Biological Foundation
Landscape Approach
Partnerships
EXPANDING the VISION
NORTH AMERICAN
Canada U.S.A. México W A TERFOWL NAWMP Implementation Office North American Waterfowl Instituto Nacional de Ecología - SEMARNAP Wildlife Conservation Branch and Wetlands Office Dirección General de Vida Silvestre MANAGEMENT PLAN Canadian Wildlife Service U.S. Fish and Wildlife Service Avenida Revolución /1425, nivel 19 Environment Canada Arlington Square Building Colonia Tlacopac, San Angel Place Vincent Massey, 3rd Floor 4401 North Fairfax Drive, Room 110 México, D.F. 351 St. Joseph Boulevard Arlington, Virginia México 01040 Hull, Québec U.S.A. 22203 Canada K1A 0H3 Phone: +(52-5) 624-3301 Phone: (703) 358-1784 Fax: +(52-5) 624-3588 Phone: (819) 997-2392 Fax: (703) 358-2282 Fax: (819) 994-4445 E-mail: [email protected] E-mail: [email protected] The 1986 North American Waterfowl Management Plan launched a new era in wildlife conservation, setting out a blueprint for developing public–private partnerships to conserve natural resources. Today, thousands of partners in our three nations have established a continental conservation legacy, one that is based on sound science and a landscape approach. Building on this foundation, the 1998 Update, Expanding the Vision, envisions a North America where the needs of waterfowl—and indeed all wild species— are considered, as citizens participate in making decisions about the use of landscapes. We enthusiastically endorse this concept and encourage leadership by Plan partners in implementing this vision well into the next century.
Le Plan nord-américain de gestion de la sauvagine de 1986 lançait une nouvelle ère en conservation de la faune, en établissant un plan directeur pour la création de partenariats publics-privés en vue de conserver les ressources naturelles. Aujourd’hui, des milliers de partenaires dans les trois pays ont établi un legs continental de conservation, fondé sur des données scientifiques solides et une approche axée sur les paysages. En bâtissant sur ce fondement, la Mise à jour, 1998, du document Une vision élargie, anticipe l’Amérique du Nord en tant que continent où les besoins de la sauvagine et de toutes les espèces sauvages sont pris en considération, étant donné la participation des citoyens aux prises de décision sur l’utilisation des paysages. C’est avec enthousiasme que nous appuyons ce concept et encourageons le leadership des partenaires du Plan dans la mise en œuvre de cette vision tout au cours du prochain siècle.
En 1986, el Plan de Manejo de Aves Acuáticas de Norteamérica inició una nueva era en la conservación de la vida silvestre al establecer un esquema para la conservación de los recursos naturales, basado en el desarrollo de asociaciones entre el sector público y el privado. Hoy en día, miles de socios en nuestras tres naciones han establecido un legado de conservación a nivel continental, un legado con bases científicas y una aproximación al nivel de paisaje. Partiendo de este legado, la actualización de 1998 del Plan Ampliando la visión augura un futuro para Norteamérica en el que no solo se consideren las necesidades de las aves acuáticas sino de toda la vida silvestre, al mismo tiempo que los ciudadanos participen en la toma de decisiones sobre el uso de su entorno. Apoyamos con entusiasmo este concepto y alentamos el liderazgo de los socios del Plan para ir implementando esta visión dentro del próximo siglo.
Bruce Babbitt Secretary of the Interior, United States
Julia Carabias Lillo Minister of Environment, Natural Resources and Fisheries, Mexico
Christine Stewart Minister of the Environment, Canada EXPANDING the VISION Update NORTH AMERICAN
W A TERFOWL
MANAGEMENT PLAN U.S. Department of the Interior, Fish and Wildlife Service
SEMARNAP SEMARNAP Mexico MÉXICO
Environment Environnement Canada Canada
Canadian Wildlife Service canadien Service de la faune Contents Preface ...... v Acknowledgements ...... vi Executive Summary ...... vii
Part 1—Strategic Direction ...... 1 The North American Waterfowl Management Plan—A Conservation Legacy ...... 1
The Changing Context of Waterfowl Conservation ...... 3 Evolution of Waterfowl Conservation in North America...... 3 Current Continental Context of the 1998 Update ...... 3 Other Migratory Bird Initiatives ...... 4 Trends...... 5
Expanding the Vision ...... 7 Strengthening the Biological Foundation ...... 7 Toward Landscape Conservation ...... 9 Broadening the Scope of Partnerships ...... 11
Summary ...... 13 The Challenges...... 13 The Visions...... 13
Part 2—Population Objectives and Status of North American Waterfowl ...... 15 Population Objectives...... 15 Specific Waterfowl Management Issues ...... 15 Duck Population Objectives...... 17 Status of Dabbling Ducks ...... 19 Status of Diving Ducks and Sea Ducks ...... 20 Goose Population Objectives ...... 21 Status of Canada Geese ...... 23 Status of Snow Geese and Ross’ Geese ...... 23 Status of White-fronted Geese...... 24 Status of Other Geese ...... 24 Swan Population Objectives...... 24 Status of Tundra Swans ...... 25 Status of Trumpeter Swans ...... 25
Part 3—North American Waterfowl Management Plan Administration ...... 29 International Administration...... 29 North American Waterfowl Management Plan Committee ...... 29 Continental Evaluation Team ...... 30 The North American Wetlands Conservation Council...... 30
iii National Administration ...... 30 Canada ...... 30 United States ...... 31 Mexico ...... 31
Regional Administration ...... 32 Joint Ventures...... 32
Figure Model for cooperative habitat conservation ...... 12
Tables Table 1: Average duck population estimates for North America, 1970–1979 ...... 18 Table 2: Breeding duck population status, trends, and goals for the 10 most common species in the Mid-continent Region ...... 19 Table 3: Status of and goals for North American goose populations ...... 22 Table 4: Status of and goals for North American swan populations...... 25 Table 5: North American Waterfowl Management Plan joint venture objectives (acres) . . 26
Map Important Waterfowl Habitat Areas in North America...... 27
iv Preface
he North American Waterfowl Management Plan (Plan), signed by Canada and T the United States in 1986, laid out A Strategy for Cooperation in the conservation of waterfowl. It emphasized the importance of a partnership approach to conserve habitats important to waterfowl, to continually improve our scientific understanding of waterfowl populations and their interactions with habitats, and to periodically update the Plan. In 1994, the Plan was updated and became a truly continental effort when Mexico joined Canada and the United States as a signatory. Although the principles and the waterfowl population goals in Expanding the Commitment remained the same as in the 1986 Plan, habitat objectives increased fourfold. The challenge was clear: more needed to be done on a broader scale. The 1998 Update, Expanding the Vision, builds on the legacy of the 1986 Plan and 1994 Update. The vision put forward here recognizes that the socioeconomic context for waterfowl conservation in North America is changing rapidly. Now more than ever, waterfowl conservation is linked to a wide range of social and economic policies and programs, and to other international wildlife conservation interests. The 1998 Update was developed in light of these changing circumstances and after extensive consultation. We hope that it will guide continental waterfowl conservation well into the next century. It is also our hope that the Plan will remain a model for international conservation, and that its spirit of partnership and cooperation will inspire all people working to conserve North America’s natural resources. To the many thousands of partners who have made the Plan a success, we salute your tireless efforts and commitment, and we look forward to your continued support. To the many others involved in conservation, we look forward to the opportunity of working together to conserve our nations’ natural resources.
George Arsenault, Canada Thomas Hinz, United States Daniel M. Ashe, United States Eldridge “Red” Hunt, United States Humberto Berlanga, Mexico Gerald McKeating, Canada Arnold Boer, Canada Bob McLean, Canada Jorge Correa, Mexico Felipe Ramírez Ruíz, Mexico Dick Elden, United States Joshua Sandt, United States Patricia Escalante, Mexico Dennis Sherratt, Canada Francisco Flores, Mexico David A. Smith, United States Eric Gustafson, Mexico Doug Stewart, Canada
The North American Waterfowl Management Plan Committee
v Pintails — U.S. Fish and Wildlife Service vi and suppor pr Acknowledgements ac r s ha ongbir ec inciples of v r e unint r oss thewor T "W eate thes he pr same spir e ha ds andmar entional t g oduction of ve achancetopla the Planitself. i v e e n b tt ld's mostr it of ly omitt ing forther y thefollo Dee B Danielle B Charles Baxt F M Ric Ro Er Ke t sh de r r i-national par ed J e ika Delg n d Fow r h Goulden this 1998U C e ed: dith G ohnson u The PlanC o nize tler x ichly bless w le ing people, r ado r idgett u e ns o er tur t y apar o wski pdat t nership andc n o f o mmitt all kinds...Thisr e documentisdueinlargepar ed cont f and w t inalands g r eat flockso ee g e apolog r ine at o oper efully ackno nt ... K Len U G St Bar Elisa P Ar M cape dr ation embodiedinthe iz e r e ar t n W eg Thompson e t f v M bar e W the oppor k equir w o c K g ar e ild water illiams a R ar o r e o t esbar wledges thetime neff ndt e en nt ama ... l o R l es v binson r k ich Goulde ibut o bosa 1941 –1997 t ision ..." t o unit o thev rs w f owl, unfolding e ma y to e o r n f y y Executive Summary
he North American Waterfowl Management Plan (Plan) is T the most ambitious continental wildlife conservation initiative ever attempted. It seeks to restore waterfowl populations in Canada, the United States, and Mexico to the levels recorded during the 1970s—a benchmark decade for waterfowl. Several factors have combined in recent years to bring waterfowl populations remarkably close to this goal today. Tremendous achievements in habitat conservation—through the efforts of many Plan partners, new programs for wildlife habitat conservation, Canada changes in agricultural conservation policies and programs, and nlimited U exceptionally good hydrological conditions—have contributed to a s striking rebound in most populations of ducks, geese, and swans. Duck — While this response is encouraging, the enthusiasm of Plan edhead partners is tempered by the realization that waterfowl populations R are approaching Plan goals that were established for average environmental conditions rather than for the sustained excellent conditions of the past 4 or 5 years. The continuing growth of global population, the increasing demand for agricultural production, and the quest for an ever-increasing standard of living, combined with an inevitable return to average or below-average hydrological conditions, will likely depress waterfowl populations in the future. Thus, if waterfowl populations are to be sustained, conservation efforts must continually be adjusted. The legacy established by the Plan in its first 12 years— implementing biologically based conservation across priority Thousands of partners representing landscapes through innovative partnerships—has changed the approach to conservation as it pertains to all wildlife, not just diverse interests in three countries waterfowl. Thousands of partners representing diverse interests in have worked to conserve over three countries have worked to conserve over 5 million acres of wetland ecosystems. Together, they have restored, protected, and 5 million acres of wetland improved habitats for migratory birds, amphibians, fish, mammals, ecosystems. and plants. Their efforts have helped to conserve North America’s rich biological diversity, as well as provide environmental services such as water quality improvement and erosion control. In addition, the research and monitoring of specific populations conducted by the Plan’s species joint venture partners has added to the knowledge base of these species and will improve their management. In considering the history and future of waterfowl conservation within an ever- changing international context, the drafters of the 1986 Plan foresaw the need for periodic updates to keep the Plan responsive and relevant. It is in this spirit that the North American Waterfowl Management Plan, 1998 Update, Expanding the Vision reflects
vii G.R. Harding and br pr 1998 U of act The c omot N ions thatw o hal r oaden par th Amer pdat e sustainablelandscapes, lenges setf e f o il ica r l impr m thebasisf t nerships. ’ s viii o wat c on thelegacyestablishedb • r o o th inthis nser biolog w Plan par v er e thestatus e tland-associat f o v ation inthefutur w ical o l, t r ners enhanc ly basedplanning ed sp m A t st par landscap int actions thatw • N • pr o and M o dat v ft r o ust beimplement omot er e thecapabilit e er ecies b Plan par Plan par the ec management, wat par c par sec r e t e: ngthening thePlan ol th P P The c r descr ners t v national, y thePlanandpr ar ar iew of e, lec t ticipat ticularly mig erfo e ors andc A t 1of t 2outlinesthePlan e sustainablelandscap xic and thec mer , ti e c olog y ensur hal w o br v w o ibing thePlan e sear hic t t o . l andbenefitotherw ners c ners definethelandscap the Plan ica e inthede lenges setfor nser ical healthof this U ing wat ill impr national, h intur ’ s ducks, o y of c ing thatPlanimplementationisguidedb v mm and socialpoliciespr hang h forsustainableusesof ollabor ation, r pdat ed, at ’ s administ landscap unities t erfo o or n isr ing int esents thr ’ v s biolog P v r e thestatusof e setsoutast geese, y bir e ar and br e ’ wl c at lopment of s c g th inthis1998U t 1putsfor ional, these landscapes. e w e ’ o s populationandhabitatobjec fined thr d initiati e nser o o forgebr es, es t r and swans. nser ith otherc national c ical foundation, oadening par r ee v ation inCanada, and br and localle o suppor e v tland-associat ation legacy v ation int isions t e c oug c r v th thr o at es, N o oader al oaden par nser e o nditions neededt o h ongoinge o g and r r Finally nt t wat nser ic dir landscap th og pdat o ad ee v v e t v o thene ation, r xt inw nerships. A e ams thatmostaffec , v ls. eac mer erfo e for lianc isions for vanc mo its ac ection forPlan ation effor ed sp , the U t P h outt nerships on v ica ar w ec es. m thebasisfor ing t e wat es ina hic c xt c v l andother t 3g ecies, onomic, o ’ aluation. s wat mplishments nit h thePlan e o o other erfo ntur i war ed Stat o sustain y v ts, t and erfo es an i v es for wl d y . wl, es, t PA R T 1 Strategic Direction
The North American Waterfowl Management Plan— A Conservation Legacy For millennia, ducks, geese, and swans have migrated across North America’s landscapes in an annual ritual that evokes a sense of wonder at the forces, mysterious yet consistent, that send millions of birds the length of a continent and back again. Yet among conservationists, the mystery of migration is accompanied by certain knowledge that waterfowl are dependent upon a complex and increasingly vulnerable chain of habitats extending across international borders. Underlying the spectacle of migration is a challenge of unprecedented proportions—the conservation of a migratory resource on a continental scale. In 1986, the North American Waterfowl Management Plan responded to this challenge. It gave the wildlife conservation community the daunting task of coordinating and focusing the conservation programs of three nations to measurably increase continental populations of a highly mobile, shared migratory resource—waterfowl. First signed by Canada and the United States, the Plan was updated in 1994 with Mexico as a signatory. The 1986 Plan asked conservationists to develop coordinated site-specific habitat management programs and projects that would prompt population responses on a continental scale. It is this biological foundation that sets the Plan apart from most other conservation efforts of its time.
1 998 U p date 1 The Plan also recognized that land-use practices and policies affecting extensive areas across the continent would have to be altered. Conservation efforts would have to move beyond the limits of public natural resource lands to deal with whole landscapes, including private and common lands. Partners ventured beyond the security of long- established wildlife programs and relationships to embrace programs and policies that most directly affect the ecological health of landscapes—to benefit not only wildlife but people as well. In addition, the Plan offered a platform from which waterfowl Between 1986 and 1997, conservationists in both the public and private sectors could organize themselves into partnerships, called joint ventures, to Plan partners invested over accomplish this task. In 1994, Mexican regional partnerships, US$1.5 billion to secure, protect, analogous to the U.S. and Canadian joint ventures, joined Plan efforts. This partnership concept would launch wetland habitat restore, enhance, and manage conservation into a new era by changing the way conservation is wetlands and associated uplands in delivered. Between 1986 and 1997, Plan partners invested over priority landscapes. US$1.5 billion to secure, protect, restore, enhance, and manage wetlands and associated uplands in priority landscapes; to conduct research and monitor specific waterfowl populations; and to provide environmental education and conservation planning with community involvement. Plan partners have worked within each country and internationally to influence agriculture, forestry, water, and trade policies that have indirectly affected a much larger portion of the continent’s landscapes than have direct conservation projects alone. Through the collective effort of Plan partners, the hopes of the Plan’s original drafters have been transformed into a threefold conservation legacy, which is the foundation of the 1998 Update: • The Plan’s biological foundation links on-the-ground habitat management to quantified waterfowl population and habitat goals, objectives, and strategies that are both continental and regional in scope. • The Plan has been a major force in moving the wildlife conservation community toward a landscape approach, one that integrates management and stewardship of public, private, and an y R common lands.
Doug • The Plan pioneered a partnership approach to conservation, which permeates all facets of Plan implementation. Looking back to 1986, those associated with the Plan should be congratulated for their record of exceptional contributions to habitat and species conservation. The Plan’s vision of biologically-driven, science-based partnerships focused on landscape-level change has become a reality.
2 1 998 U pdate The Changing Context of Waterfowl Conservation
or the past 100 years, waterfowl conservation in North America has adapted to changing environmental, economic,F social, and political forces. Now, as Plan partners consider the future of waterfowl conservation in this 1998 Update—and work ever more closely with each other in the three countries—they must respond to continuing fundamental shifts in the international context that shaped and directed the drafting of the original Plan in 1986. Evolution of Waterfowl Conservation in North America Canada
The institutional framework for international cooperation in nlimited U conserving North America’s migratory birds was established early s in this century. In 1916, Canada and the United States signed a Duck treaty for the conservation of migratory birds, and in 1936 the United States and Mexico signed a similar convention. By the 1980s, a long tradition of international cooperation in waterfowl population surveys and harvest management was in place. Population data confirmed that accelerated conversion and degradation of habitat caused