National Wildlife Refuge System: Contributions Being Made to Endangered
Species Recovery (Letter Report, 11/14/94, GAO/RCED-95-7).

Of the nearly 900 species listed under the Endangered Species Act, one
quarter can be found on national wildlife refuges. These listed species
include plants, birds, and mammals. Although a significant portion of
the current habitat for 94 listed species is on 66 wildlife refuges,
many other listed species use refuge lands on a temporary basis for
breeding or migratory rest stops.  Refuges and refuge staff contribute
to the protection and the recovery of listed species in several ways.
First, the refuges themselves represent about 91 million acres of secure
habitat, including more than 310,000 acres that have been acquired by
the Service specifically for the protection of listed species.  Second,
refuge staff are taking steps to protect and recover listed species.
Third, refuge staff, by identifying specific actions that can help a
species recover, help to develop recovery plans that the Fish and
Wildlife Service requires for listed species.  Funding limitations
constrain efforts to manage wildlife refuges.  Two 1993 Interior
Department reports found that available funding was not enough to meet
established objectives for refuges because the level of funding has not
kept pace with the rising costs of managing existing refuges.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-95-7
     TITLE:  National Wildlife Refuge System: Contributions Being Made 
             to Endangered Species Recovery
      DATE:  11/14/94
   SUBJECT:  Wildlife management
             Wildlife conservation
             Endangered species
             Environmental engineering
             Wilderness areas
             Waterfowl
             Environmental policies
             Public lands
             Land management
             Migratory birds
IDENTIFIER:  National Wildlife Refuge System
             Harris Neck National Wildlife Refuge (GA)
             Salinas River National Wildlife Refuge (CA)
             Pelican Island National Wildlife Refuge (FL)
             Ash Meadows National Wildlife Refuge (NV)
             Antioch Dunes National Wildlife Refuge (CA)
             Blackbeard Island National Wildlife Refuge (GA)
             Wassaw National Wildlife Refuge (GA)
             Merritt Island National Wildlife Refuge (FL)
             Kealia Pond (HI)
             Okefenokee National Wildlife Refuge (GA)
             Hakalau Forest National Wildlife Refuge (HI)
             Blackwater National Wildlife Refuge (MD)
             San Francisco Bay National Wildlife Refuge (CA)
             Moapa Valley National Wildlife Refuge (NV)
             
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Cover
================================================================ COVER


Report to Congressional Requesters

November 1994

NATIONAL WILDLIFE REFUGE SYSTEM -
CONTRIBUTIONS BEING MADE TO
ENDANGERED SPECIES RECOVERY

GAO/RCED-95-7

Refuges Making Contributions to Species Recovery


Abbreviations
=============================================================== ABBREV

  ESA - Endangered Species Act
  FWS - U.S.  Fish and Wildlife Service
  GAO - General Accounting Office
  NWR - National Wildlife Refuge

Letter
=============================================================== LETTER



B-257403

November 14, 1994

The Honorable Gerry E.  Studds
Chairman
The Honorable Jack Fields
Ranking Minority Member
Committee on Merchant Marine and Fisheries
House of Representatives

The Honorable Jim Saxton
Ranking Minority Member, Subcommittee on
 Environment and Natural Resources
Committee on Merchant Marine and Fisheries
House of Representatives

The National Wildlife Refuge System was established to help conserve
the nation's wildlife resources.  To assist in your consideration of
potential legislation affecting the purposes of the system and its
management by the Department of the Interior's Fish and Wildlife
Service, you asked that we obtain information on how and the extent
to which wildlife refuges contribute to the recovery of species
listed as threatened or endangered under the Endangered Species Act. 
In response, this report discusses the extent to which listed\1
species and their habitat occur on refuges and how refuges and refuge
staff contribute to the conservation and recovery of listed species. 
It also discusses how funding limitations constrain the contribution
that wildlife refuges make to the recovery of listed species. 


--------------------
\1 The term "listed" is used to refer to species designated under the
Endangered Species Act as endangered or threatened. 


   RESULTS IN BRIEF
------------------------------------------------------------ Letter :1

Of the almost 900 species listed under the Endangered Species Act,
215 (24 percent) occur and/or have habitat on national wildlife
refuges.  These listed species represent a diversity of wildlife,
including 58 plant, 54 bird, and 40 mammalian species.  While a
significant portion of the current habitat for 94 listed species is
located on 66 wildlife refuges, many other listed species use refuge
lands on a temporary basis for breeding or migratory rest-stops. 

Refuges and refuge staff contribute to the protection and recovery of
listed species in a number of ways.  First, the refuges themselves
represent about 91 million acres of secure habitat, including over
310,000 acres that have been acquired by the Service specifically for
the protection of listed species.  Second, refuge staff are taking
actions to protect and recover listed species.  For example, staff at
the Harris Neck National Wildlife Refuge have created wood stork
nesting areas, and staff at the Salinas River National Wildlife
Refuge are protecting snowy plovers' nests from predators.  And
third, refuge staff participate in the development of recovery plans
that the Service requires for listed species by identifying specific
actions that can contribute to species recovery. 

Funding limitations constrain efforts to manage wildlife refuges. 
Two 1993 Department of the Interior reports found that available
funding was not sufficient to meet established objectives for refuges
because the level of funding has not kept pace with the increasing
costs of managing new or existing refuges.  At 14 of the 15 locations
we visited, refuge managers and staff said that funding constraints
limited their ability to enhance habitat and to facilitate the
recovery of listed species. 


   BACKGROUND
------------------------------------------------------------ Letter :2

The National Wildlife Refuge System comprises the only federal lands
managed primarily for the benefit of wildlife.  The refuge system
consists primarily of National Wildlife Refuges (NWR) and Waterfowl
Production Areas and Coordination Areas.  The first national wildlife
refuge, Florida's Pelican Island, was established by President
Roosevelt in 1903 to protect the dwindling population of wading birds
in Florida.  As of July 1994, the system included 499 refuges in all
50 states and several U.S.  territories and accounted for over 91
million acres.  (See fig.  1.)

   Figure 1:  General Location of
   Units in the National Wildlife
   Refuge System

   (See figure in printed
   edition.)

   Source:  Fish and Wildlife
   Service.

   (See figure in printed
   edition.)

The Fish and Wildlife Services' (FWS) Division of Refuges provides
overall direction for the management and operation of the National
Wildlife Refuge System.  Day-to-day refuge activities are the
responsibility of the managers of the individual refuges.  Because
the refuges have been created under many different authorities, such
as the Endangered Species Act (ESA) and the Migratory Bird
Conservation Act, and by administrative orders, not all refuges have
the same specific purpose or can be managed in the same way. 

The ESA was enacted in 1973 to protect plants and animals whose
survival is in jeopardy.  The ESA's goal is to restore listed species
so that they can live in self- sustaining populations without the
act's protection.  As of April 1994, according to FWS, 888 domestic
species have been listed as endangered (in danger of extinction) or
threatened (likely to become endangered in the foreseeable future). 
The ESA directs FWS to emphasize the protection of listed species in
its acquisition of refuge lands and in its operation of all refuges. 
Under the ESA, the protection, recovery, and enhancement of listed
species are to receive priority consideration in the management of
the refuges. 

FWS' Division of Endangered Species provides overall guidance in the
implementation of the ESA.\2 FWS' regions are generally responsible
for implementing the act.  Among other things, the act requires FWS
to develop and implement recovery plans for all listed species,
unless such a plan would not benefit the species.  Recovery plans
identify the problems threatening the species and the actions
necessary to reverse the decline of a species and ensure its
long-term survival.  Recovery plans serve as blueprints for private,
federal, and state interagency cooperation in taking recovery
actions. 


--------------------
\2 FWS is generally responsible for protecting freshwater and land
species.  The Department of Commerce's National Marine Fisheries
Service is responsible for protecting most marine species. 


   LISTED SPECIES OFTEN OCCUR ON
   WILDLIFE REFUGES
------------------------------------------------------------ Letter :3

Of all the listed species, 215,\3 or 24 percent, occur on wildlife
refuges.\4 (See app.  I for the listed species that occur on
refuges.) Figure 2 shows the types of listed species found on
refuges.  As the figure shows, more than two-thirds of the species
are plants, birds, and mammals. 

   Figure 2:  Types of Listed
   Species That Occur on Wildlife
   Refuges

   (See figure in printed
   edition.)

Note 1:  Percentages have been rounded. 

Note 2:  The total number of species is 215. 

Note 3:  "Other" includes amphibians (2), clams (6), crustaceans (1),
insects (7), and snails (1). 

Source:  FWS. 

Some refuges represent a significant portion of a listed species'
habitat.  According to FWS regional refuge officials, 66
refuges--encompassing a total of 26.7 million acres, including 22.6
million acres on two Alaska refuges--provide a significant portion of
the habitat for 94 listed species.  For example, Ash Meadows NWR in
Nevada has 12 listed plants and animals that exist only at the
refuge--the largest number of listed native species at one location
in the United States.  In addition, Antioch Dunes NWR in California
contains virtually the entire remaining populations of three listed
species--the Lange's metalmark butterfly, the Antioch Dunes
evening-primrose, and the Contra Costa wallflower.  (App.  II lists
the refuges that provide a significant portion of a listed species'
habitat and the specific species that occur at these refuges.)

Some listed species use the refuges on a temporary basis for
migratory, breeding, and wintering habitat.  As previously shown in
figure 1, the refuges are often located along the primary north-south
routes used by migratory birds.  Migratory birds use the refuges as
temporary rest-stops along their migration routes.  The listed wood
stork, for example, migrates in the spring from southern Florida to
Harris Neck NWR in Georgia to nest in the refuge's freshwater
impoundments.  In addition, several refuges provide breeding habitat
for listed species.  The Blackbeard Island and Wassaw refuges in
Georgia and the Merritt Island NWR in Florida, for example, provide
beach habitat for the listed loggerhead sea turtle to lay its eggs. 


--------------------
\3 Includes species that have been proposed for listing in the
Federal Register. 

\4 FWS estimates that an additional 360 candidate species-- species
that may warrant protection but are not currently listed under the
act--also occur on refuges. 


   WILDLIFE REFUGES CONTRIBUTE TO
   THE RECOVERY OF LISTED SPECIES
------------------------------------------------------------ Letter :4

Wildlife refuges and refuge staff contribute to the recovery of
listed species in a variety of ways.  Foremost, refuges provide
secure habitat, which is often identified as a key component in the
recovery of listed species.  In addition, refuge staff carry out, as
part of their refuge management activities, specific actions to
facilitate the recovery of listed species.  Refuge staff also
participate in the development and review of recovery plans for
listed species. 


      REFUGES PROVIDE SECURE
      HABITAT
---------------------------------------------------------- Letter :4.1

One of the primary efforts for the recovery of listed species is to
stabilize or reverse the deterioration of their habitat.  Refuges
contribute to the recovery of listed species by providing secure
habitat.  Our review of 120 recovery plans for listed species
occurring on refuges disclosed that 80 percent of the plans
identified securing habitat as an action needed to achieve species
recovery. 

As of March 1994, the refuge system included about 91 million acres
of wildlife habitat.  FWS has acquired over 310,000 acres to create
55 new refuges specifically for the protection of listed species. 
FWS' policy requires that a species recovery plan be prepared before
lands are acquired for listed species.  For example, the recovery
plan for four Hawaiian waterbirds called for FWS to secure and manage
a number of ponds and marshes that two or more of the waterbirds are
known to use.  One specific area described in the recovery plan,
Kealia Pond, was subsequently acquired by FWS in 1992.  However,
overall we could not readily determine whether the acquisitions of
lands for the 55 new refuges had been identified as needed
acquisitions in species recovery plans.  (App.  III lists the refuges
specifically established for listed species.)

According to FWS' data,\5 listed species found on refuges, and
specifically on refuges established to protect listed species, appear
to have a more favorable recovery status than listed species that do
not occur on refuges.  Table 1 provides an overview of FWS' data on
the recovery status of listed species.  This information was compiled
on the basis of the knowledge and judgments of FWS staff and others
familiar with the species. 



                           Table 1
           
           Recovery Status of Listed Species, as of
                      September 30, 1992

                                                      Listed
                                                species that
                        Listed         Listed       occur on
                  species that   species that     endangered
                  do not occur   occur on all        species
Listed species      on refuges        refuges      refuges\a
recovery status      (percent)      (percent)      (percent)
---------------  -------------  -------------  -------------
Improving                    6             19             25
Stable                      26             36             43
Declining                   34             30             18
Unknown\\b                  33             13             12
Extinct\c                    2              3              2
Total\d                    100            100            100
============================================================
Total number of
 species                   523            188             65
------------------------------------------------------------
\a These species constitute a subset of those that occur on all
refuges. 

\b Unknown = those species for which additional survey work is
required to determine their current status. 

\c Extinct = those species that are believed to be extinct in the
wild. 

\d Percentages have been rounded. 

Source:  FWS. 

As the table shows, a greater proportion of the listed species that
occur on refuges have a recovery status determined by FWS to be
improving or stable than the listed species not found on refuges. 
According to FWS' guidance, species whose recovery is improving are
those species known to be increasing in number and/ or for which
threats to their continued existence are lessening in the wild. 
Species whose recovery is stable are those known to have stable
numbers over the recent past and for which threats have remained
relatively constant or diminished in the wild.  Declining species are
those species known to be decreasing in number and/or for which
threats to their continued existence are increasing in the wild. 


--------------------
\5 The latest data from FWS are contained in Report to Congress: 
Endangered and Threatened Species Recovery Program, draft, Department
of the Interior, U.S.  Fish and Wildlife Service (Dec.  1992). 


      REFUGE STAFF IMPLEMENT
      SPECIES RECOVERY PROJECTS
---------------------------------------------------------- Letter :4.2

Refuge staff carry out a variety of activities that contribute to the
recovery of listed species.  According to FWS' Refuges 2003:  Draft
Environmental Impact Statement,\6 a total of 356 refuges had habitat
management programs under way that directly benefited listed species. 
Refuge staff at the 15 refuges we visited were carrying out a number
of specific actions in support of the protection and recovery of
listed species.  Such actions generally involved efforts to monitor
the status of listed species' populations at the refuges and carry
out projects designed to restore and manage the habitats and the
breeding areas of listed species.  Examples of specific actions being
taken included the following: 

Carrying out prescribed burning of vegetation at the Okefenokee NWR
(Georgia).  Among other things, such burning helps restore and
facilitate the growth of longleaf pine trees--the primary habitat for
the listed red-cockaded woodpecker. 

Enclosing nesting areas at the Salinas River NWR (California).  The
enclosures protect the listed western snowy plover's nests and chicks
from predation by red foxes. 

Undertaking protective actions at the Hakalau Forest NWR (Hawaii). 
Specifically, to protect and assist in the recovery of five listed
forest birds, the refuge manager has restricted public use, fenced
off the forest to keep out wild pigs and cattle, and created new
nesting habitat for the listed birds by protecting indigenous plants
and eliminating nonnative/exotic plants. 

Developing artificial nesting structures for wood storks at the
Harris Neck NWR (Georgia).  According to the refuge biologist, each
structure at the refuge was occupied by up to three nests for these
birds in both 1993 and 1994. 

Providing economic incentives to protect habitat and provide a food
source for the listed bald eagle at Blackwater NWR (Maryland). 
Specifically, refuge management pays muskrat trappers to kill a
rodent (the nutria) that is destroying the refuge wetlands.  The
carcasses are then left for bald eagles to eat. 

Managing vegetation growth to provide feeding pastures for the listed
Columbian white-tailed deer at the Julia Butler Hansen Refuge for
Columbian White-tailed Deer (Oregon and Washington).  The vegetation
in the deer's feeding pastures is kept short by allowing cattle to
graze on portions of refuge lands under cooperative agreements with
local farmers. 


--------------------
\6 Refuges 2003:  Draft Environmental Impact Statement, Department of
the Interior, U.S.  Fish and Wildlife Service (Jan.  15, 1993). 


      REFUGE STAFF CONTRIBUTE TO
      SPECIES RECOVERY PLANS
---------------------------------------------------------- Letter :4.3

Refuge staff also participate on teams tasked with developing
recovery plans for listed species.  While the responsibility for
developing and implementing the plans rests with FWS' regional
offices, recovery teams often include species experts from federal
and state agencies (including the refuges), conservation
organizations, and universities.  For example, a biologist at the San
Francisco Bay NWR is helping develop a revised recovery plan\7 for
the salt marsh harvest mouse, the California clapper rail (a species
of bird), and other coastal California wetlands species.  On the
basis of their knowledge of the listed species, refuge staff are also
asked to comment on draft recovery plans developed by others.  For
example, refuge staff at the Moapa Valley NWR in Nevada were asked to
review the draft recovery plan for the Moapa dace (a species of fish)
developed by a recovery team made up of representatives from a
variety of organizations, including the Department of the Interior's
Bureau of Reclamation; the University of Nevada, Las Vegas; and the
Nevada Division of Wildlife. 

Refuge staff at the locations we visited told us they use the
recovery plans to guide their activities to protect listed species. 
They also told us that recovery plans are good reference tools and
help outline the management actions necessary for species recovery. 
They noted, however, that recovery plans have their
limitations--plans can become outdated quickly and that refuges often
lack the funding necessary to undertake all of the prescribed
recovery tasks. 


--------------------
\7 The original recovery plan was approved by FWS in 1984. 


   FUNDING LIMITATIONS CONSTRAIN
   THE CONTRIBUTION WILDLIFE
   REFUGES MAKE TO SPECIES
   RECOVERY
------------------------------------------------------------ Letter :5

While refuge staff have taken some actions to protect and aid the
recovery of listed species on their refuges, we found that efforts
were at times not undertaken.  According to refuge managers and
staff, their ability to contribute to species recovery efforts are
constrained by the level of available funding.  Two 1993 Interior
reports discussed overall concerns about refuge funding and concluded
that refuge funding was inadequate to meet the missions of refuges. 

In its Refuges 2003:  Draft Environmental Impact Statement, FWS
reported that the refuge system's current annual funding is less than
half the amount needed to fully meet established objectives.  From
October 1, 1988, through fiscal year 1993, appropriations for the
Division of Refuges increased from $117.4 million to $157.5 million
per year.  If the current level of annual funding continues,
according to FWS, funding will be inadequate to address the existing
backlog of major refuge maintenance projects or the programs and
construction projects necessary for any expanded wildlife or public
use activities.  In addition, FWS stated that recent increases in
refuge funding have not been sufficient to address the rising costs
of basic needs, such as utilities, fuel, travel, and training. 

In August 1993, Interior's Inspector General reported that "refuges
were not adequately maintained because Service funding requests for
refuge maintenance have not been adequate to meet even the minimal
needs of sustaining the refuges."\8 According to the Inspector
General, the maintenance backlog totaled $323 million as of 1992. 
The Inspector General also reported that "new refuges have been
acquired with increased Service responsibilities, but additional
sufficient funding was not obtained to manage the new refuges."
Between 1988 and 1992, according to the Inspector General, $17.2
million was necessary to begin operations at the 43 new refuges
acquired during this period.  However, only $4.7 million was
appropriated for all new and expanded refuges.  This appropriation
level for refuge funding resulted in a $12.5 million deficit,
according to the Inspector General, some of which contributed
directly to the maintenance backlog.  In response to the Inspector
General's findings, FWS has agreed to develop a plan to reduce
refuges' maintenance backlogs and to report on efforts to ensure
consideration of the operations and maintenance costs in all future
acquisitions. 

The budget resources are insufficient to undertake all of the efforts
necessary to recover listed species, according to refuge managers. 
In general, refuge operations and maintenance budgets are earmarked
for items such as salaries, utilities, and specific maintenance
projects.  As a consequence, many efforts to recover listed species
are not being carried out.  At 14 of the 15 locations we visited,
refuge managers and staff said funding constraints limited their
ability to fully implement recovery actions for listed species and
other protection efforts.  For example, refuge staff at the Savannah
Coastal Refuge Complex in Georgia explained that they have enough
resources to conduct only one survey of the bald eagle population per
year, rather than the three they feel are necessary to adequately
monitor the eagle's status.  A biologist at the San Francisco Bay
Refuge Complex reported that no money is available to conduct genetic
studies on the listed salt marsh harvest mouse, even though such
studies are called for in the species recovery plan. 


--------------------
\8 Survey Report:  Maintenance of Wildlife Refuges, U.S.  Fish and
Wildlife Service, Department of the Interior, Office of Inspector
General, Rept.  No.  93-I-1477 (Aug.  1993). 


   AGENCY COMMENTS
------------------------------------------------------------ Letter :6

In commenting on a draft of this report, the Assistant Secretary for
Fish and Wildlife and Parks, Department of the Interior, generally
concurred with the findings (app.  IV contains Interior's comments). 
In particular, the Assistant Secretary stated that funding
limitations constrain the National Wildlife Refuge System's ability
to fully protect and recover endangered species; however, in light of
other budgetary priorities, refuges have been funded at the highest
affordable level.  The Assistant Secretary also provided a number of
comments that were technical in nature.  In response, we revised the
report, where appropriate, to refer to all components of the National
Wildlife Refuge System rather than just the refuges and made other
editorial changes. 


   SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :7

We conducted our work between May 1993 and July 1994 in accordance
with generally accepted government auditing standards.  To obtain
information on FWS' policies and procedures for refuges and
implementation of the ESA, we reviewed relevant FWS documents,
including the May 1990 Policy and Guidelines for Planning and
Coordinating Recovery of Endangered and Threatened Species; the
Refuge Manual; Refuges 2003:  Draft Environmental Impact Statement;
the 1990 and draft 1992 Report to Congress:  Endangered and
Threatened Species Recovery Program; and 120 species recovery plans. 
We also interviewed officials at the Division of Refuges and Division
of Endangered Species at FWS headquarters and at the FWS Portland
regional office.  In addition, we visited and met with officials from
15 refuges--including refuges created specifically for listed species
and those that were created for other purposes--to determine how each
refuge contributed to recovery efforts for listed species.  The 15
refuges included, in California, Antioch Dunes, San Francisco Bay,
and San Pablo Bay; in Georgia, Harris Neck and Okefenokee; in Hawaii,
Hanalei, Huleia, James C.  Campbell, Kilauea Point, and Pearl Harbor;
in Maryland, Blackwater; in Maryland and Virgina, Chincoteague; in
Nevada, Ash Meadows, Moapa Valley; and in Oregon and Washington,
Julia B.  Hansen Columbian White-tailed Deer. 


---------------------------------------------------------- Letter :7.1

As agreed with your offices, unless you publicly announce its
contents earlier, we plan no further distribution of this report
until 30 days from the date of this letter.  At that time, we will
send copies to the Secretary of the Interior; the Assistant
Secretary, Fish and Wildlife and Parks; and the Director of the Fish
and Wildlife Service.  We will also make copies available to others
on request. 

Please call me at (202) 512-7756 if you or your staff have any
questions.  Major contributors to this report are listed in appendix
V. 

James Duffus III
Director, Natural Resources
 Management Issues


LISTED SPECIES THAT OCCUR ON
WILDLIFE REFUGES
=========================================================== Appendix I

As of April 1994, the number of listed animal and plant species
occuring on wildlife refuges totaled 215.  As of June 30, 1994,
recovery plans had been approved for 157 of these species (as
indicated by an asterisk). 


      AMPHIBIANS
------------------------------------------------------- Appendix I:0.1

*Salamander, Santa Cruz long-toed
*Toad, Wyoming


      BIRDS
------------------------------------------------------- Appendix I:0.2

*Akepa, Hawaii
*Akiapolaau
*Blackbird, yellow-shouldered
*Bobwhite, masked (quail)
*Broadbill, Guam
*Caracara, Audubon's crested
*Condor, California
*Coot, Hawaiian
*Crane, Mississippi sandhill
*Crane, whooping
*Creeper, Hawaii
*Crow, Mariana
Curlew, Eskimo
*Duck, Hawaiian
*Duck, Laysan
*Eagle, bald
Eider, spectacled
*Falcon, American peregrine
*Falcon, Arctic peregrine
*Falcon, northern aplomado
*Finch, Laysan
*Finch, Nihoa1 Flycatcher, southwestern willow
*Goose, Aleutian Canada
*Goose, Hawaiian (nene)
*Hawk, Hawaiian
*Jay, Florida scrub
*Kingfisher, Guam Micronesian
*Kite, Everglade snail
*Millerbird, Nilhoa
*Moorhen (gallilnule), Hawaiian common
*Moorhen, Mariana common
Murrelet, marbled
*'O'u (honeycreeper)
Owl, northern spotted
*Pelican, brown
*Plover, piping
Plover, western snowy (Pacific coastal)
*Prairie chicken, Attwater's greater
*Rail, California clapper
*Rail, light-footed clapper
*Rail, Yuma clapper
*Stilt, Hawaiian
*Stork, wood
*Swiftlet, Vanikoro
*Tern, California least
*Tern, least (interior)
*Tern, roseate
*Vireo, black-capped
Vireo, least Bell's
*Warbler, golden-cheeked
*Warbler, Kirtland's
*White-eyed, bridled
*Woodpecker, red-cockaded


      CLAMS
------------------------------------------------------- Appendix I:0.3

*Fanshell
*Mussel, ring pink (golf stick pearly)
*Pearly mussel, Higgin's eye
*Pearly mussel (pimple back), orange-footed
*Pearly mussel, pink mucket
*Pigtoe, rough


      CRUSTACEAN
------------------------------------------------------- Appendix I:0.4

Cambarus aculabrum (crayfish with no common name)


      FISHES
------------------------------------------------------- Appendix I:0.5

Catfish, Yaqui
*Cavefish, Ozark
*Chub, bonytail
*Chub, humpback
Chub, Oregon
Chub, Yaqui
*Dace, Ash Meadows speckled
*Dace, Moapa
*Darter, watercress
*Gambusia, Pecos
*Madtom, Neosho
Madtom, Pygmy
Minnow, Rio Grande Silvery
*Poolfish (killifish), Pahrump
*Pupfish, Ash Meadows amargosa
*Pupfish, Devils Hole
*Pupfish, Warm Springs
Shiner, beautiful
*Shiner, Pecos bluntnose
*Squawfish, Colorado
Sturgeon, Gulf
*Sturgeon, pallid
Sturgeon, shortnose
*Sucker, Lost River
Sucker, razorback
*Sucker, short-nose
*Topminnow, Gila (including Yaqui)


      INSECTS
------------------------------------------------------- Appendix I:0.6

*Beetle, American burying
*Beetle, Valley elderberry longhorn
Butterfly, Karner blue
*Butterfly, Lange's metalmark
*Butterfly, Schaus swallowtail
*Butterfly, Smith's blue
*Naucorid, Ash Meadows


      MAMMALS
------------------------------------------------------- Appendix I:0.7

*Bat, gray
Bat, Hawaiian hoary
*Bat, Indiana
Bat, lesser (Sanborn's) long-nosed
*Bat, Little Mariana fruit
*Bat, Mariana fruit
*Bat, Ozark big-eared
*Bear, grizzly
Bear, Louisiana black
*Cougar, eastern
*Deer, Columbian white-tailed
*Deer, key
*Fox, San Joaquin kit
Jaguar
*Jaguarundi
*Manatee, West Indian (Florida)
*Mouse, Alabama beach
Mouse, Key Largo cotton
*Mouse, salt marsh harvest
*Mouse, southeastern beach
*Ocelot
*Panther, Florida
*Pronghorn, Sonoran
*Rabbit, Lower Keys
Rat, rice (silver rice)
Rat, Tipton kangaroo
*Sea-lion, Steller (northern)
*Seal, Hawaiian monk
Shrew, Dismal Swamp southeastern
*Squirrel, Delmarva Peninsula fox
Whale, blue
Whale, bowhead
Whale, finback
Whale, gray
*Whale, humpback
*Whale, right
Whale, sei
*Wolf, gray
*Wolf, red
Woodrat, Key Largo


      REPTILES
------------------------------------------------------- Appendix I:0.8

*Anole, Culebra Island giant
*Crocodile, American
*Lizard, blunt-nosed leopard
*Lizard, Coachella Valley fringe-toed
*Lizard, St.  Croix ground
*Skink, blue-tailed mole
*Snake, Atlantic salt marsh
*Snake, eastern indigo
Snake, giant garter
Snake, northern copperbelly water
*Tortoise, desert
*Tortoise, gopher
*Turtle, green sea
*Turtle, hawksbill sea
*Turtle, Kemp's (Atlantic) ridley sea
*Turtle, leatherback sea
*Turtle, loggerhead sea
*Turtle, Plymouth red-bellied
*Turtle, ringed sawback


      SNAIL
------------------------------------------------------- Appendix I:0.9

*Snail, Iowa Pleistocence


      PLANTS
------------------------------------------------------ Appendix I:0.10

Amaranthus brownii, Brown's pigweed
Amaranthus pumilus, Seabeach amaranth
*Asimina tetramera, Four-petal pawpaw
*Lomatium bradshwaii, Bradshaw's desert-parsley
*Oxypolis canbyi, Canby's dropwort
Fritchardia renota, Loulo
Asclepias meadii, Mead's milkweed
*Phyllitis scolopendrium var.  americana, American hart's-tongue
fern
*Polystichum aleuticum, Aleutian shield-fern
*Boltonia decurrens, Decurrent false aster
*Enceliopsis nudicaulis var.  corrugata, Ash Meadows sunray
*Grindelia fraxinopratensis, Ash Meadows gumplant
*Hymenoxys aculis var.  glabra, Lakeside daisy
*Thymophylla tephroleuca, Ashy dogweed
*Erysimum capitatum var.  angustatum, Contra Costa wallflower
*Cereus eriophorus var.  fragrans, Fragrant prickly-apple
*Cereus robinii, Key tree-cactus
Corphantha sneedii var.  robustispina, Pima pineapple cactus
*Coryphantha sneedi var.  sneedii, Sneed pincushion cactus
*Echinocereus fendleri var.  kuenzleri, Kuenzler hedgehog cactus
*Sclerocactus glaucus, Uinta Basin hookless cactus
Harrisia portorricensis, Higo chumbo
Clermontia peleana peleana, 'oha wai
Clermontia pyrularia, 'oha wai
Howellia aquatilus, Water howellia
Schiedea verticillata, Whorled schiedea
*Nitrophila mohavensis, Amargosa niterwort
Tumamoca macdougalii, Tumamoc globe-berry
Mariscus pennatiformis ssp.  bryanii, no common name
*Chamaesyce bargeri (=Euphorbia garberi), Garber's spurge
Aeschynomene virginica, Sensitive joint-vetch
*Apios priceana, Price's potato-bean
*Astragalus phoenix, Ash Meadow milk-vetch
*Lespedeza leptosyachya, Prairie bush-clover
Serianthes nelsonii, Hayun lagu
Sesbania tomentosa (no common name)
Stahlia monosperma, Cobana negra
*Trifolium stoloniferum, Running buffalo clover
*Frankenia johnstonii, Johnston's frankenia
*Centaurium namophilum, Spring-loving centaury
Iris lacutris, Dwarf Lake Iris
*Hedeoma todsenii, Todsen's pennyroyal
*Helonias bullata, Swamp pink
*Mentzelia leucophylla, Ash Meadow's blazing star
Sidalcea nelsoniana, Nelson's checker-mallow
Eugenia woodburyana (no common name)
*Oenothera deltoides ssp.  howellii, Antioch Dunes evening-primrose
Platanthera leucophaea, Eastern prairie fringed orchid
Platanthera praeclara, Western prairie fringed orchid
*Peperomia wheeleri, Wheeler's Peperomia
Aristida chasae (no common name)
Chorizante pungens var.  pungens, Monterey spineflower
*Aconitum noveboracense, Northern wild monkshood
*Ivesia kingii var.  eremica, Ash Meadows ivesia
*Agalinis acuta, Sandplain gerardia
*Cordylanthus maritimus ssp.  maritimus, Salt marsh bird's-beak
*Penstemon haydenii, Blowout penstemon
Schwalbea americana, American chaffseed

Source:  FWS. 


WILDLIFE REFUGES THAT PROVIDE A
SIGNIFICANT PORTION OF A LISTED
SPECIES' HABITAT, AS OF FEBRUARY
1994
========================================================== Appendix II

State                 Refuge              Species
--------------------  ------------------  ------------------
Alaska                Alaska Maritime     Aleutian Canada
                                          goose, Aleutian
                                          shield-fern

                      Yukon Delta         Spectacled eider

Alabama               Bon Secour          Alabama beach
                                          mouse

                      Watercress Darter   Watercress darter

Arkansas              Logan Cave          Ozark cavefish,
                                          Gray bat, Indiana
                                          bat, Cambarus
                                          aculabrum
                                          (crayfish with no
                                          common name)

Arizona               Buenos Aires        Masked bob-white
                                          quail

                      Cabeza Prieta       Sonoran pronghorn

                      San Bernardino      Yaqui topminnow,
                                          Yaqui chub, Yaqui
                                          catfish, Beautiful
                                          shiner

California            Antioch Dunes       Lange's metalmark
                                          butterfly, Contra
                                          Costa wallflower,
                                          Antioch Dunes
                                          evening primrose

                      Clear Lake          Lost River and
                                          short-nosed
                                          suckers

                      Coachella Valley    Coachella Valley
                                          fringed-toed
                                          lizard

                      Ellicott Slough     Santa Cruz long-
                                          toed salamander

                      Hopper Mountain     California condor

                      Salton Sea          Yuma clapper rail

                      San Francisco Bay   California clapper
                                          rail

                      Seal Beach          Light-footed
                                          clapper rail,
                                          California least
                                          tern

                      Tijuana Slough      Light-footed
                                          clapper rail,
                                          California least
                                          tern

Florida               Archie Carr         Loggerhead, green,
                                          leatherback, and
                                          hawksbill sea
                                          turtles

                      A.R.M. Loxahatchee  Everglade snail
                                          kite

                      Crocodile Lake      American
                                          crocodile, Key
                                          Largo cotton
                                          mouse, Key Largo
                                          woodrat

                      Crystal River       West Indian
                                          manatee

                      Florida Panther     Florida panther

                      Great White Heron   Rice (silver rice)
                                          rat

                      Hobe Sound          Loggerhead and
                                          green sea turtles

                      Key West            Schaus swallowtail
                                          butterfly

                      Merritt Island      West Indian
                                          manatee,
                                          loggerhead,
                                          hawksbill,
                                          leatherback and
                                          green sea turtles,
                                          Florida scrub jay

                      National Key Deer   Key deer, Lower
                                          Keys rabbit, rice
                                          (silver rice) rat,
                                          Key tree cactus

                      St. Marks           Red-cockaded
                                          woodpecker

Georgia               Piedmont            Red-cockaded
                                          woodpecker

Guam                  Guam                Little Mariana
                                          fruit bat, Mariana
                                          fruit bat, Guam
                                          broadbill, Mariana
                                          Crow, Guam
                                          Micronesian
                                          kingfisher,
                                          Bridled white-eye

Hawaii                Hanalei             Hawaiian stilt,
                                          Hawaiian coot,
                                          Hawaiian moorhen,
                                          Hawaiian duck

                      Hawaiian Islands    Nihoa finch,
                                          Laysan duck,
                                          Laysan finch,
                                          Hawaiian monk seal

                      Huleia              Hawaiian stilt,
                                          Hawaiian coot,
                                          Hawaiian moorhen,
                                          Hawaiian duck

                      James C. Campbell   Hawaiian stilt,
                                          Hawaiian coot,
                                          Hawaiian moorhen,
                                          Hawaiian duck

                      Kealia Pond         Hawaiian stilt,
                                          Hawaiian coot,
                                          Hawaiian moorhen,
                                          Hawaiian duck

                      Pearl Harbor        Hawaiian stilt,
                                          Hawaiian coot,
                                          Hawaiian moorhen,
                                          Hawaiian duck

Insular Possession    Midway Atoll        Short-tailed
                                          albatross

Iowa                  Driftless Area      Iowa pleistocene
                                          snail, Northern
                                          wild monkshood

Louisiana             Atchafalaya         Louisiana black
                                          bear

                      Delta               Loggerhead, Kemp's
                                          ridley, and
                                          leatherback sea
                                          turtles

                      Tensas              Louisiana black
                                          bear

Maryland              Blackwater          Delmarva
                                          Penninsula fox
                                          squirrel

                      Chincoteague (also  Delmarva
                      in Virginia)        Penninsula fox
                                          squirrel

Michigan              Kirkland's Warbler  Kirkland's warbler

Mississippi           Mississippi         Mississippi
                      Sandhill Crane      sandhill crane

                      Noxubee             Red-cockaded
                                          woodpecker

Montana               Charles M. Russell  Black-footed
                                          ferret (to be
                                          reintroduced)

Nevada                Ash Meadows         Devil's Hole
                                          pupfish, Warm
                                          Springs pupfish,
                                          Ash Meadows
                                          amargosa pupfish,
                                          Ash Meadows
                                          speckled dace, Ash
                                          Meadows naucorid,
                                          Ash Meadows
                                          blazing-star,
                                          Amargosa
                                          niterwort, Ash
                                          Meadows milk-
                                          vetch, Ash Meadows
                                          sunray, spring-
                                          loving centaury,
                                          Ash Meadows
                                          gumplant, Ash
                                          Meadows invesia

                      Moapa Valley        Moapa dace

North Carolina        Alligator River     Red wolf

                      Pocosin Lakes       Red wolf

Oklahoma              Oklahoma Bat Caves  Gray bat, Ozark
                                          big-eared bat

                      Wichita Mountains   Black-capped vireo

Oregon                Julia Butler        Columbian white-
                      Hansen Refuge for   tailed deer
                      Columbian White-
                      tailed Deer (also
                      in Washington)

Puerto Rico           Culebra             Hawksbill and
                                          leatherback sea
                                          turtles, Wheeler's
                                          Peperonia, Roseate
                                          tern

South Carolina        Cape Romain         Loggerhead sea
                                          turtle

                      Carolina Sandhills  Red-cockaded
                                          woodpecker

Texas                 Aransas             Whooping crane

                      Attwater Prairie    Attwater prairie
                      Chicken             chicken

                      Balcones            Black-capped
                      Canyonlands         vireo, golden-
                                          cheeked warbler

                      Laguna Atascosa     Ocelot, jaguarundi

                      Lower Rio Grande    Jaguarundi

Virgin Islands        Green Cay           St. Croix ground
                                          lizard

                      Sandy Point         Leatherback,
                                          hawksbill, and
                                          green sea turtles

Virginia              Chincoteague (also  Delmarva
                      in Maryland)        Penninsula fox
                                          squirrel

 Washington     Julia Butler        Columbian white-
                      Hansen Refuge for   tailed deer
                      Columbian White-
                      tailed Deer (also
                      in Oregon)

Wisconsin             Necedah             Karner blue
                                          butterfly

Wyoming               Mortenson Lake      Wyoming toad
------------------------------------------------------------
Source:  FWS. 


WILDLIFE REFUGES ESTABLISHED FOR
LISTED SPECIES AS OF MAY 24, 1994
========================================================= Appendix III

                                                      Acreag
State           Refuge            Primary species          e
--------------  ----------------  ------------------  ------
Alabama         Blowing Wind      Indiana bat, gray      264
                Cave              bat

                Fern Cave         Indiana bat, gray      199
                                  bat

                Watercress        Watercress darter        7
                Darter

Arkansas        Logan Cave        Ozark cavefish         124

Arizona         Buenos Aires      Masked bobwhite     113,94
                                  quail                    0

                Leslie Canyon     Gila (Yaqui)         1,240
                                  topminnow, Yaqui
                                  chub, Peregrine
                                  falcon

                San Bernardino    Gila (Yaqui)         2,369
                                  topminnow, Yaqui
                                  chub, Yaqui
                                  catfish, beautiful
                                  shiner

California      Antioch Dunes     Lange's metalmark       55
                                  butterfly, Antioch
                                  Dunes evening-
                                  primrose, Contra
                                  Costa wallflower

                Bitter Creek      California condor   14,054

                Blue Ridge        California condor      897

                Castle Rock       Aleutian Canada         14
                                  goose

                Coachella Valley  Coachella Valley     3,276
                                  fringe-toed lizard

                Ellicott Slough   Santa Cruz long-       127
                                  toed salamander

                Hopper Mountain   California condor    2,471

                Sacramento River  Valley elderberry    6,458
                                  longhorn beetle,
                                  bald eagle, least
                                  bell's vireo

                San Francisco     California clapper  21,200
                Bay               rail, California
                                  least tern, salt
                                  marsh harvest
                                  mouse

                San Joaquin       Aleutian Canada      1,638
                River             goose

                Seal Beach        Light-footed           911
                                  clapper rail,
                                  California least
                                  tern

                Sweetwater Marsh  Light-footed           316
                                  clapper rail

                Tijuana Slough    Light-footed         1,023
                                  clapper rail

Florida         Archie Carr       Loggerhead and          51
                                  green sea turtles

                Crocodile Lake    American crocodile   6,560

                Crystal River     West Indian             66
                                  manatee

                Florida Panther   Florida panther     23,379

                Hobe Sound        Loggerhead and         980
                                  green sea turtles

                National Key      Key deer             8,196
                Deer

                St. Johns         Dusky seaside        6,255
                                  sparrow (extinct)

Hawaii          Hakalau Forest    Akepa, akiapolaau,  16,515
                                  'o'u, Hawaiian
                                  hawk, Hawaiian
                                  creeper

                Hanalei           Hawaiian stilt,        917
                                  Hawaiian coot,
                                  Hawaiian moorhen,
                                  Hawaiian duck

                Huleia            Hawaiian stilt,        241
                                  Hawaiian coot,
                                  Hawaiian moorhen,
                                  Hawaiian duck

                James C.          Hawaiian stilt,        166
                Campbell          Hawaiian coot,
                                  Hawaiian moorhen,
                                  Hawaiian duck

                Kakahaia          Hawaiian stilt,         45
                                  Hawaiian coot

                Kealia Pond       Hawaiian stilt,        691
                                  Hawaiian coot

                Pearl Harbor      Hawaiian stilt          61

Iowa            Driftless Area    Iowa pleistocene       507
                                  snail

Massachusetts   Massasoit         Plymouth red-          184
                                  bellied turtle

Michigan        Kirtland's        Kirtland's warbler   6,530
                Warbler

Mississippi     Mississippi       Mississippi         19,308
                Sandhill Crane    sandhill crane

Missouri        Ozark Cavefish    Ozark cavefish          40

                Pilot Knob        Indiana bat             90

Nebraska        Karl E. Mundt     Bald eagle              19

Nevada          Ash Meadows       Devil's hole        13,231
                                  pupfish, Warm
                                  Springs pupfish,
                                  Ash Meadows
                                  amargosa pupfish,
                                  Ash Meadows
                                  speckled dace, Ash
                                  Meadows naucorid,
                                  Ash Meadows
                                  blazing star,
                                  Amargosa
                                  niterwort, Ash
                                  Meadows milk-
                                  vetch, Ash Meadows
                                  sunray, spring-
                                  loving centaury,
                                  Ash Meadows
                                  gumplant, Ash
                                  Meadows ivesia

                Moapa Valley      Moapa dace              32

Oklahoma        Oklahoma Bat      Ozark big-eared        658
                Caves             bat, gray bat

Oregon          Bear Valley       Bald eagle           4,178

                Julia Butler      Columbian white-     1,978
                Hansen Refuge     tailed deer
                for Columbian
                White-tailed
                Deer (also in
                Washington)

                Nestucca Bay      Aleutian Canada        399
                                  goose

South Dakota    Karl E. Mundt     Bald eagle           1,044

Texas           Attwater Prairie  Attwater prairie     7,984
                Chicken           chicken

                Balcones          Black-capped         7,905
                Canyonlands       vireo, golden-
                                  cheeked warbler

Virginia        James River       Bald eagle           4,147

                Mason Neck        Bald eagle           2,276

Virgin Islands  Green Cay         St. Croix ground        14
                                  lizard

                Sandy Point       Leatherback sea        327
                                  turtle

Washington      Julia B. Hansen   Columbian white-     2,777
                Refuge for        tailed deer
                Columbian White-
                tailed Deer
                (also in Oregon)

Wyoming         Mortenson Lake    Wyoming toad         1,776

============================================================
Total acreage                                         310,11
                                                           0
------------------------------------------------------------
Note:  This list does not include refuges which were originally
established for other purposes and later added specific lands for
listed species. 

Source:  FWS. 




(See figure in printed edition.)Appendix IV
COMMENTS FROM THE DEPARTMENT OF
THE INTERIOR
========================================================= Appendix III



(See figure in printed edition.)


MAJOR CONTRIBUTORS TO THIS REPORT
=========================================================== Appendix V

RESOURCES, COMMUNITY, AND ECONOMIC
DEVELOPMENT DIVISION, WASHINGTON,
D.C. 

Deborah Eichhorn
Paul Grace
Kathleen Johnson

FAR EAST OFFICE

Kim Gianopoulos
