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Petition to List 12 Penguin Species Under the Endangered Species Act

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Petition to List 12 Penguin Species Under the Endangered Species Act BEFORE THE SECRETARY OF THE INTERIOR PETITION TO LIST 12 PENGUIN SPECIES UNDER THE ENDANGERED SPECIES ACT Macaroni Penguin ©Thomas D. Mangelsen/Imagesofnaturestock.com Submitted November 28, 2006 Petitioned Species COMMON NAME SCIENTIFIC NAME Emperor Penguin Aptenodytes forsteri Southern Rockhopper Penguin Eudyptes chrysocome Southern Rockhopper Penguin Eudyptes chrysocome chrysocome Eastern Rockhopper Penguin Eudyptes chrysocome filholi Northern Rockhopper Penguin Eudyptes moseleyi (E. chrysocome moseleyi) Fiordland Crested Penguin Eudyptes pachyrhynchus Snares Crested Penguin Eudyptes robustus Erect-crested Penguin Eudyptes sclateri Macaroni Penguin Eudyptes chrysolophus Royal Penguin Eudyptes schlegeli White-flippered Penguin Eudyptula albosignata (E. minor albosignata) Yellow-eyed Penguin Megadyptes antipodes African Penguin Spheniscus demersus Humboldt Penguin Spheniscus humboldti On the Cover: Macaroni Penguin ©Thomas D. Mangelsen/Imagesofnaturestock.com Photo taken December 18, 2005, on South Georgia Island Acknowledgments: Many thanks to photographers Thomas D. Mangelsen, Jenny E. Ross, and Peter and Barbara Barham for the generous donation of their penguin images. The decades of research by so many members of the scientific community whose published work is cited herein are also gratefully acknowledged. Protection of these species would not be possible without the hard and selfless efforts of the researchers and managers who have devoted their careers to the understanding and protection of these animals. Authors: Brendan Cummings, Andrew Orahoske, and Kassie Siegel, Center for Biological Diversity Page ii EXECUTIVE SUMMARY The penguins (Order: Sphenisciformes; Family: Spheniscidae) are among the more threatened groups of birds in the world, with over half of the approximately 19 currently recognized species considered imperiled by the IUCN and BirdLife International (BirdLife 2006). Nevertheless, only one species of penguin, the Galápagos Penguin (Spheniscus mendiculus), is actually protected under the United States Endangered Species Act (“ESA”). This Petition requests that 12 additional species of penguin be similarly protected and listed as Threatened or Endangered under the ESA. The petitioned species are the Emperor Penguin (Aptenodytes forsteri), Southern Rockhopper Penguin (Eudyptes chrysocome), Northern Rockhopper Penguin (Eudyptes moseleyi), Fiordland Crested Penguin (Eudyptes pachyrhynchus), Snares Crested Penguin (Eudyptes robustus), Erect-crested Penguin (Eudyptes sclateri), Macaroni Penguin (Eudyptes chrysolophus), Royal Penguin (Eudyptes schlegeli), White-flippered Penguin (Eudyptula albosignata), Yellow-eyed Penguin (Megadyptes antipodes), African Penguin Spheniscus demersus), and Humboldt Penguin (Spheniscus humboldti). Each of the petitioned penguin species faces unique and specific threats, ranging from introduced predators, disease, habitat destruction, disturbance at breeding colonies, oil spills, marine pollution, and in some cases, direct harvest. Additionally, most species are also impacted by fisheries, either directly, such as when individuals are caught and killed in trawls, nets and longlines, or indirectly, through the depletion of essential prey species such as krill. Cumulatively, these threats are for most of the petitioned species already of significant magnitude and impact such that listing under the ESA is warranted. Moreover, an additional overriding threat, affecting each species, makes listing under the ESA all the more urgent. Global warming has already been linked to past, ongoing, and/or projected population declines in numerous species of penguins. Even under the most optimistic emission scenarios, continued warming over the next several decades will dramatically and irreversibly affect Antarctica, the Sub-Antarctic islands, the Southern Ocean, and the penguins dependant on these and adjoining ecosystems. Global warming then represents the most significant and pervasive threat to the continued existence of penguins, and absent prompt action to cut United States and global greenhouse gas emissions, the march of the penguins will be a march towards extinction. The penguin species subject of this Petition are either already endangered or will likely be endangered in the foreseeable future; they therefore meet the criteria for listing as “Endangered” or “Threatened” under the ESA. Although species like the Emperor Penguin may not disappear for several decades, decisions made and actions taken over the next decade will likely dictate whether such species can survive. Only with prompt action to drastically reduce greenhouse gas emissions can the future of the Emperor and all other penguins be assured. The United States must play a leading role in this global effort. Listing the petitioned penguin species under the ESA is a small but significant step in that direction. Page iii Eastern Rockhopper Penguin Eudyptes chrysocome filholi Northern Rockhopper Penguin Eudyptes moseleyi (E. chrysocome moseleyi) Fiordland Crested Penguin Eudyptes pachyrhynchus Snares Crested Penguin Eudyptes robustus Erect-crested Penguin Eudyptes sclateri Macaroni Penguin Eudyptes chrysolophus Royal Penguin Eudyptes schlegeli White-flippered Penguin Eudyptula albosignata (E. minor albosignata) Yellow-eyed Penguin Megadyptes antipodes African Penguin Spheniscus demersus Humboldt Penguin Spheniscus humboldti With the exception of the Emperor Penguin, each of these species is recognized as threatened with extinction (Vulnerable or Endangered) by the World Conservation Union (“IUCN”) and BirdLife International. For each species, the primary threats to its continued existence stem from changing environmental conditions, including reduced food availability, as a result of human-induced global warming and industrial fishing. For many of the species additional threats include introduced predators, disease, habitat destruction, disturbance to breeding colonies, oil spills, marine pollution, and in some cases, direct harvest. The term “species” is defined broadly under the ESA to include “any subspecies of fish or wildlife or plants and any distinct population segment of any species of vertebrate fish or wildlife which interbreeds when mature.” 16 U.S.C. § 1532 (16). A Distinct Population Segment (“DPS”) of a vertebrate species can be protected as a “species” under the ESA even though it has not formally been described as a “species” in the scientific literature. A species may be composed of several DPSs, some or all of which warrant listing under the ESA. As described in this Petition, penguin taxonomy is rapidly changing, with between 16 and 19 species currently recognized. In the current cases of taxonomic dispute regarding penguins, the primary issue is whether a distinct breeding population should be recognized as a separate species or subspecies or be considered part of a more widely distributed taxon. We have followed the treatments using the most recent genetic data (Baker et al. 2006; Jouventin et al. 2006) and recognize 19 species. However, regardless of whether the petitioned taxa are recognized by FWS as biological species (or subspecies), each of these populations also constitute DPSs under the ESA and FWS’ “Policy Regarding the Recognition of Distinct Vertebrate Population Segments under the Endangered Species Act.” 61 Fed. Reg. 4721. As such, each petitioned taxon is a “species” under the ESA. Petitioners therefore request that FWS evaluate whether each of the penguin taxa described in this petition may warrant listing under the ESA as threatened or endangered. In analyzing whether a species warrants listing under the ESA, FWS must examine whether the species is threatened or endangered throughout all or a significant portion of its range. In the event FWS determines that the Petition fails to demonstrate that listing of any of the petitioned species may be warranted in all of its range, we request that, in the alternative, FWS consider whether the species is imperiled in “a significant portion of its range.” Page v FWS has jurisdiction over this Petition. This Petition sets in motion a specific process, placing definite response requirements on FWS. Specifically, FWS must issue an initial finding as to whether the Petition “presents substantial scientific or commercial information indicating that the petitioned action may be warranted.” 16 U.S.C. § 1533(b)(3)(A). FWS must make this initial finding “[t]o the maximum extent practicable, within 90 days after receiving the petition.” Id. Petitioners need not demonstrate that listing of each species is warranted, rather, Petitioners must only present information demonstrating that such listing may be warranted. While Petitioners believe that the best available science demonstrates that listing each of the petitioned species of penguin as threatened or endangered is in fact warranted, there can be no reasonable dispute that the available information indicates that listing each species as either threatened or endangered may be warranted. As such, FWS must promptly make a positive initial finding on the petition and commence a status review as required by 16 U.S.C. § 1533(b)(3)(B). As each of the Petitioned species occurs in areas outside of the United States, Petitioners believe this petition should be processed by FWS’s Division of Scientific Authority pursuant to the agency’s current policy for listing foreign species. See 69 Fed. Reg. 29354 (May 21, 2004)(Annual Notice of Findings on Resubmitted Petitions for Foreign Species; Annual Description of Progress
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