kevln Shea, AdmlnlsLraLor Anlmal and lanL PealLh lnspecLlon Servlce u.S. ueparLmenL of AgrlculLure !amle L. WhlLLen lederal 8ulldlng 1400 lndependence Avenue, SW, 8oom 312L WashlngLon, uC 20230
8e: ?our !une 2014 LeLLer Lo SLakeholders
uear Mr. Shea: We, Lhe underslgned groups, seek Lo open a broader dlalogue wlLh you regardlng Wlldllfe Servlces' leLhal predaLor conLrol program and Lo flnd some common ground where Lhe program could make changes Lo address Lhe concerns of our organlzaLlons, Lhe publlc, and leaders ln Congress. ln response Lo speclflc polnLs LhaL you ralse ln your sLakeholder !une 23, 2014 leLLer, we have provlded some lnformaLlon below LhaL we wlsh you would conslder. We would very much llke Lo dlscuss Lhese lssues and ways LhaL wlldllfe managemenL acLlvlLles could be conducLed more humanely.
1. W||d||fe Serv|ces |s fu||y transparent about |ts work and |t comp||es w|th the Ireedom of Informat|on Act (ICIA) and other federa| |aws.
As a federal agency, Wlldllfe Servlces' acLlvlLles should be accounLable and LransparenL Lo Lhe publlc. unforLunaLely, Lhls has noL been Lhe case. ln Lerms of accounLablllLy, ln Aprll 2011, four members of Congress asked Wlldllfe Servlces for speclflc lnformaLlon on budgeL allocaLlons. 1 APlS' response Lo Lhe congresslonal lnqulry falled Lo provlde slgnlflcanL parLs of Lhe lnformaLlon requesLed (arham 2011), clLlng, for example, LhaL of Lhe $39 mllllon spenL on anlmal damage managemenL, Lhe porLlon spenL on leLhal predaLor conLrol was unknown. 1he uSuA responded LhaL Lhe agency does noL capLure flnanclal daLa accordlng Lo Lhe Lype of leLhal meLhod used.
Wlldllfe Servlces cannoL Lell Congress or Lhe publlc speclflcally whaL lL spends on whaL lL does. 1he program has clalmed ln lClA responses and ln lLs llLlgaLlon wlLh our groups LhaL Lhe program's moneLary daLa are malnLalned ln dlfferenL daLabases Lhan Lhe servlces-rendered daLa maklng lL lmposslble Lo accounL for Lhe program's cosLs. 1hls concluslon was echoed by an lnLernal audlL ln 2012.
1he rogram AssessmenL and AccounLablllLy (AA) unlL of APlS conducLed a revlew of Lhe Wlldllfe Servlces program, noLlng ln Lhelr reporL LhaL Lhe auLonomy of sLaLe-level
1 Campbell eL al. 2011: Clven LhaL Lhe cosLs of Lhese programs are borne ln parL by Amerlcan Laxpayers, lL ls lmperaLlve LhaL Congress undersLand how federal Lax dollars are belng spenL."
2 offlces meanL LhaL each used separaLe accounLlng, bllllng, and cosL recuperaLlon pracLlces. 1hls lack of coheslon and overslghL made flnanclal daLa Lracklng unavallable on a naLlonal level (uSuA APlS 2012).
AddlLlonally, whlle Lop Wlldllfe Servlces offlclals belleved LhaL sLaLes held $24 mllllon ln program supporL accounLs, AA revlewers could only flnd $12 mllllon (uSuA APlS 2012). Wlldllfe Servlces' sLaLe offlces lnapproprlaLely co-mlngled federal approprlaLlons wlLh oLher funds ln Lhese accounLs LhaL may have lacked leglLlmaLe purpose (uSuA APlS 2012). AA found accounLlng pracLlces LhaL vlolaLed federal laws because Wlldllfe Servlces' accounLlng was un-reconcllable and appeared Lo proflL from lLs cusLomers (uSuA APlS 2012). 1he AA revlew furLher found LhaL ln some clrcumsLances, Wlldllfe Servlces recouped only 20 percenL of cosLs, ln oLhers, more Lhan 100 percenL and some sLaLe offlces collecLed more funds Lhan Lhey spenL on servlces.
CuLslde enLlLles have also complalned abouL Wlldllfe Servlces flscal accounLablllLy fallures. no cosL-beneflL analysls has ever been conducLed LhaL shows LhaL Lhe Wlldllfe Servlces program ls beneflclal Lo anyone, lncludlng lLs own agrlbuslness consLlLuenLs. ln facL, u.S. CovernmenLal AccounLablllLy Cfflce reporLs have conflrmed LhaL Lhe opposlLe ls Lrue. 8ergsLrom eL al. (2013, p. 3) wrlLe:
Moreover, WS operaLlons have never been Lhe sub[ecL of an lndependenL cosL-beneflL analysls, and Lhelr lnLernal economlc analyses do noL adhere Lo guldellnes used by mosL federal agencles, nor do Lhey conslder losL ecologlcal or economlc values of Lhe predaLors Lhemselves (Loomls 2012).
now LhaL uSuA-APlS ls lLself aware of Lhese serlous publlc accounLablllLy problems, we recommend LhaL Lhe program modlfy lLs accounLlng pracLlces, lncludlng keeplng Lrack of Lhe amounL of money spenL on each leLhal and nonleLhal meLhod and regularly provlde Lhls lnformaLlon Lo Lhe publlc.
ln Lerms of Lransparency, lL ls essenLlal LhaL Wlldllfe Servlces fully comply wlLh Lhe naLlonal LnvlronmenLal ollcy AcL (nLA), whlch requlres federal agencles Lo examlne Lhe declslons Lhey propose on ma[or federal acLlons, so LhaL lL can make publlcly- LransparenL and envlronmenLally-lnformed declslons. lmplemenLlng regulaLlons speclfy how agencles musL comply wlLh nLA, lncludlng Lhe requlremenL for agencles Lo examlne new and conLlnulng acLlons (20 C.l.8. 1308.18(a)). Wlldllfe Servlces' lasL llnal rogrammaLlc LnvlronmenLal lmpacL SLaLemenL (LlS) was lssued ln Aprll 1994, buL was based on acLlvlLles LhaL occurred ln Lhe 1988 flscal year. 1he sclenLlflc sLudles lL relled on were compleLed ln Lhe 1970s and 1980s. 1he LlS was revlsed wlLh only modesL changes ln CcLober 1997.
1he LlS would be ouLdaLed by any measure of Lhe llfeLlme of such documenLaLlon, buL Lhls ls especlally Lhe case here glven ma[or changes ln Lhe orlenLaLlon and focus of Wlldllfe Servlces' acLlvlLles. 1he Lypes of anlmals kllled have changed (Lhe number of
3 specles has more Lhan Lrlpled), new and dlfferenL specles are belng kllled so LhaL lmpacLs for many specles now belng kllled were noL analyzed, and Lhe relaLlve numbers of anlmals of dlfferenL Lypes has changed.
1he naLure of Lhe Wlldllfe Servlces' program has also changed slgnlflcanLly slnce Lhe 1994 LlS. AL Lhe Llme of Lhe LlS, Wlldllfe Servlces devoLed 83 percenL of lLs resources Lo agrlculLural damage, where mosL recenLly lL devoLed [usL 37 percenL. 1he slze of Lhe program has lncreased slgnlflcanLly as well, wlLh overall expendlLures more Lhan 300 percenL greaLer now compared Lo Lhe program analyzed ln Lhe LlS.
1hese falllngs cannoL be compensaLed for by envlronmenLal assessmenLs (LAs) LhaL Wlldllfe Servlces lssues for parLs of lLs program ln lndlvldual sLaLes. 1hese assessmenLs do noL adequaLely address all of Lhe programs wlLhln Lhose sLaLes. Many of Lhese LAs are a decade or more old.
ln order for Wlldllfe Servlces Lo make lnformed declslons abouL Lhe dlrecLlon and lmpacLs of lLs program, we recommend LhaL Lhe agency prepare a new programmaLlc LlS, lncludlng a cumulaLlve lmpacL analysls.
2. kepresentat|ve democracy has g|ven W||d||fe Serv|ces fund|ng for over one hundred years because Congress trusts the program and f|nds that the program |s we||-managed, env|ronmenta||y respons|b|e, and effect|ve. Lvery U.S. natura| resource and profess|ona| w||d||fe management organ|zat|on |n the country supports W||d||fe Serv|ces.
Congress has funded Lhe Wlldllfe Servlces program for over one hundred years, buL LhaL does noL equaLe Lo Congress endorslng all Lhe acLlons Laken by Lhls program. ln facL, Congressmen eLer uelazlo (u-C8) and !ohn Campbell (8-CA) have called for more Lransparency for years. 2 1hey have also asked for lnformaLlon concernlng Lhe lnvesLlgaLlon of Lrapper !amle Clson who may have encouraged hls dogs Lo klll Lrapped coyoLes, 3 and called for Lhe uSuA lnspecLor general Lo lnvesLlgaLe Lhe program. 4 ?eL, Wlldllfe Servlces has noL been responslve Lo Lhese Congressmen nor done anyLhlng Lo make Lhls governmenLal program more LransparenL.
Congresslonal panels have aLLempLed sweeplng reform Lo Wlldllfe Servlce ln pasL decades as well. ln 1964, SecreLary of Lhe lnLerlor SLewarL udall's Advlsory 8oard on Wlldllfe and Came ManagemenL lssued Lhe !"#$#%& ("$#)* Lo Congress (named for lLs
4 chalrman, ur. A. SLarker Leopold, Lhe son of Lhe famous ecologlsL, Aldo Leopold). 1he !"#$#%& ("$#)* documenLed LhaL Lhe federal wlldllfe-kllllng agency, Lhen known as A8C" or Lhe redaLory Anlmal and 8odenL ConLrol (Leopold eL al. 1964). 1he reporL noLed LhaL Amerlcan values Lowards wlldllfe had changed from Lhe fronLler era" when anlmal llfe ls cheap and held ln low esLeem" Lo a culLure" LhaL became more sophlsLlcaLed" and wlld anlmals" held slgnlflcance" Lo mllllons of recreaLlonlsLs Lo whom anlmal llfe ls Lhe llvlng manlfesLaLlon" of wllderness" (Leopold eL al. 1964, p. 493). AlLhough Lhe !"#$#%& ("$#)* offered myrlad reform recommendaLlons Lo Congress, none were underLaken.
ln 1971, SecreLary of lnLerlor C. 8. MorLon convened anoLher lnvesLlgaLlve commlLLee, Lhls Llme, chalred by ur. SLanley A. Caln. 1he 207-page +,-. ("$#)* lamenLed LhaL Lhe predaLor-conLrol program conLalns a hlgh degree of bullL-ln reslsLance Lo change . . . [and LhaL] guldellnes and good lnLenLlons wlll no longer sufflce" and LhaL moneLary conslderaLlons LhaL favored Lhe llvesLock lndusLry served Lo harm naLlve wlldllfe populaLlons (Caln eL al. 1971, p. 2). 1he +,-. ("$#)* called for subsLanLlve changes Lo wlldllfe managemenL reglmes by changlng personnel and conLrol meLhods, asserLlng proLecLlons for naLlve wlldllfe and Lhe broader publlc (Caln eL al. 1971, 8oblnson 2003). 1he reporL noLed LhaL polsons resulLed ln Lhe overklll of abundanL wlldllfe, buL LhaL kllllng falled Lo selecL anlmals LhaL preyed on llvesLock, and LhaL sLudles by blologlsLs falled Lo subsLanLlaLe Lhe degree of llvesLock losses Lo predaLlon clalmed by sLockman" (Caln eL al. 1971, p 2).
1oday, conservaLlon blologlsLs sLlll belleve LhaL Lhe program has myrlad problems. 8ergsLrom eL al. (2013, p. 4) wrlLe:
1he Amerlcan SocleLy of MammaloglsLs, repeaLedly from 1924 Lo 2012, crlLlclzed federal wlldllfe conLrol programs as overly rellanL on leLhal measures, drlven by speclal lnLeresLs raLher Lhan sclence, and causlng excesslve morLallLy of nonLargeL specles. Cver many decades, promlnenL conservaLlonlsLs, Lhree sLudy commlLLees appolnLed by uSul, and several CovernmenL AccounLlng Cfflce (CAC) reporLs echoed Lhese concerns . . . 1he 1931 AuC AcL (7 u.S.C. / 426) remalns WS's prlmary enabllng leglslaLlon (8oblnson 2003), lLs provlslon for prlvaLe cooperaLor fundlng of federal wlldllfe conLrol programs creaLes a confllcL of lnLeresL ln seLLlng WS managemenL pollcy (keLcham 2008).
ln sum, Congress and oLher wlldllfe professlonals are noL ln agreemenL LhaL Lhe Wlldllfe Servlces' program ls efflcaclous or well managed. 1hus, we encourage Wlldllfe Servlces Lo reexamlne Lhelr pracLlces ln llghL of Lhese concerns.
5 3. W||d||fe Serv|ces ab|des by the pub||c trust doctr|ne, |t |oves and respects w||d||fe, |t does not endanger any spec|es of nat|ve w||d||fe.
Wlldllfe Servlces has kllled Lhousands of gray wolves (+,.-0 %1$10) and several hlghly- endangered Mexlcan gray wolves (+,.-0 %1$10 2,-%"3-), lncludlng a Mexlcan wolf who was allegedly mlsLakenly kllled for a coyoLe ln !anuary 2013 by Lhe program's veLeran Mexlcan wolf agenL. Wlldllfe Servlces has kllled federally-llsLed specles lncludlng lsland gray fox, San !oaquln klL foxes, Loulslana black bears, grlzzly bears, Canada lynx, wolverlnes, and Lhree of flve specles of pralrle dogs (black-Lalled, Cunnlson's, and whlLe- Lalled) (8ergsLrom eL al. 2013). lL has kllled sLaLe-llsLed specles Loo: swlfL foxes, klL foxes, and rlver oLLers (8ergsLrom eL al. 2013). Wlldllfe Servlces endeavors Lo klll ravens ln lLs conLroverslal bld Lo proLecL sage grouse, even whlle blologlsLs dlsagree wlLh Lhe program LhaL carnlvores are Lhe cause of grouse decllne (e.g., Pagen 2011).
MeLhods Lo prevenL confllcLs and Lo resolve confllcLs wlLhouL kllllng are whaL really demonsLraLe love and respecL." Lxamples lnclude Wlldllfe Servlces' use of hablLaL modlflcaLlon, efflgles, and harassmenL Lo humanely end confllcLs wlLh crows ln urban and suburban nelghborhoods and wlLh vulLures on power sLrucLures. lLs work agalnsL Lhe spread of rables ln wlldllfe and feral dogs provldes anoLher example.
?eL, Wlldllfe Servlces' pracLlces are Loo frequenLly lndlscrlmlnaLe and cruel. lor example, resLralnlng wlld anlmals and peLs ln Lraps and snares resulLs ln sufferlng and paln Lo Lhe anlmal. Some of Lhe polsons LhaL Wlldllfe Servlces uses are slow acLlng and palnful such as Compound 1080 and u8C-1339. 8aLher Lhan relylng on cruelLy and kllllng Lo resolve confllcLs, we suggesL LhaL Wlldllfe Servlces puL subsLanLlal resources lnLo employlng a hosL of well-LesLed, non-leLhal measures such as pennlng llvesLock durlng Lhe Llmes when Lhey are lamblng or calvlng, uslng elecLrlc fenclng around aplarles, and blrd excluslon devlces aL conflned area feedlng operaLlons (CAlCs).
ln shorL, Lhe cruel and lndlscrlmlnaLe meLhods wldely used by Wlldllfe Servlces (l.e., sodlum cyanlde M-44s and aerlal gunnlng) fall Lo demonsLraLe love and respecL" for wlld anlmals. lnsLead we flnd LhaL rare, LhreaLened and endangered wlldllfe are all Loo ofLen kllled by Wlldllfe Servlces.
4. W||d||fe Serv|ces |s the wor|dw|de |eader |n the deve|opment and use of non|etha| management methods, wh|ch contr|buted to more than 80 percent of the program's w||d||fe encounters be|ng d|spersed rather than k|||ed.
We applaud Lhe naLlonal Wlldllfe 8esearch CenLer's (nW8C) developmenL of nonleLhal damage managemenL meLhods and agree LhaL Lhey have conLrlbuLed slgnlflcanLly Lo beLLerlng human and wlldllfe lnLeracLlons. 1he nonleLhal meLhods developed by nW8C, however, are rarely lmplemenLed ln Lhe fleld. Wlldllfe Servlces reporLed no use of nonleLhal flow devlces or culverL proLecLlon meLhods ln Lhe lasL Len years Lo abaLe
6 beaver-caused floodlng buL lL dld klll many beavers. nW8C researched and developed a conLracepLlve drug for blrds, whlch was reglsLered wlLh Lhe LA, buL Wlldllfe Servlces never used Lhls drug ln Lhe fleld buL lL dld klll mllllons of blrds lL could have beneflLed by applylng a conLracepLlon.
Whlle Wlldllfe Servlces dlsperses many blrds, oLher specles are sub[ecLed Lo only leLhal conLrol. lor example, Wlldllfe Servlces kllled more Lhan 99 percenL of Lhe coyoLes lL conLrolled ln Lhe lasL decade. 8ergsLrom eL al. (2013, p. 3) conflrm many of our polnLs:
WS's naLlonal Wlldllfe 8esearch CenLer (nW8C) conducLs lmporLanL research ln nonleLhal conLrol, buL Lhose meLhods nW8C concludes are effecLlve rarely are adopLed by WS fleld operaLlons, parLlcularly on llvesLock grazlng alloLmenLs ln Lhe WesL, whlch are heavlly blased Loward leLhal conLrol (CAC 1993, nlemeyer 2010), WS clalms lL 4,..#* deLermlne whaL proporLlon of lLs WuM expendlLures go Loward nonleLhal meLhods (WS 2012b). WS conducLs llLLle or no populaLlon monlLorlng of leLhally conLrolled mammals nor of Lhelr alLernaLe naLural prey, no sLudles of wheLher WS conLrol ls addlLlve wlLh oLher causes of morLallLy, and no sLudles of how conLrol affecLs populaLlons of nonLargeL specles LhaL are unlnLenLlonally kllled.
We encourage Wlldllfe Servlces Lo develop ways Lo subsLanLlally lncorporaLe Lhe nonleLhal meLhods developed for use ln Lhe fleld.
S. W||d||fe Serv|ces d|sc|oses fu|| and accurate reports of a|| of |ts k|||s, even those an|ma|s that are m|staken|y k|||ed.
Wlldllfe Servlces employees are requlred Lo reporL all wlldllfe damage managemenL acLlvlLles lncludlng meLhods employed and resources proLecLed (uSuA Wlldllfe Servlces 2013). 8uL once collecLed, Lhls lnformaLlon ls noL avallable aL Lhe naLlonal level Lo Wlldllfe Servlces managers, Congress, or Lhe publlc.
lurLher, several former agenLs have clalmed LhaL noL all anlmals kllled are counLed. Some former sLaff members have Lold us LhaL Wlldllfe Servlces scrubs lLs daLabases of any records of LhreaLened or endangered specles LhaL are accldenLally kllled. lormer Wlldllfe Servlces employees sLaLe LhaL Wlldllfe Servlces agenLs rouLlnely fall Lo lnclude all non-LargeL anlmals kllled ln Lhelr reporLs, and especlally non-LargeL LhreaLened and endangered specles. 8eporLedly, Lhls lack of documenLaLlon ls encouraged by supervlsors (nlemeyer 2010, n8uC 2013, redaLor uefense 2014). We encourage Wlldllfe Servlces Lo develop meLhods Lo encourage accuraLe reporLlng of non-LargeL anlmals and prevenL reporLlng abuses.
7 ln concluslon, as Wlldllfe Servlces sLakeholders, we hope you conslder our concerns and recommendaLlons. We would llke Lo dlscuss Lhese lssues furLher and hope Lo meeL wlLh you and Wlldllfe Servlces sLaff.
lease conLacL Laura Schlerhoff aL lschlerhoff[humanesocleLy.org or 202.933.3670 regardlng a meeLlng daLe and Llme.
Slncerely yours,
1racle LeLLerman, ulrecLor, 8egulaLory Affalrs numane Soc|ety of the Un|ted States 2100 L SLreeL nW WashlngLon, uC 20037 202.676.2303 LleLLerman[humanesocleLy.org
Camllla P. lox, LxecuLlve ulrecLor ro[ect Coyote .C. 8ox 3007 Larkspur, CA 94977 413.943.3232 cfox[pro[ecLcoyoLe.org
kesources:
8ergsLrom, 8. !., L. C. Arlas, A. u. uavldson, A. W. lerguson, L. A. 8anda, and S. 8. Sheffleld. 2013. Llcense Lo klll: reformlng federal wlldllfe conLrol Lo resLore blodlverslLy and ecosysLem funcLlon. ConservaLlon LeLLers hLLp://onllnellbrary.wlley.com/dol/10.1111/conl.12043/absLracL. 8ruskoLLer, !. 1., S. A. Lnzler, and A. 1reves. 2011. 8esculng Wolves from ollLlcs: Wlldllfe as a ubllc 1rusL 8esource. Sclence 333:1828-1829. Caln, S. A., Advlsory CommlLLee on redaLor ConLrol, Councll on LnvlronmenLal CuallLy, and u.S. ueparLmenL of Lhe lnLerlor. 1971. redaLor conLrol--1971, reporL Lo Lhe resldenL's Councll on LnvlronmenLal CuallLy by Lhe Advlsory CommlLLee on redaLor ConLrol.
9 Campbell, !., eLers, C., !ones, W., & uelazlo, . 2011. LeLLer from 8eps. Campbell, eLers, !ones, & uelazlo, u.S. Congress, Lo Wllllam Clay, uSuA Wlldllfe Servlces. WashlngLon, uC, Aprll 18. Pagen, C.A. 2011. redaLlon on CreaLer Sage-Crouse: lacLs, rocess, and LffecLs ln S.1. knlck and !.W. Connelly (eds). CreaLer Sage-Crouse: Lcology and ConservaLlon of a Landscape Specles and lL PablLaLs. hLLp://grazlngforgrouse.com/slLes/defaulL/flles/Pagen202011.pdf !acobson, C., !. l. Crgan, u. uecker, C. 8. 8aLcheller, and L. CarpenLer. 2010. A ConservaLlon lnsLlLuLlon for Lhe 21sL CenLury: lmpllcaLlons for SLaLe Wlldllfe Agencles. !ournal of Wlldllfe ManagemenL 74:203-209. !ohnsLon, !. !., M. !. Polmes, A. ParL, u. !. kohler, and 8. S. SLahl. 2003. robablllsLlc model for esLlmaLlng fleld morLallLy of LargeL and non-LargeL blrd populaLlons when slmulLaneously exposed Lo avlclde balL. esL ManagemenL Sclence 61:649- 639. Leopold, A. S., S. A. Caln, l. n. Cabrlelson, C. M. CoLLam, and 1. L. klmball. 1964. Leopold 8eporL: redaLor and 8odenL ConLrol ln Lhe unlLed SLaLes: 8eporL submlLLed Lo ueparLmenL of lnLerlor. naLural 8esource uefense Councll (n8uC). 2013. roducer, Wlld 1hlngs [MoLlon lcLure]. nelson, M. ., !. A. vuceLlch, . C. aqueL, and !. 8ump. 2011. An lnadequaLe ConsLrucL? norLh Amerlcan Model: WhaL's Mlsslng, WhaL's needed. 1he Wlldllfe rofesslonal:38-60. nlemeyer, C. 2010. Wolfer: A memolr. 8olse, ldaho: 8oLLlefly ress. arham, C. 2011. LeLLers from Cregory arham, uSuA APlS, Lo 8eps. Campbell, eLers, !ones, & uelazlo, u.S. Congress. WashlngLon, uC, May 11. redaLor uefense. 2014. roducer, Lxposed! uSuA's SecreL War on Wlldllfe. [MoLlon lcLure]. 8oblnson, M. !. 2003. redaLory 8ureaucracy: 1he LxLermlnaLlon of Wolves and 1ransformaLlon of Lhe WesL. unlverslLy ress of Colorado, 8oulder. uSuA APlS. 2012. Wlldllfe Servlces 8esource ManagemenL 8evlew. AA-12-01. !une. uSuA Wlldllfe Servlces. 2013. CooperaLlve CosL Share rograms. ulrecLlve 3.102. AugusL 30.