opportunity for us.
Mr. Gilchrest. Thank you.
Mr. McDowell. Could I comment?
First of all, we would welcome any opportunity to get
involved in some coordinated State effort to protect habitat.
Our governor just passed through the legislature the Open Space
Initiative in the State of New Jersey which, in the end, we are
about 4.8 million acres, we will protect about 2 million of
that total, whether it be a conservation easement or a direct
purchase or a farmland preservation.
One of the focus areas in our State is Cape May and the
Delaware Bay. Between the Wildlife Refuge System, our Wildlife
Management Area System, we own most of the Bay shore of
Delaware Bay. Currently, we are protecting two joint venture
areas under a water fowl plan, both the Morris River and the
Salem River, and we have initiated what is called the Landscape
Project, and its focus is Cape May County. The Landscape
Project uses the GIS mapping system. It identifies critical
wildlife habitats and the linkages and takes that down to the
Planning Board level and the landowner level of saying, ``Hey,
watch out. This is an important area. How can we work around
it?'' So that there is continuity in the habitat.
So anything we could do to continue that, advance that,
participate in with other States, we would be welcome and open
to doing it.
Mr. Gilchrest. That is great.
Mr. Chairman, I do see the need, after a few newspaper
articles, to increasing habitat for the wildlife in New Jersey
because you have tigers there now, so----
[Laughter.]
Mr. Gilchrest. [continuing] you will probably have to
increase it.
Mr. Saxton. That is a subject----
Mr. Gilchrest. Bengal tigers----
Mr. Saxton. [continuing] of different stripes, sir.
[Laughter.]
Mr. Gilchrest. I would like to make, just very quick--
Jerry, in Kennedyville, there is an increase of marsh hawks. In
the last few years, we have really seen them rise, a few extra
nesting bald ea-
gles, even a golden eagle came through at one point--I haven't
seen it for quite a while, and I guess it was migrating--and
Baltimore orioles. I got a couple of Baltimore orioles' nests
in the front yard last summer.
Mr. Saxton. Would you care to comment on your nutria?
Mr. Gilchrest. The nutria, well, I will say this, Mr.
Chairman: And I don't have the exact date, but I will get it to
everybody. Nutria is a nonindigenous species that is a real
pest that we would like to send back to Latin America, in some
capacity, or to restaurants because they are taking away a lot
of our wetlands.
And, Mr. Chairman, I will get you the specific date that we
are going to Blackwater Refuge to have a meeting on nutria, and
the meeting will end with a meal of nutria. So anybody that
would like to participate in that, we will get you the dates.
Thank you.
Mr. Saxton. I will look forward to the meal.
[Laughter.]
Mr. Saxton. Well, I would just like to thank all of you for
taking your time to travel here and to share your ideas
relative to this issue.
Once again, it appears that we are working with the
conservation community, with other members, on a bipartisan
basis, to do something that obviously has general agreement in
a very broad way. And while there may be some differences and
tweaking of language that we will do between now and the time
this bill passes the House, to the extent that you have added
to this conversation, we appreciate it very much.
We look forward to working with you on this and other
issues as we move forward. Thank you very much.
The hearing is adjourned.
[Whereupon, at 11:13 a.m., the Subcommittee was adjourned.]
[Additional material submitted for the record follows.]
Statement of John Rogers, Deputy Director, U.S. Fish and Wildlife
Service, Department of the Interior
I am pleased to be here to comment on H.R. 39, the
Neotropical Migratory Bird Conservation Act, which will aid in
the international conservation and management of neotropical
migratory birds by supporting conservation programs and
providing financial resources. The Administration supports the
legislation, as it provides a mechanism for coordination and
funding to promote the conservation of neotropical migratory
birds and their habitats throughout Latin America, the
Caribbean and North America. We acknowledge that other House
members have introduced another bill. In addition, the Senate
has their own version of this legislation which we could also
support. We will be happy to work with the Subcommittee, other
House members and the Senate to resolve the differences in the
bills and to ensure that the final legislation serves the needs
of neotropical migratory birds with the best program possible.
We would like to thank Chairman Saxton of the Subcommittee
and Chairman Young and Ranking Member Miller of the full
Committee for co-sponsoring this important legislation. H.R. 39
incorporates many of the comments and suggestions the Fish and
Wildlife Service (Service) and Administration had provided to
the Subcommittee last year.
H.R. 39 establishes a grants program to provide financial
assistance to Federal, State, local and Latin American/
Caribbean government agencies, non-profit and international
organizations, and others to fund projects for the conservation
of neotropical migratory birds. The legislation recognizes the
need for international cooperation for these conservation
efforts and establishes a grant selection process to ensure
that projects focus on long term sustainability of local
conservation efforts. The bill establishes a Neotropical
Migratory Bird Conservation Account in the Multinational
Species Conservation Fund and limits the Federal cost-share of
the projects to 33 percent. We are pleased with the flexibility
this legislation provides and with the increase in
authorization of appropriations to $8 million per year through
fiscal year 2004 to enable the Service to increase the size and
scope of the program during the next 4 years.
The Service--through four bilateral treaties--has
responsibility for maintaining healthy populations of some 778
species of migratory nongame birds and 58 species of migratory
game birds, approximately 350 species of which (the so-called
``neotropical migrants'') migrate between the Caribbean/Latin
America and North America. Migratory birds continue to face
enormous and increasing challenges. Thus, the Service has
identified migratory bird conservation as one of our four
highest priorities for the coming year.
Despite our best efforts to date, many populations of
migratory birds continue to decline, some quite markedly. For
example, 124 species of migratory birds are currently on the
Service's List of Migratory Nongame Birds of Management
Concern. If population trends of these birds continue on their
present downward course, the next place for these species may
be on the List of Endangered Species. Ninety species of North
American birds currently are listed under the Endangered
Species Act (ESA). Mexico presently lists some 390 bird species
as endangered, threatened, vulnerable, or rare. These current
and projected future losses have far-reaching implications:
economic, social, ecological, and recreational.
Birds are important to us for many reasons--whether we
reside in North America, Latin America, or the Caribbean.
Birdwatching and other forms of bird-related recreation are
highly valued pastimes in North America, with a growing
interest in the Caribbean and Latin American countries. Nearly
70 million Americans spend approximately $20 billion each year
participating in bird-related recreation. Birdwatching is
America's fastest growing major form of outdoor recreation.
Additionally, birds prevent billions of dollars of economic
losses each year by eating crop-damaging insect pests and weed
seeds in North and Latin America and the Caribbean. They are
important pollinators of many commercially valuable plants.
Neotropical migratory birds are thus an important component of
biological diversity in the Western Hemisphere.
Neotropical migratory birds spend approximately five months
of the year at Caribbean and Latin American wintering sites,
four months at North American breeding sites, and three months
en route to these areas during spring and autumn migrations.
The nature of this ``shared trust'' resource makes migratory
bird management a true international challenge. Our greatest
challenge is to halt the precipitous declines of many of these
species--due in major part to habitat destruction and
degradation. H.R. 39 is a major step in the right direction in
helping to reverse these detrimental trends. Severely declining
bird species are causing grave concerns among natural resource
managers and the public in both Caribbean and Latin American
countries and in North America. H.R. 39 will help the U.S. and
our international partners reverse species declines, conserving
bird populations before they reach the point of requiring
protection under the ESA. Equally as important, the legislation
will help keep our ``common'' birds common, minimizing the
expenditure of tax dollars and precluding the legal and public
relations battles that have been known to surround endangered
species listing issues.
Furthermore, H.R. 39 does much to promote the effective
conservation and management of neotropical migratory birds by
supporting conservation programs and providing financial
resources. H.R. 39 would require the Secretary of the Interior
to develop and enter into agreements with other Federal
agencies. The Department of the Interior is committed to
coordinating with other agencies, including the Department of
State and the U.S. Agency for International Development
(USAID), in efforts to conserve neotropical migratory birds.
USAID manages large ongoing programs in conserving neotropical
migratory birds as well as habitats in general.
We support this legislation because it will provide
conservation benefits to all of our migratory birds, from
shorebirds to raptors, marine birds and grassland birds. This
visionary Act will help to unite all of the Americas in a
coordinated effort to protect a vital component of our shared
biological diversity. In conclusion, Mr. Chairman, we look
forward to working with the House and Senate committees of
jurisdiction throughout the legislative process to ensure that
we develop a strong program for the conservation of birds
throughout the Western Hemisphere. Again, thank you for the
opportunity to provide our views on this important legislation.
------
Statement of Robert McDowell, Director, New Jersey Division of Fish,
Game and Wildlife for the International Association of Fish and
Wildlife Agencies
Thank you, Mr. Chairman. I am Robert McDowell, Director of
the New Jersey Division of Fish, Game and Wildlife,
representing the International Association of Fish and Wildlife
Agencies, and I appreciate the opportunity to share with you
the Association's perspectives on H.R. 39, the Neotropical
Migratory Bird Conservation Act. The Association supports H.R.
39 as a good start to address the needs of this important group
of migratory birds at the southern terminus of their migratory
route, but will also point out the unfulfilled conservation
needs for these species in the United States and for domestic
programs to address those needs.
The International Association of Fish and Wildlife
Agencies, founded in 1902, is a quasi-governmental organization
of public agencies charged with the protection and management
of North America's fish and wildlife resources. The
Association's governmental members include the fish and
wildlife agencies of the states, provinces, and Federal
governments of the U.S., Canada, and Mexico. All 50 states are
members. The Association has been a key organization in
promoting sound resource management and strengthening Federal,
state, and private cooperation in protecting and managing fish
and wildlife and their habitats in the public interest.
As you are aware, Mr. Chairman, the Association has long
played an active role in migratory bird conservation, from the
negotiation and ratification of the Migratory Bird Treaty in
1916 and passage of the MBTA in 1918, to the North American
Wetlands Conservation Act. The Association has also given the
highest priority to securing the necessary funding to enable
our State fish and wildlife agencies to address the
conservation needs of the so-called nongame wildlife species
(such as Neotropical migratory birds) and their habitats before
they reach a point where the application of the Endangered
Species Act is necessary. I know that you are familiar with our
``Teaming with Wildlife'' proposal, Mr. Chairman, to accomplish
those objectives. We hope to be able to fulfill those
objectives with the passage of the Conservation and
Reinvestment Act from Chairman Young and Congressman Dingell in
this Congress. The Association and our member State fish and
wildlife agencies are also very active in Partners-in-Flight,
the Western Hemisphere Shorebird Reserve Program, the North
American Waterfowl Management Plan, and other international
endeavors to conserve migratory birds throughout their range.
The Association therefore supports H.R. 39 as another measure
to facilitate the conservation of migratory birds, particularly
in Latin America and the Caribbean.
Most of our member State fish and wildlife agencies
participating in the North American Waterfowl Management Plan
are currently sending matching funds to both Canada and Mexico
to facilitate the conservation objectives of this plan. Our
agencies in the border States of California, Arizona, New
Mexico and Texas are already engaged in conservation efforts in
Mexico and other Latin American countries to restore indigenous
fauna. We anticipate that our State fish and wildlife agencies
would likewise participate in the matching fund protocol that
H.R. 39 would estab-
lish for neotropical migratory bird species conservation in
Latin America and the Caribbean.
The Association recognizes that effective conservation of
the 800+ species of birds that occur in the United States
during some part of their life cycle requires the cooperative
efforts of conservationists at international, national,
regional, state and local geographic levels. The efforts of
these conservationists should be guided by a logical framework
of planning (population and habitat surveys, inventory,
monitoring actions and development of conservation strategies
and measurable conservation objectives), implementation (on-
the-ground habitat conservation actions, education, training
and research) and evaluation (assessment of effectiveness of
implementation actions and progress toward conservation
objectives). This process of planning, implementation, and
evaluation, coordinated at multiple geographic scales (from
local to international), provides an adaptive approach to
delivery of migratory bird conservation that identifies
priorities, measures progress, and constantly refines the
efficacy of conservation efforts. This approach, however,
cannot be fully realized without a firm foundation of technical
and administrative capability, strengthened and integrated
partnership cooperation, and a clear recognition that migratory
bird conservation must be managed within a continental and
international context. The Association has recently created an
ad hoc Committee on Migratory Bird Funding to make progress on
the effort to improve our abilities to effectively conserve
migratory birds within a continental and international context.
Let me now relate to you a few examples demonstrating that
in order to successfully secure the conservation of these
neotropical migrants, we need to address their life needs and
habitat requirements both in the United States which
encompasses their breeding range, in stopover habitats these
species use during migration, and in the southern terminus of
their migration, which is their winter range.
The Cerulean Warbler is a neotropical migratory bird that
breeds across the eastern United States and winters in northern
South America, mostly to the east of the Andes mountains. The
North American Breeding Bird Survey indicates that this species
has declined significantly between 3.5 and 4 percent each year
for the past 30 years on the breeding grounds in the United
States, primarily as a result of loss and fragmentation of
bottomland hardwood forest. During the non-breeding season, the
species is known to frequent coffee farms in Latin America
where it forages in the mid-story and canopy vegetation
provided as shade for the growing coffee plants. However, much
of that acreage is being converted to sun tolerant varieties of
coffee. Sun tolerant coffee plantations do not provide the kind
of habitat needed by over-wintering Cerulean Warblers. The
effects of widespread loss of habitat on the wintering ground
are likely to only compound the threats to survival faced by
this species. Protection of both existing breeding and over-
wintering habitat is critical, and restoration of extensively
forested landscapes and river bottoms is encouraged.
On the west coast of the continent, the Alaska shorebird
working group is developing a statewide comprehensive
monitoring program. Since nearly the entire world population of
Western Sandpipers breeds in Alaska, monitoring of population
numbers and productivity of this abundant species must occur in
Alaska. Funding is critically needed for state participation in
monitoring of breeding populations. Much of the habitat in
significant migration staging areas such as the Copper River
Delta, Kachemak Bay, and Stikine River flats is state owned
tidal flats. Funding is needed for management and conservation
of these significant habitats.
Western Sandpipers winter along the Pacific coast from
California to Peru, and also to a lesser extent on the Atlantic
and Gulf coasts of the U.S. During migration, they have
spectacular congregations at staging sites. Major stopover
sites during spring migration include San Francisco Bay, Grays
Harbor, the Fraser River delta in British Columbia, and the
Copper River Delta in Alaska. At the Copper River, it is
estimated that as much as 90 percent of the world population of
the species collects to feed before moving on to the breeding
grounds--almost 2 million individuals were counted on one day,
and 6.5 million were estimated during migration in one spring.
Conservation risks now are mainly due to threats to habitat at
staging sites on this species migration route.
I would like to close with a few observations relative to
the significance of familiar New Jersey habitats to neotropical
migratory birds. Many of the neotropical migratory bird species
use the Atlantic coast as a major north-south thoroughfare.
Along this migration highway weather and the need for food
often force birds to delay their journey. The areas where they
delay, or stopover areas, are the most important habitats along
a migrant flight path. For many species, especially those
making long flights like the red knot, scarlet tanager and
osprey, the protection of quality stopover habitat can make the
difference between a species survival and extinction.
The Delaware Bay and Cape May Peninsula are among the most
important stopovers in the world. The reasons are numerous:
The fall flight through Cape May not only includes
over 150 species of passerines and 21 species of raptors, but
also woodcock and over 30 species of migratory butterflies and
dragonflies.
The spring stopover of shorebirds through the Delaware
Bay, one of the top three in the world, includes over 15
species, some making round trip flights of over 20,000 miles.
Both fall and spring migrants gain weight while
stopping over and this weight can be crucial to the success of
their migration. Shorebirds double their body weight before
flying non-stop to arctic breeding grounds. The primary
resource is horseshoe crab eggs and the bay is the only place
in the world where crabs occur in sufficient number to produce
enough eggs for birds to gain more than 3-5 percent of their
body weight/day.
The Cape May peninsula and the Delaware Bay is one of
the most used ecotourism destinations in the country. An
estimated $30 million in the fall and an estimated $5-$10
million in the spring are spent each year by visiting birders
alone.
The wide diversity of bird species requires a wide
array of habitats, distributed over a large part of the
bayshore and peninsula. In other words, the birds require a
functioning ecosystem right in the very heart of the New York-
Washington megalopolis.
A major portion of the U.S. human population, nearly 15
percent, is within a three-hour drive of this area. This adds
incredible pressure in almost all areas of potential impact:
land development, disturbance, contamination, and catastrophic
oil spills. But if we are to protect this stopover habitat, we
must also conserve the integrity of the ecosystem in which
these habitats occur.
In consequence, the bay and peninsula have been the subject
of numerous protection attempts. In the last 15 years we have
seen nearly every major national program play some role in
protection. The bay has been designated a RAMSAR site, a WHRSN
Hemispheric site, an EPA Estuary of National Significance, and
a TNC Last Great Place, to name a few. It has been ranked near
the top of several land acquisition programs including the Land
and Water Conservation Fund program, a North American Waterfowl
Management Plan Joint Venture, as well as the New Jersey state
Green Acres Program. The areas include four National Wildlife
Refuges including the recent Cape May National Wildlife Refuge,
three different wild and scenic rivers (two sections of the
river and one tributary), many state Wildlife Management Areas
on both sides, and a large number of parcels held by private
conservation organizations.
Yet despite this extraordinary protection, there are clear
signs of major needs for these wildlife species that remain
unsatisfied. The fall migration is threatened because nearly 40
percent of all migratory bird habitat has been lost between
1972 and 1992, the period of greatest protection activity.
These problems can only be corrected with a significant
increase in conservation efforts and programs directed at these
problems. The New Jersey Division of Fish, Game and Wildlife
has piloted a number of projects using funds from private
foundations and mitigation agreements that with stable and
significant funding can lead to permanent protection. These
pilot projects suggest the conservation of both the spring and
fall flight of migratory birds can be accomplished with new
programs aimed at an increased involvement of citizens,
municipal and local governments, and an additional emphasis by
state fish and wildlife and land management agencies.
The first job would be to create landscape level mapping of
significant wildlife habitat areas that would be made widely
available, and characterized not only as key habitat for
wildlife, but as indicators of our community quality of life.
These maps can be based on satellite imagery and could be
redone regularly to provide feedback to community organizations
on the real impact of the conservation of these habitats.
This regional scale mapping can be used to facilitate the
coordination of state and Federal level activities that include
consideration of migratory birds such as land acquisition, and
application of conservation and habitat management programs.
At the county and municipal level, state fish and wildlife
agencies can assist land use planners in the development of
land use ordinances that reduce impact to migratory birds and
recommend zoning classifications to protect areas of greatest
importance. This could include, for example, changes to the
minimum amounts of land cleared for each new house or the width
of setbacks for roads and property.
At the private landowner level, state fish and wildlife
agencies can affect habitat in two ways. For large private
landholdings, we can develop management plans that allow bird
habitat protection while still achieving landowners' goals. To
encourage protection, we would take advantage of existing
financial incentives from other agencies such as farmland
conservation programs under the Federal farm bill and other
state and Federal programs. We can also refer landowners of
valuable wildlife habitat to programs of land acquisition,
conservation easements, or purchase of development rights if
they are interested in long-term conservation.
Backyard habitat for migratory birds can also be created or
enhanced by working with individual homeowners. We can target
developments that are adjacent to important areas and have
created a state program to certify backyard wildlife habitat.
We can also use additional funding to create incentives to
manage backyards. State fish and wildlife agencies can also
work with developers to certify entire new developments as
migratory bird sanctuaries. Working with homeowners has the
additional benefit of creating habitat in areas where habitat
has already been lost, namely housing developments.
These project elements were embraced by the Northeast
Partners in Flight working group as a realistic way to conserve
stopover habitat throughout the mid-Atlantic region, from New
Jersey to Virginia. Unfortunately, funding is currently
unavailable for this forward-looking endeavor.
I share these examples with you, Mr. Chairman, to highlight
the very vital needs that these species have in both their
northern and southern habitats. Towards addressing those needs,
the Association certainly supports H.R. 39 as a good first step
in the right direction. We also look forward to working closely
with you to successful passage of the Conservation and
Reinvestment Act, which will position the state fish and
wildlife agencies to fulfill our conservation obligations to
these species in the United States.
Thank you for the opportunity to share the Association's
perspectives with you, and I would be pleased to address any
questions.
------
Statement of Ken Reininger, Curator of Birds, North Carolina Zoological
Park, Asheboro, North Carolina
Mr. Chairman and Members of the Subcommittee:
Thank you for the opportunity to testify in support of H.R.
39, the Neoptropical Migratory Bird Conservation Act. My name
is Ken Reininger. I am the Curator of Birds for the North
Carolina Zoological Park in Asheboro, North Carolina, an
accredited member of the American Zoo and Aquarium Association
(AZA) since 1974. The AZA represents 183 accredited zoos,
aquariums, oceanariums, and wild animal parks in North America,
as well as most of their professional employees.
I have a total of twenty-four years of experience as an
aviculturist and avian collection manager in a public
zoological park setting, including six years as the bird
curator at the North Carolina Zoo. I have participated in a
number of bird recovery programs, including the Hawaiian Nene
Goose, wattled crane, and Bali mynah, and have worked on field
programs from North Carolina to South Africa. I also serve on a
number of AZA scientific and advisory committees.
Renowned as the first American zoo designed and built from
its inception around the natural habitat philosophy, animals at
the North Carolina Zoo wander through large indoor and outdoor
habitat that stimulate their wild environments. The mission of
the North Carolina Zoo is to encourage understanding of and
commitment to the conservation of the world's wildlife and wild
places through the recognition of the interdependence of people
and nature. We believe the sustainable use of natural resources
is a vital concern for humans as well as wildlife. We are proud
of our efforts to give our visitors information they can use to
make wise choices about the use and management of natural
resources.
Included in the zoo's collection is the R.J. Reynolds
Forest Aviary, a miniature tropical forest with 100 rainbow-
colored exotic birds. Opened in 1982, it was selected by USA
TODAY as one of the 10 best exhibits in American zoos. It was
also the zoo's first indoor exhibit. The zoo is very proud of
its tradition of excellence in the conservation of threatened
and endangered bird species.
Mr. Chairman, I would like to take this opportunity to
thank you, Congressman Miller, and Chairman Young for
reintroducing H.R. 39, and for conducting this hearing so early
in the session. I also thank the Chairman for making some of
the recommended changes offered by the Administration in 1998.
As you are well aware, one of the greatest threats to many
species is habitat loss and degradation. One of the more
successful practices to reduce these pressures has been to
encourage habitat conservation in the form of public-private
partnerships (e.g. the African and Asian Elephant and Rhino and
Tiger Conservation Acts). I believe H.R. 39 will continue this
relatively new formula of success, and at the same time,
complement existing conservation programs and initiatives, such
as Partners in Flight and the North American Waterfowl
Management Plan.
Although migratory birds are protected by the Migratory
Bird Treaty Act (the United States is a party to four bilateral
treaties, one each with Great Britain (on behalf of Canada),
Mexico, Russia, and Japan), a number of migratory songbird
species continue to face increasing challenges throughout North
America. These species face challenges from forest
fragmentation, the loss of habitat on wintering areas and the
loss of habitat at key migration stopover sites. I know from
personal experience the importance of these key areas such as
the Outer Banks of North Carolina to birds making the long
migratory journey.
Moreover, over 90 North American bird species are listed as
endangered or threatened under the Endangered Species Act while
another 124 species are currently listed on the list of
Migratory Nongame Birds of Management Concern. Should many of
these birds maintain their historic migratory routes, their
next stop will most likely be to the list of endangered and
threatened species. Their important wintering and feeding
grounds are simply under attack. While Mexico lists some 390
bird species as vulnerable or endangered, much more is needed.
There needs to be a commitment from many at both ends of the
migratory route, from the wintering grounds in the more
tropical regions to the cooler northern breeding habitats and
all the critical habitat in between to conserve these species.
Preserving habitat for neotropical migratory birds is truly a
team effort. We cannot allow continued fragmentation of habitat
to continue.
I know and understand the importance of community
involvement and the value of partnerships and education
outreach for a wildlife conservation program to be successful.
Whether it is balancing the needs of the bald eagles with
logging interests, land developers and power companies as done
in the Yadkin PeeDee Lakes region of Central North Carolina, or
involving South African trout farmers in wetlands and wattled
crane preservation, I have learned the value of insuring that
all stakeholders are brought into the problem solving process.
I believe H.R. 39 is a step in the right direction. The
legislation and its subsequent Fund create a cooperative
atmosphere and the foundation for a win-win situation for
neotropical migratory birds and their important migratory
habitat, our international partners in conservation, and the
millions of Americans who spend an increasingly amount of time
bird watching and on bird-related activities. H.R. 39 continues
the innovative cost-sharing formulas from earlier conservation
measures utilizing both Federal and non-Federal support. Most
of all, by establishing the Neotropical Migratory Bird
Conservation Fund, the United States elevates the importance of
protecting critical migratory bird habitat in Latin America,
the Caribbean and throughout the Americas. Moreover, from a
biologic perspective, H.R. 39 will help to ensure that the
ecosystems, which neotropical birds and humans depend on, are
managed in a more sustainable way.
In conclusion, H.R. 39 represents the best in conservation
legislation--a targeted strategy to protect critical habitat
and biodiversity, a proven formula to foster public private
partnerships through a competitive grant process, and a program
that complements existing national and international programs.
As John Rogers, Deputy Director for FWS stated last year in
his testimony before the Senate Committee on Environment and
Public Works, ``The nature of this `shared trust' resource
makes migratory bird management a true international
challenge.''
Thank you for the opportunity to appear before you today.
Mr. Chairman, I will be happy to answer any questions from the
Committee.
------
Statement of Daniel P. Beard, Senior Vice-President for Public Policy,
National Audubon Society
Mr. Chairman, I appreciate the opportunity to testify to
the Subcommittee on H.R. 39, the ``Neotropical Migratory Bird
Conservation Act.''
The National Audubon Society has nearly one million members
and supporters throughout the Americas who are dedicated to the
preservation and protection of birds, other wildlife and their
habitat.
Mr. Chairman, I am pleased to appear before you today in
strong support of H.R. 39, the ``Neotropical Migratory Bird
Conservation Act.'' This legislation, plus H.R. 381 introduced
by Congressman Jim Greenwood, are major steps forward in our
efforts to protect and enhance bird habitat in Latin America
and the Caribbean. I want to compliment Chairman Young and Mr.
Greenwood, for introducing these bills and giving this matter
the important attention it deserves.
For the reasons I will detail below, I would like to
express our wholehearted support of the Neotropical Migratory
Bird Conservation Act of 1999. This bill addresses the
important need for protecting and enhancing populations of
neotropical migratory birds, using effective and relatively
inexpensive means.
Why is it important to protect neotropical migratory
birds?
Birds are a beautiful and important part of our natural heritage.
Perhaps more than any other kind of wildlife, birds are highly visible
and thus easy for us to enjoy. Hundreds of species of migratory
songbirds link the Western Hemisphere. In their journeys from breeding
grounds in the United States and Canada to winter homes in Latin
America and the Caribbean, the annual spectacle of migration is a
source of fascination for the millions of Americans who watch and feed
birds.
Migratory birds have become fundamental components of many local
economies. According to surveys completed by the U.S. Fish and Wildlife
Service, more than 63 million Americans watch and feed birds. Each
year, more than 24 million Americans travel to watch birds. In 1991,
birdwatchers spent $5.2 billion on goods and services related to bird
feeding and watching. These expenditures generated nearly $600 million
in tax revenue for states and the Federal Government. Non-consumptive
bird use supports almost 200,000 American jobs.
But many of these remarkable creatures are disappearing due to loss
and declining quality of habitat in the United States, Canada, and
throughout Latin America and the Caribbean. Forest fragmentation and
the development of grasslands and wetlands in North America mean fewer
breeding areas for birds. Deforestation and development in Latin
America and the Caribbean have left migratory birds with fewer places
to stop on their long migrations and fewer places to spend the winter.
For example, Central America, which plays winter host to as many as
one-third of all migrants, lost about 2.3 million acres of forest cover
per year between 1990 and 1995. The Audubon/Partners in Flight
Watchlist documents the decline of many once common neotropical
migratory birds like the Cerulean Warbler and the Red Knot.
Why is this bill a good way to protect neotropical
migratory birds?
The neotropical migratory birds Americans enjoy watching and
spending money to see spend part of each year in Latin America or the
Caribbean. If we want to protect these birds, we must protect their
habitat here in the United States, as well as in Latin America and the
Caribbean. Protecting wintering habitat is a way of protecting our
investment in wildlife conservation here in the United States.
We believe this is not only a good investment, but an efficient
one. By supporting proactive conservation measures such as those that
would be covered by the bill, we can help avoid the costly process of
helping endangered species recover.
This is also an efficient bill because instead of relying solely on
taxpayer dollars, the bill would encourage leveraging Federal dollars
by helping to build partnerships with the business community, non-
governmental organizations and foreign nations. The flexible matching
fund requirements of this bill will give the Department of the Interior
greater flexibility to choose appropriate projects.
As a leading bird conservation organization, the National Audubon
Society looks forward to facilitating the partnership process by
identifying need areas, sources of private funding, and local groups
potentially able to manage and conserve habitat.
I would offer the following suggestions for the Committee, should
the decision be made to move the bill:
We would urge the Committee to substitute the purposes
language contained in H.R. 4517 (105th Congress) for the
language currently used in H.R. 39. The language in H.R. 39,
especially subsection (2) is overly broad and does not include
language calling for ``protection'' of neotropical birds.
If a decision is made to report H.R. 39, I would urge
the Committee to consider adding language authorizing
establishment of a neotropical migratory bird advisory
committee. H.R. 381 authorizes such a committee and we believe
it could be an important focal point for raising the visibility
of this issue among Federal agencies and Latin American and
Caribbean governments.
The bill should be amended to make it clear that a
majority of the funds appropriated should be spent in Latin
America and the Caribbean. Habitat in these areas is in dire
need of restoration and dollars spent in these areas will in
many cases have greater impact because of the lower cost of
land and labor.
Finally, as currently drafted, H.R. 39 could
potentially allow the Secretary to make available all the funds
for neotropical projects to U.S. Federal agencies. I would urge
you to revise the language to ensure that the majority of the
funds are made available to foreign governments and non-
governmental organizations to promote conservation projects in
Central America and the Caribbean. If a majority of the funds
are diverted to U.S. Federal agencies, our efforts to save
neotropical birds will have been curtailed.
Mr. Chairman, we are pleased to support this legislation and look
forward to working with you and other Committee members to enact it
into law. Thank you for this opportunity to testify today. I would be
happy to answer any questions you might have.
______
Statement of Christopher E. Williams, Senior Program Officer, Wildlife
Conservation Policy U.S. Program, World Wildlife Fund
World Wildlife Fund is an international organization
dedicated to the conservation of wildlife and wildlands
worldwide. On behalf of WWF's 1.2 million members in the U.S.,
I am here to express support for H.R. 39, the Neotropical
Migratory Bird Conservation Act of 1999 (NMBCA).
The term ``neotropical migratory bird'' conjures images of
exotic species perched amid the vines of a distant jungle. In
fact, some of the most beloved birds of America's forests,
grasslands, and backyards, such as the Baltimore oriole, indigo
bunting, scarlet tanager, and bobolink, are neotropical
migrants. Bird enthusiasts across the eastern U.S. know that
February brings the woodcock and the redwing blackbird back
from their winter habitat in Florida. In March, the phoebes and
tree swallows return from Mexico. April brings sandpipers,
plovers and a spectacular array of warblers back from the West
Indies, central, and South America.
As wondrous as the spring return of the neotropical
migrants is today, it is hard to imagine what it must have been
like 200 years ago. The majority of the over 300 neotropical
migrant species of the U.S. find mates, breed, and fledge their
young in the remnants of the once great forests of the eastern
United States. It is estimated that before they began to fall
to European settlement, the eastern forests in the U.S. and
Canada were home to over two billion migratory birds. Sadly,
habitat alteration in North America alone probably reduced that
number by greater than half, and loss of habitat in the
wintering areas of Latin America and other threats have further
reduced the great migrations to a trickle.
The tall-grass prairies of the Great Plains were likewise
home to tremendous populations of grasslands migrants. Studies
have determined that a square kilometer of tall grass prairie
and oak/hickory forests that once dominated the central U.S.
will support 100-200 individual neotropical migrant birds.
However, scarcely 1 percent percent of that habitat still
exists, and the cornfields that have largely replaced it
support no neotropical migrants at all.
Populations of neotropical migrants in the west have always
been much smaller, confined to canyons, montane forests, and
riparian habitats. What the west lacks in sheer numbers it more
that makes up in the spectacular diversity of species within
such isolated habitats. The riparian habitat along the San
Pedro River in Arizona, for example, provides safe haven for
over 250 species of migratory birds. Unfortunately, the canyon
and montane habitats on which the birds depend are those most
attractive to development. Riparian forests such as the San
Pedro have all but disappeared in the southwest, threatening to
sever the great migration routes of the western U.S.
Exacerbated by habitat loss and habitat fragmentation,
others threats to neotropical birds in the U.S. are taking a
heavy toll. Nest raiders such as raccoons, squirrels, blue
jays, and crows, thriving in urban and suburban settings where
natural enemies are few and food sources plenty, are putting
heavy predation pressure on many populations. Common housecats
and their feral cousins are a devastating threat to birds of
all kinds, killing as many as three billion birds a year.
Extensive forest clearing and ready food sources in
agricultural fields have caused explosive growth in the
population and range of the parasitic cowbird. Cowbirds lay
their eggs in the nests of other species, sometimes rolling the
rightful owner's eggs out of the nest. The unwitting hosts then
raise the cowbird chicks. The larger cowbird chicks out-
compete, and sometimes even kill, the nestlings of the host
parent. While the extent of the impact of cowbird parasitism on
bird populations is unclear, it is undoubtedly substantial. One
species of neotropical migrant, the Kirtland's warbler, is kept
from extinction today only by human intervention to protect its
nesting areas from a relentless assault by cowbirds.
This catalogue of ills covers only the bird's northern
habitats. In their wintering habitat in Latin America and the
Caribbean, neotropical migrants also face the loss and
fragmentation of forest habitat. Although it is difficult to
establish the link between tropical habitat loss and population
declines of neotropical birds, the evidence is strongly
suggestive. A case in point is the Bachmann's warbler, a
species on the threshold of extinction, if not lost already.
Though the warbler's southern bottomland breeding habitat in
the U.S. has been drastically reduced, other migrants dependent
on the same habitat still thrive in what remains. The cause of
the Bachmann's warbler's demise most likely lies in Cuba, where
virtually all of the species' wintering habitat has been
destroyed.
Neotropical migrants, like other birds, also face the
pervasive threat of toxic chemicals. Pesticides banned or
heavily regulated in the U.S. are still heavily applied in
Latin America. In one horrific example, thousands of Swainson's
hawks have been killed in recent years by misapplications of
pesticides in Argentina. Evidence is mounting that even
pesticides lawfully applied in the U.S. are having a
devastating impact on bird populations.
Given the battery of threats facing neotropical birds, the
wonder is not that they are declining, but rather the stubborn
resilience with which they survive. Pervasive threats such as
these require concerted conservation action at all stages of
the migratory cycle. The Neotropical Migratory Bird
Conservation Act (NMBCA) would provide opportunities for such
action. World Wildlife Fund supports passage of the Act to
create an important new tool to leverage action to conserve
important habitat, promote research, support law enforcement
and protected area management, and foster education and
outreach throughout the range of neotropical migratory birds.
One of the strengths of the Act is its emphasis on
promoting cooperative work in the field to conserve and restore
neotropical migrant populations and habitat. Though the
proposed appropriation for the program is relatively small
given the enormity of the threat, the program can provide much
needed leverage for a wide range of public and private
conservation projects, creating goodwill and a spirit of
cooperation that go beyond the immediate benefits of the
individual project. For precedent, one can look to the U.S.
Fish and Wildlife Service's highly successful Partners for
Wildlife program which promotes cooperation between Federal and
state agencies and private landowners to conserve Federal trust
species. H.R. 39 proposes a similar model of cost sharing for
projects aimed at neotropical migrants. It would create a
program of great versatility that would operate across the
range of the species, creating partnerships for conservation
regardless of international borders.
The NBMCA could provide matching funds for projects as
diverse as restoring a sea grass bed in the Chesapeake Bay,
preserving a nesting area in a private woodlot in West
Virginia, planting cottonwoods and willows to restore degraded
habitat on both sides of the Rio Grande, protecting a playa in
northern Mexico vital to migrating waterfowl or a desert scrub
area in Venezuela important for wintering songbirds. The Act's
expansive language regarding who may apply for funds and the
types of activities that promote conservation allows
considerable creativity and innovation. Importantly, the Act
provides that the Secretary coordinate activities under the Act
with existing efforts in order to ensure maximum benefit for
neotropical migrants.
The evidence demonstrating the dramatic declines in at
least some species of neotropical migrants is overwhelming, but
much research is needed to ascertain the true extent of those
declines and their causes. Studying neotropical migrants as
they move throughout their range, identifying important
habitats, and pinpointing causes of decline of individuals
species, present daunting challenges. For example, many
migrants, while preferring one kind of habitat in the summer
months--say, deep forest--may favor a completely different
terrain when wintering in South America. Thus, it is true of
many neotropical migrants that we do not even know exactly
where their wintering habitats are located. Money from the fund
established by the NMBCA could provide invaluable support to
the work of scientists in Latin America, the Caribbean, and the
U.S. to gather the information necessary for successful
conservation efforts.
In Latin America particularly, money from the NMBCA could
provide a tremendous boost to protected area management and law
enforcement actions to protect migratory bird habitat. Mexico,
for example, has an outstanding system of designated protected
areas, many of which provide important habitat for neotropical
migrants. However, personnel in many of these areas lack the
basic equipment and training necessary to manage them
effectively and enforce the laws and regulations that protect
them. In many cases, a relatively modest infusion of resources
could dramatically improve the situation. Even in the U.S.,
funds from the NMBCA program could boost protection efforts in
places of unique importance, such as large, intact habitat
areas like Great Smoky Mountains National Park or key migratory
stopovers like the San Pedro River Riparian National
Conservation Area.
Education and outreach are vitally important in any
conservation effort. For decades, WWF has operated on the
principle that we cannot be successful unless local people are
willing participants in our conservation projects. The NMBCA
account could provide funding for education efforts in schools,
interpretation services in parks and protected areas, and
instruction for private landowners who want to vol-
untarily manage their property for neotropical migrants. It
could fund outreach programs to rally support for local
protected areas and establish fora for creating community-based
conservation projects.
One of the most important and laudable aspects of H.R. 39
is its emphasis on conserving neotropical migrant populations
and habitat at all points of their lifecycle. This represents
an expansive view of conservation similar that adopted by WWF
as the organization has shifted its emphasis from individual
species to the conservation of habitat and ecological processes
that sustain them. In the United States, WWF is concentrating
its resources in five ecoregions: the Chihuahuan Desert of the
U.S. southwest and Mexico, the Bering Sea, the rivers and
streams of the southeastern U.S., the Klamath-Siskiyou forests
of northern California and southern Oregon, and south Florida
including the Everglades. Each of these has been identified as
an area of globally outstanding wildlife and plant diversity
and richness. WWF is working with conservationists, landowners,
corporations, Federal and state agencies, and other
stakeholders to develop strategies for conserving the whole
range of flora and fauna within them. Similarly, H.R. 39 would
promote cooperative efforts to conserve the full range of
neotropical migrants throughout their range.
Towards that end, WWF recommends that H.R. 39 be amended to
include Canada specifically in the program. While the Act as
written does not preclude funding for projects in Canada, the
language of the bill suggests that its scope is limited to the
U.S. and Latin America. Many neotropical migrants, such as the
American golden plover, semipalmated sandpiper, and suribird
annually make the long journey from the Arctic Circle to South
America and back again. Amending the Act to provide eligibility
for cash or matching funds to neotropical migrant conservation
projects in Canada would make the NMBCA a truly hemispheric
initiative, and make the Act an even more effective instrument
for honoring our international commitments to conserve
migratory birds.
We also recommend that the limit on the Federal share of
each project be scaled depending on the financial resources of
the applicant, from 33 percent to a maximum of 75 percent. This
would provide greater access to the program for individuals and
entities with scant resources.
Finally, we recommend that the annual authorized
appropriation be increased to $12,000,000 in fiscal year 2001,
and to $15,000,000 in fiscal years 2002, 2003, and 2004. This
would provide greater resources for including Canada in the
program, increasing the Federal cost share, and supporting more
projects as the program develops over the next five years.
Partners for Wildlife was appropriated almost $25,000,000 for
fiscal year 1999. Given the ambitious goals and international
reach of the NMBCA, its funding level should at least approach
those of analogous programs of more limited scope.
Thank you very much for considering WWF's views on this
important topic.
------
Statement of the Gerald Winegrad, Vice President for Policy, American
Bird Conservancy
I am Gerald W. Winegrad, Vice President for Policy of the
American Bird Conservancy. ABC is a national organization
dedicated to the conservation of wild birds in the Americas.
Our staff of ornithologists and other specialists work on
programs critical to avian conservation including Partners in
Flight, the Important Bird Areas (IBA) program, Pesticides and
Birds Campaign, CATS INDOORS!, and our collaborative
partnership through a 78 member organization Policy Council.
The Policy Council includes conservation groups from across the
U.S. such as National Audubon Society, World Wildlife Fund,
Environmental Defense Fund, International Association of Fish
and Wildlife Agencies, Cornell Laboratory of Ornithology,
American Ornithologists Union, and the Peregrine Fund. ABC also
administers a small grants program to foster bird conservation
in Latin America and the Caribbean. We thank you for the
opportunity to testify and submit these comments in support of
H.R. 39, the Neotropical Migratory Bird Conservation Act. This
legislation authorizes $8 million annually for matching grants
(33 percent Federal share) to be made through the Secretary of
the Interior for the conservation of neotropical migratory
birds. At least 50 percent of the funds would be used for
projects outside the U.S.
This legislation is important in its Congressional
recognition of the serious decline in many populations of
migratory birds and through its efforts to help finance
conservation projects both in the U.S. and in Latin America and
the Caribbean, where most U.S. birds spend their winters.
American Bird Conservancy has been pleased to have worked with
Senator Spencer Abraham's office on the original introduction
of last session's S. 1970 and this session's Senate counterpart
to H.R. 39, S. 148. We are hopeful that the introduction and
passage of such legislation, with biparti-
san support, will begin an era of Congressional recognition of
the need for a comprehensive approach to resolve the serious
threats to migratory bird populations in this country and in
nations to our South. These threats include: habitat loss;
habitat fragmentation; pesticides and other contaminants;
introduced exotic species; human constructed barriers to
migration such as communication towers; free-roaming domestic
cats; and insufficient funding and incentives to better manage
existing habitat.
We support the passage of H.R. 39 and would ask that the
full $8 million funding be appropriated in the FY 2000 budget
to implement the migratory bird grants program as soon as
possible, as is envisioned in the legislation. There are
critical needs for this funding both in the U.S. and in Latin
America and the Caribbean. We would request that the bill be
amended to provide for an advisory panel to help guide the
Secretary of Interior in decisions for funding under the Act.
Such a provision exists in S. 148. Further, the legislation
should specify the U.S. Fish and Wildlife Service as the
administering agency under Interior as is done in the Senate
bill. The Fish and Wildlife Service has significant experience
in migratory bird conservation through its Office of
International Affairs and its Migratory Bird Management Office.
We also suggest that the match from the U.S. funds be increased
to at least 50 percent of a project's cost for U.S. projects
from the bill's 33 percent. We would suggest that the U.S.
match be at least 50 percent for projects in Latin America and
the Caribbean, with discretion in the Secretary to increase
that to 75 percent dependent on the priority of a project. This
would facilitate the involvement of NGO's and other agencies,
particularly in Latin America and the Caribbean.
This legislation is before the Congress at an opportune
time in bird conservation. Partners in Flight bird conservation
plans are being completed this year for all areas of the U.S.
These plans, developed by a unique partnership of Federal and
State agencies, private corporations and landholders and
conservationists, detail the needs for avian species in 52
distinct geophysical units. Priority species are described and
the plans specify on-the-ground management measures necessary
to enhance populations of migratory birds. In addition, the
United States National Shorebird Conservation Plan and the
North American Colonial Waterbird Conservation Plan are under
development. Most importantly, this large scale planning
process is being combined into a North American Bird
Conservation Initiative with the full participation of Canada
and Mexico. Excellent meetings have been help recently in
Puebla, Mexico on the North American Initiative and other
nations are joining in these efforts. Passage of the
Neotropical Migratory Bird Conservation Act and the
appropriation of the full $8 million will indicate to U.S.
planners and to the international community that the U.S. is
serious about acting to conserve avian species.
Today, there are approximately 9,040 species of birds on
Earth with about 852 found in the U.S. Of these U.S. birds, 90
are listed as endangered or threatened under the Endangered
Species Act. Another 124 additional species are listed by the
U.S. Fish and Wildlife Service as being of management concern,
meaning that they may become candidates for listing under the
ESA without additional conservation action or that special
attention is warranted to prevent declines. Listed as species
of concern are the Common Loon, American Bittern, Reddish
Egret, Red shouldered Hawk, Snowy Plover, Black Tern, Short-
eared Owl, Red-headed Woodpecker, Bell's Vireo, and Golden-
winged Warbler. Largely due to loss of habitat, habitat
fragmentation, introduced species including domestic cats, and
contaminants, many bird species are experiencing serious
declines. From 1966 to 1993, the Breeding Bird Survey has
detected: a 90 percent decline in Black Skimmers; a 40 percent
decline in Wood Thrushes; a 90 percent decline in Black chinned
Sparrows; and a 50 percent decline in Cerulean Warblers and
Loggerhead Shrikes. Already listed under the ESA are such avian
species as the California Condor, Stellar's Eider, Piping
Plover, Whooping Crane, Aleutian Canada Goose, and the
Everglade Snail Kite. Gone forever is the Passenger Pigeon,
once one of the most numerous birds in North America. Also gone
forever is the once relatively plentiful Carolina Parakeet.
Of the 852 species found in the U.S., 778 are migratory
nongame birds and roughly 350 are migratory songbirds species.
About 250 of these songbirds are neotropical migrants. Many of
these neotropical migratory song birds are in serious decline
with documentation of an overall 50 percent decline in the
volume of annual flights over the Gulf of Mexico in the last
twenty years. Songbirds found in grasslands are experiencing
some of the largest and most consistent declines, including the
Bobolink and Meadowlarks. Many forest-dwelling species also are
in serious decline.
With our nation growing and sprawling and consuming huge
chunks of open space, it is imperative that we assure our
citizens that we will not continue to erode our natural
heritage and directly contribute to the decline in
biodiversity, especially of avian species. With over 50 percent
of America's wetlands gone, with over 95 percent of our prairie
grasslands gone, and with the continued fragmentation and con-
version of forest land, wildlife resources, especially birds,
are at risk. More localized impacts of great significance to
avian species can be found throughout our Nation. The counties
around Washington D.C. have lost over 50 percent of their
forest cover in the last 20 years. Iowa has lost 99 percent of
its original marshes. And, according to the Smithsonian
Institution, ``less than 1 percent of the native woodlands
along rivers in the arid southwest remains and much of that is
damaged by grazing cattle or dominated by exotic vegetation.
Riparian woodlands in California's Central Valley have lost
most of the neotropical migratory bird species that were once
abundant there.'' Habitat loss and fragmentation continue to
pose grave threats to many species of migratory birds. Hence,
ABC supports continued acquisition of public lands and their
prudent management for birds and other wildlife.
Even protected lands in our National Wildlife Refuge system
have been degraded by poorly managed economic activities
outside their boundaries. For example, the Blackwater National
Wildlife Refuge near Cambridge on Maryland's Eastern Shore has
lost over 5,000 acres of essential salt marshes from rising
water levels caused in part by wetland drainage and
channelization outside of the Refuge primarily for agricultural
activities. And, the Kesterton National Wildlife Refuge in
California has been contaminated by runoff from farm land to
the point that feeding migratory waterfowl risk poisoning and
must be chased from the Refuge.
Recent studies and surveys document the huge economic
impact of birdwatchers. Over 76 million Americans are
birdwatchers, both backyard and non-residential viewers. A
recent study found that birders spend over $8.5 billion yearly
in birding activities. This does not include the hunting of
migratory birds which generated an additional $1.3 billion.
This same study found that birding and the hunting of birds in
the U.S. created 191,000 jobs in 1991. Ecotourism, much of it
related to birders, is growing. At Chincoteague National
Wildlife Refuge in Virginia, a study was conducted from 1993 to
1994 focusing on birding ecotourism. The study found that
95,970 birders visited Chincoteague during the year spending a
total of $33.2 million, $9.7 million in the local community. At
the Santa Ana National Wildlife Refuge in south Texas, over
99,000 birders visited in one year from all 50 States to view
the 388 species of birds found there. The visitors spent $14.4
million in McAllen, Texas and many bird festivals are promoted
in this area of Texas and around the nation by local chambers
of congress. Birding is big business.
Often over looked economic benefits from birds are their
major contributions to the health and functioning of
ecosystems. Scott Robinson has pointed out these benefits in
his widely quoted article, The Case of the Missing Songbird.
Forest birds eating insects result in greater tree growth and a
longer period between insect outbreaks, with these services
worth as much as $5,000 per year for each square mile of
forest; in addition, birds are valuable as seed dispersers and
pollinators of plants.
The passage, full funding and implementation of H.R. 39
could help prevent further declines in avian species. Habitat
loss and fragmentation, while serious in this country, is
growing in Latin America and the Caribbean. Population growth,
economic development activities, and spreading agriculture are
resulting in destruction of forests, wetlands, and critical
riparian areas, all essential for birds. For example, the
Dickcissel is a common grassland neotropical migratory bird,
found in the American mid-west during spring through fall. The
Dickcissel population declined mysteriously by 40 percent from
1966 to 1994. Researchers launched a study and tracked the
migrating birds to the llanos of Venezuela where they spend the
winter months. This wetland area has been partially converted
to intensive rice and sorghum agriculture and the Dickcissels
had learned to feed upon the crops. Researchers found the cause
of the decline rooted in lethal controls employed by these rice
and sorghum farmers in Venezuela. Known as the ``rice bird'' in
Venezuela, the Dickcissel is considered an agricultural pest
and some farmers use pesticides to kill hundreds of thousands
of birds. Organophosphates such as parathion and azodrin are
used to intentionally kill the birds at feeding and drinking
areas and by spraying roost sites that may contain three
million birds (30 percent of the entire population). These
lethal control methods are continuing, leaving the Dickcissel
exposed to potentially catastrophic mortality. Responding to
this problem, ABC's Policy Council has stimulated a game plan
to resolve this issue under the leadership of Gian Basili of
Florida Audubon, the key researcher on the Dickcissel. In June
1998, ABC and the National Fish and Wildlife Foundation funded
a workshop held at the heart of the bird's wintering ground in
the llanos. Attending were representatives from Venezuelan
government agencies, local universities, conservation groups,
farmers' cooperatives and biologists from agricultural
extension services. The U.S. delegation included
representatives from ABC, National and Florida Audubon,
National Fish & Wildlife Foundation, and The Nature
Conservancy, plus the U.S. Department of Agriculture's top
expert on bird damage to rice. The Venezuelans were positively
impressed by the strong U.S. showing, which underscored the
importance of the issue. The group formed an alliance, and
crafted a statement of their mission: to promote, develop and
execute actions necessary to implement an integrated management
strategy for Dickcissels in rice and sorghum fields of
Venezuela. Producers of these crops also signed a letter of
intention with Venezuela Audubon. The group determined the need
to hire someone to implement on-the-ground actions that would
help farmers while also reducing the risk Dickcissels face from
catastrophic mortality. There is considerable urgency to obtain
funding and launch this program to protect the Dickcissel.
Funding is needed for $20,000 to employ a full time director in
the llanos but has yet to materialize. H.R. 39 and its funding
could be used to provide one-third of the cost of such a
position.
ABC also was involved in the protection of another
neotropical migratory bird, the Swainson's Hawk. Scientists
were puzzled by declines in this Hawks' numbers and used
telemetric devices placed on the Hawks to trace their migration
and ascertain their wintering locations. It was learned that
the Swainson's Hawks migrate from the American West and Canada
to winter in the pampas of Argentina. During this study, an
estimated 20,000 Swainson's Hawks were killed by pesticides in
Argentina in 1995-1996. The land in the pampas region studied
had been converted to alfalfa, sunflowers and other crops and
the Hawks fed voraciously on grasshoppers inhabiting these
fields. Monocrotophos was sprayed to kill the grasshoppers and
was killing the Hawks as well. This acutely toxic insecticide
had been taken off the U.S. market in 1988. ABC urged Ciba-
Geigy (now Novartis) to stop the manufacture and distribution
of monocrotophos globally. Ciba-Geigy agreed to a meeting at
the Washington, DC headquarters of ABC, and the Governments of
Argentina, Canada, and the U.S. sent representatives to try and
resolve these mortalities. At this August 1996 meeting, a
formal agreement was reached and later signed that included a
withdrawal plan for monocrotophos from the pampas and an
extensive advertising campaign involving the farmers. The
International Office of the U.S. Fish and Wildlife Service
helped fund the cooperative venture and training sessions were
conducted in Argentina for toxicologists and field personnel.
ABC's Argentinean partner, the Associacion Ornitologica del
Plata, also was involved in the effort. Subsequent to the
agreement, Swainson's Hawk mortality from pesticides was
reduced to a few dozen birds. Novartis is now withdrawing
monocrotophos globally on a phased basis and ABC has begun a
Pesticides and Birds Campaign. Working with leading
toxicologists from the U.S. and Canada on a pesticides work
group, ABC hopes to reduce the mortality of birds and other
wildlife from pesticides in this nation and in Latin America
and the Caribbean. A small grant to help promote safer
agricultural practices could prevent incidents such as the
killing of thousands of Swainson's Hawks.
We are pleased to support H.R. 39 and to work with the
Congress in beginning a concerted campaign to assure that the
remaining bird species in the U.S. flourish and that none go
the way of the Passenger Pigeon and the Carolina Parakeet.
American Bird Conservancy offers our complete support and
assistance in developing and implementing such a campaign,
including the Neotropical Migratory Bird Conservation Act. ABC
is uniquely poised and already involved in many efforts to
conserve neotropical migratory birds and looks forward to the
partnerships that could be initiated under this legislation.
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