Domestic sheep present problems similar to cattle with regard to competition; however, their presence represents an even greater threat due to an increased risk oftransmitting fatal diseases to bighorn (refer to section I.B.7 and I.D). Domestic goats also are potentially serious competitors because oftheir ability to maneuver in rough country and their propensity to overgraze forage. Jones et at. (1957) found approximately 30 goats in Martinez Canyon in the Santa Rosa Mountains in 1957 and observed that they had heavily used part ofthis canyon. R. Weaver (California Department ofFish and Game retired, pers. comm.) also observed goats in this area and at the southern edge ofthe U.S. Peninsular Ranges (south of Highway 8) in the late 1960’s. Goats persisted in Martinez and Sumac Canyons (Santa Rosa Mountains) until the early 1980’s (Bighorn Institute 1983, 1984a, 1984b, 1985a, 1985b; V. Bleich, pers. comm.; D. Jessup in tilt. 1999). There are 26 currently no known domestic sheep or goats in the range ofthe Peninsular bighorn sheep, though transient ram movements, such as along the Sunrise Highway (51 in San Diego County) could encounter sheep or goats in peripheral areas; reintroduction ofthese species would create a serious risk to Peninsular bighom sheep.
Many researchers have documented high levels ofcompetition, both for water and forage, between burros (Equus asinus) and bighorn sheep (e.g., Weaver 1959, 1972, 1973; Mensch 1970; Seegmiller and Ohrnart 1981; Andrew et at. 1997; Jones 1980). Jones et al. (1957) reported the presence of burros in Martinez Canyon and speculated that their use of water sources could interfere with bighorn sheep use. Burros also inhabited Rockhouse Canyon (north) from approximately the 1930’s to the early 1970’s (M. Jorgensen, pers. comm.). No burros are currently known to inhabit the Peninsular Ranges, but they could pose a risk for bighorn sheep if introduced. Feral horses (Equus cabattus) currently inhabit Coyote Canyon in Anza-Borrego Desert State Park (Auza-Borrego Desert State Park, unpublished data) and Palm Canyon (San Jacinto Mountains). Competition between feral horses and bighorn sheep has not been extensively studied, but increasing horse populations were reported to coincide with decreasing bighorn sheep populations in the Silver Peak Range in Nevada (McQuivey 1978).
Similarly, during the 3-day waterhole counts at Anza-Borrego Desert State Park in 1999 and 2000, the continuous presence of 16 and 21 wild horses, respectively, around a traditionally used waterhole coincided with an absence of bighorn coming to water over both census periods (M. Jorgensen, pers. comm.).
M. Jorgensen has observed that during periods of poorrange forage conditions, horses congregate around water sources more than usual, causing damage similar to that ofburros by consuming the best available forage and fouling surface waters.
Competition with domestic livestock, especially domestic sheep (Brigandi 1995), has affected bighorn sheep in the past (refer to Appendix A). Cattle were present in the Peninsular Ranges as early as 1775 (Bolton 1930) and were grazed in large numbers throughout the range (Turner 1976, Reed 1986, Cunningham and Ohmart 1986). Currently, competition with livestock is low in the Peninsular Ranges 27 because ofpast and current efforts to limit livestock numbers. However, competition may still occur in localized situations. For example, bighorn use of Hellhole Canyon has increased measurably since the removal of over two dozen cattle from the canyon and 117 cattle throughout the park in 1987 (M. Jorgensen, pers. comm.). In Canebrake Canyon, current Bureau of Land Management grazing permits allowing cattle to use water sources located below bighorn sheep lambing areas may be affecting the Carrizo Canyon ewe group. This ewe group also may be affected by cattle that stray out of a grazing allotment in McCain Valley. In addition, the potential risk ofdisease transmission exists as long as livestock occur in bighorn sheep habitat.
7. DISEASE AND PARASITISM
It has been hypothesized that disease has played an important role in population dynamics of bighorn sheep in the Peninsular Ranges (DeForge et at. 1982, DeForge and Scott 1982, Turner and Payson 1982, Wehausen et at. 1987).
Numerous pathogens have been isolated or detected by serologic assay from bighorn sheep in these ranges. These pathogens include bluetongue virus, contagious ecthyma virus, parainfluenza-3 virus, bovine respiratory syncytial virus, Anaptasma, Chtamvdia, Leptospira, Pasz’euretta, Psoroptes, and Dermacentor (DeForge et at., 1982; Clark et at. 1985, 1993; Mazet et at. 1992; Elliott et at. 1994; Boyce 1995; Crosbie et at., 1997, DeForge et at. 1997).
DeForge et at. (1982) found multiple pathogens (contagious ecthyma virus, blue tongue, Pasteuretta, and parainfluenza virus) and low lamb recruitment in association with overall population declines. Between 1982 and 1998, 39 lambs showing signs ofillness (lethargy, droopy ears, nasal discharge, and lung consolidation) were collected from the Santa Rosa (northern and southern), Jacumba, and In-Ko-Pah Mountains for disease research and rehabilitation at the Bighorn Institute (Ostermann et at. in press). Additionally, DeForge et at. (1995) documented a population decline throughout the Santa Rosa Mountains during 1983 to 1994, resulting from inadequate recruitment. Although a cause and effect relationship between disease and population decline has not been clearly established in the Peninsular Ranges, results from several studies provide support 28 for this hypothesis (DeForge et at. 1982, Clark et at. 1985, Wehausen et at. 1987, Clark et at. 1993, Elliot et at. 1994, DeForge et at. 1995). The presence offeral goats in portions ofthe Santa Rosa Mountains until the late 1970’s to early 1980’s may have contributed to exposure ofwild bighorn to disease during this period of population decline (D. Jessup, in th~t. 1999).
Analysis ofspatial variation in pathogen exposure among bighorn sheep sampled between 1978 to 1990 showed that Peninsular bighorn sheep populations and other populations in southern California have higher levels ofpathogen exposure than other populations ofbighorn sheep in the State (Elliott et al. 1994).
However, serological tests have revealed the presence of antibodies to several infectious disease agents in both healthy and clinically-ill animals (Clark et at. 1993, Elliott et at. 1994; Boyce 1995, DeForge et at. 1997), and essentially all of the viruses, bacteria, and parasites that have been reported from Peninsular bighorn sheep appear to be widespread among desert bighorn sheep in the western U. S. (Jessup et at. 1990). All evidence indicates that the influence of disease in the Peninsular Ranges has subsided in more recent years. For example, recent sampling and examination ofbighorn sheep throughout the range indicate that most animals were clinically normal (Boyce 1995; DeForge et at. 1997; Bighorn Institute 1997, 1998, 1999). Several caveats should be kept in mind when interpreting serologic test results ofwild animals (Gardner et at. 1996). An animal testing positive for a specific pathogen: 1) may or may not be showing clinical signs ofthe infection and may never have been adversely affected by the infection, 2) may no longer harbor the pathogen, 3) may or may not be resistant to subsequent re-infection, or 4) may have been exposed to a related pathogen that induced the formation of cross-reactive antibodies. On the other hand, an animal testing negative: 1) may never have been exposed to the pathogen, 2) may be recently infected by the pathogen under scrutiny but not yet producing antibodies, or 3) may have been exposed to the pathogen and developed an antibody titer that has subsequently abated. Detection ofpathogens does not, in itself, imply a causal relationship between disease and population declines. Additional research is necessary to better understand this relationship. Furthermore, it appears that risk ofdisease and parasites might differ among ewe groups based on their exposure 29 and their habitat use patterns, so future research should address these questions at the level ofthe ewe group and the level ofthe population.
The reduced influence ofdisease on Peninsular bighorn sheep (as they simultaneously continue to decline) suggests that other factors, such as predation, habitat loss/modification, and human related disturbance currently limit the population. Nonetheless, disease and/or parasites may still threaten bighorn sheep in the northern Santa Rosa Mountains. Bighorn sheep in this group have exhibited low lamb recruitment (refer to section I.B.3), and clinical signs of illness have been observed among adults and lambs (DeForge and Scott 1982; Bighorn Institute 1997; DeForge and Ostermann 1998a; E. Rubin, pers. comm.).
In addition, during 1991 to 1998, internal parasites (trichostrongyles) were detected in this ewe group (DeForge and Ostermann 1998b; E. Rubin and W.
Boyce, pers. comm.), while similar sampling failed to detect these parasites in bighorn sheep from the remainder ofthe range (DeForge ei’ at. 1997; Bighorn Institute 1998; E. Rubin and W. Boyce, pers. comm.). Habitat modification and altered habitat use patterns may increase the risk ofdisease and parasites in this group by increasing parasite survival or transmission rates in irrigated landscapes (Bighorn Institute 1997, DeForge and Ostermann 1998b). It has been suggested, for instance, that the density ofRocky Mountain bighorn sheep is important in the transmission oflungworms (Protostrongytus) in mesic areas where the snail intermediate hosts are sufficiently common (Uhazy and Holmes 1973). The different ewe groups in the Peninsular Ranges apparently have different pathogen exposure profiles and risks.
C. ABUNDANCE AND DISTRIBUTION
1. HISTORIC ABUNDANCE AND DISTRIBUTION
Bighorn sheep have been documented in the Peninsular Ranges since early explorers such as Auza observed them in the 1700’s (Bolton 1930); however, rangewide population estimates were not made until the I 970’s. Published estimates were as high as 971 in 1972 (Weaver 1972), and 1,171 in 1974 (Weaver 1975), while more recent estimates were 570 in 1988 (Weaver 1989), 400 in 1992 (U.S. Fish and Wildlife Service 1992), and between 327 to 524 in 1993 (Torres et at. 1994). Accuracy ofthe estimates in the early 1970’s (pre-helicopter surveys), 30 especially in the San Jacinto Mountains, has been questioned by several authorities (Wehausen 1999; V. Bleich, pers. comm.) (see section I.C.3 below for more details).
An examination of past records and current data suggests that the distribution of bighorn sheep has been altered during the past 25 years. No new ewe groups have been documented to form, but ewe groups along the Mexican border and in the northern San Jacinto Mountains (north ofChino Canyon) have disappeared since the 1980’s. Loss ofthe border population was poorly documented but the construction ofInterstate 8 in the mid-1960’s, railroad activity, livestock grazing, poaching, and fire suppression appear to be likely contributing causes (Rubin et at. 1998). DeForge et at. (1997) suggested that disturbance and habitat fragmentation were the principal causes ofchanges in distribution in the northern San Jacinto Mountains. In the northern Santa Rosa Mountains, the number and distribution ofewes is substantially reduced from the 1980’s, with formerly important use areas, such as Carrizo and Dead Indian Canyons, currently supporting few animals (J. D. Goodman, University ofRedlands, unpublished data 1963; DeForge and Scott 1982; DeForge et at. 1995; Bighorn Institute 1998, 1999). The Fish Creek Mountains and areas to the west ofthe Vallecito Mountains (the Sawtooth Range, Oriflamme Mountains, and the lower elevations ofthe Laguna Mountains) are believed to have supported “transient” use by sheep in the past (Weaver et at. 1968, Weaver 1972).
The distribution of ewes has become more fragmented in the recent past, although evidence is not available to suggest that ram use has been curtailed. At the southern distributional limits ofthe U.S. population, the construction ofInterstate 8 preceded the later disappearance ofbighorn sheep along the Mexican border, though rams still continue to be found occasionally (Jessup, in titt. 2000). At the extreme northern end oftheir range, ewe group occupation ceased in the northern San Jacinto Mountains about 20 years after construction ofthe Palm Springs Aerial Tramway in Chino Canyon, though rams still cross Chino Canyon and make use ofmuch ofthe area formerly occupied by the ewe group. Rubin et at. (1998) suggested that in portions ofthe range, roads or increased traffic have contributed to fragmentation by restricting ewe movement, as evidenced by the distributional limits of four ewe groups currently coinciding with roadways. In the 1970’s, ewes were observed to cross Highway 74 in the Santa Rosa Mountains 31 (V. Bleich, pers. comm.; D. Jessup, in titt. 1999) and sheep were struck by cars “where ancestral bighorn trails are bisected by the highway” (Turner 1976).
Though a radio-collared ewe crossed Highway 74 in 1982 (DeForge and Scott 1982), no radio-collared ewes were observed to cross this road from 1993 to the present. California Department ofTransportation records indicate that traffic on this road has approximately tripled since 1970. Since 1991, at least five rams have been struck by cars while crossing Highway 74; two were killed (Bighorn Institute 1991, 1999). In addition, a significant reduction in bighorn use in portions ofthe Santa Rosa Mountains has been observed since the construction of the Dunn Road (DeForge in litt. 1997).
2. RECENT ABUNDANCE AND DISTRIBUTION
Recent abundance estimates ofPeninsular bighorn sheep north ofthe U.S.-Mexico border were 347, 276, and 334 animals (excluding lambs) in 1994, 1996, and 1998, respectively (Table 5). Currently, at least eight subpopulations (ewe groups) exist in the range (Rubin et at. 1998) (Figure 3, Table 6). It is possible that the Santa Rosa Mountains southeast ofHighway 74 and the Vallecito Mountains are each inhabited by more than one ewe group, but additional data are required to confirm this. During 1994 to 1998, the largest ewe groups in the Peninsular Ranges typically consisted ofless than 30 ewes, while some groups had less than 15 ewes (DeForge et at. 1997; Rubin et at. 1998, 1999; Ostermann et at. in press) (Table 6). The San Jacinto ewe group currently consists ofsix known ewes (Bighorn Institute 1999). Although permanent emigration of ewes between groups has not been observed, a limited number oftemporary moves between some groups were documented in recent years (Bighorn Institute 1998, 1999; Rubin et at. 1998), and genetic evidence indicates ewe movement in the past (Boyce et at. 1997). Ram movements between ewe groups are more frequent (DeForge et at. 1997, Rubin et at. 1998, refer to section I.B.2). These observational data are supported by genetic analyses (Boyce et at. 1997, Boyce et at. 1999, refer to section I.A.3). The existence of distinct ewe groups that are connected by limited movement of bighorn sheep suggests that Peninsular bighorn sheep comprise a metapopulation (Levins 1970, Torres et at. 1994, Bleich et at. 1996, Boyce et at. 1997). Bighorn sheep exhibit a patchy distribution as a result of natural breaks in mountainous habitat (Schwartz et at. 1986; Bleich et at. 1 990a, 1996), and genetic analyses support the hypothesis that discrete ewe 32 Figure 3. Distribution of bighorn ewes in the Peninsular Ranges, California, 1992-1995. Stippled and shaded areas indicate regions used by home-range groups of ewes identified in this study. 1-Carrizo Canyon, 2a-south Vallecito Mountains, 2b-north Vallecito Mountains, 3-south San Ysidro Mountains, 4-north San Ysidro Mountains, 5-Coyote Canyon, 6a-Santa Rosa Mountains east of Highway 74 (south), 6b-Santa Rosa Mountains east of Highway 74 (Martinez Canyon), 6c-Santa Rosa Mountains east of Highway 74 (Deep Canyon), 7-Santa Rosa Mountains west of Highway 74, 8-San Jacinto.
Mountains (U indicates general location of this group, DeForge et aI. 1997). Wide hatch marks indicate possible connectivity between ewe groups in the Vallecito Mountains and in the Santa Rosa Mountains. (Reprinted with permission from Rubin et al. 1998). 33 0 10 20 Kilometers Jacumua
Mtns
United StateS~Mexico border
groups existed in the past (Boyce et at. 1999). However, it appears that some separations between groups are of anthropogenic origin and movement of ewes has been reduced by human activity (DeForge et at. 1997, Rubin ei at. 1998, refer to section L.C.2).
Two captive populations ofPeninsular bighorn sheep currently exist. The Living Desert Museum, an educational and zoo facility in Palm Desert, California, maintains a small group (seven adult females and two adult males) at its facility.
These animals are used primarily for educational purposes (Terrie Correll, The Living Desert, pers. comm.). The Bighorn Institute, also in Palm Desert, maintains a small captive herd of approximately 30 animals. This private, nonprofit organization, established in 1982 under the authorization ofthe California Department of Fish and Game with a Memorandum ofUnderstanding, Table 5. Abundance estimates (and 95 percent confidence intervals) of bighorn sheep in the Peninsular Ranges north ofthe U.S.-Mexico border during 1994, 1996, and 1998. Estimates exclude lambs (DeForge et al. 1995; Bighorn Institute 1996, 1998).
Region 1994 1996 1998 Source(s)
Anza-Borrego
Desert State Park
(including all
habitat outside of
Santa Rosa and San
Jacinto Mountains)
214.0
(149.8 to
278.6)
163.0
(131.8 to 194.2)
180.7
(149.5 to
211.9)
Rubin et at.
1998, 1999
Santa Rosa
Mountains
115.5
(91.5 to 139.5)
93.8 (71.8 to 115.8)
129.0
(91.1 to 166.9)
DeForge et at.
1995, Bighorn
Institute 1996,
1998
San Jacinto
Mountainsa
17 (NA) 19 (NA) 24 (NA) DeForge et at.
1997, Bighorn
Institute 1998
Total 347
(253 to 458)
276
(210 to 439)
334
(262 to 434)
aMinimum number known to be alive, based on absolute counts (intensive field studies of radiocollared animals in combination with annual helicopter surveys). Confidence intervals unavailable.
34 conducts research and maintains a breeding herd at its facility (refer to section J.E.3). Since 1985, 77 animals from this herd have been released into the wild.
Ewe groups in the San Jacinto and northern Santa Rosa Mountains have been augmented with captive-reared sheep (n equals 3 in 1997 and 74 during 1985- 1998, respectively) (Ostermann et at. in press).
3. POPULATION TRENDS
Although based on different techniques, a comparison of early (pre-1977) and current population estimates suggests a great decline in Peninsular bighorn sheep numbers. Early estimates were based on waterhole counts or foot surveys, whereas helicoptersurveys were used to generate population estimates starting in Table 6. Ewe abundance estimates (and 95 percent confidence intervals) per ewe group generated from helicopter surveys during 1994, 1996, and 1998 (Rubin etal. 1998, 1999; DeForge et al. 1997; DeForge et al. 1995; Bighorn Institute 1996, 1998).
Current ewe group
delineation
Year
1994
Year
1996
Year
1998
I. Carrizo Canyon 39.0
(20.9-57.2)
23.5 (17.7-29.3)
19.0 (19.0-19.0)
2. Vallecito Mountains 17.7
(6.7-28.6)
19.0 (19.0-19.0)
30.2 (24.3-36.1)
3. South SanYsidro
Mountains
15.3 (9.9-20.6)
12.3 (6.9-17.8)
23.0 (8.3-37.7)
4. North San Ysidro
Mountains
32.0 (9.5-54.5)
22.1 (16.2-28.1)
15.3 (6.2-24.5)
5. Coyote Canyon 21.8
(15.4-28.2)
23.0 (5.5-40.5)
22.8 (17.5-28.0)
6. Santa Rosa
Mountains
east of Hwy. 74
66.2 (42.4-90.0)
83.0 (27.3-138.7)
48.3 (31.6-65.0)
7. SantaRosaMts.
west ofHwy. 74
15.9 (13.5-18.3)
14 (14.0-14.0)
11.6 (9.7-13.5)
8. San Jacinto
Mountainsa
(
(na)
(
(na)
(
(na)
~Minimumnumber known to be alive, based on absolute population counts (intensive field studies ofradiocollared animals in combination with annual helicopter surveys). Confidence intervals are unavailable.
35 1977. Annual helicopter surveys conducted in the Santa Rosa Mountains since 1977 indicate a regional population decline (DeForge et at. 1995, Wehausen et at. 1987), with a 69 percent decline observed between 1984 and 1994 (DeForge et at. 1995). Rubin et at. (1998) examined trends in abundance outside ofthe Santa Rosa Mountains with the use of a 26-year dataset of annual waterhole count observations in Auza-Borrego Desert State Park. These data indicated that declines had occurred in some, but not all, ewe groups. This result suggests that abundance trends are independent among ewe groups, and is in agreement with field data that show independent differences in lamb recruitment and adult survival among ewe groups (Rubin et at. 2000., Hayes et at. 2000, refer to sections I.B.3 and I.B.4). Climatic patterns are highly correlated across the Peninsular Ranges, suggesting that other local factors specific to ewe groups play important roles in determining long-term abundance trends (Rubin et at. 1998).
Independent population trends also were observed among ewe groups in the Mojave Desert (Wehausen 1992).
DeForge et at. (1997) found that bighorn sheep in the San Jacinto Mountains declined between 1984 and 1987. Since that time the subpopulation inhabiting these mountains has been stable but precariously small (Table 7). In the Santa Rosa Mountains, mark-recapture estimates generated from helicopter survey data indicated that bighorn sheep numbers appeared to remain stable at low numbers from 1990 to 1995, following a large population decline (DeForge et at. 1995). In the northern part ofthese mountains, the current number of animals is approximately 50 percent ofthe number present during the 1980’s (Table 8).
Helicopter surveys south ofthe Santa Rosa Mountains, encompassing all Peninsular bighorn sheep habitat outside ofthe Santa Rosa and San Jacinto Mountains, indicated a 28 percent decline in ewe numbers in a recent 2-year period (from an estimate of 141 females in 1994 to 102 females in 1996; Rubin et at. 1998), and a statistically non-significant increase (from approximately 102 to 112 females) from 1996 to 1998 (Rubin et at. 1999).
Though cause and effect relationships for these population declines among ewe groups have not been documented, likely contributing factors are: high predation rates; disease; and cumulative effects of habitat loss, modification, fragmentation and human-related disturbance.
36 a
Table 7. Ewe population estimates for the San Jacinto Mountains from 1993 to 1999 (DeForge et al. 1997; Bighorn Institute 1997, 1998, 1999).
Year Number of ewes
(yearlings and adults)
1993 10
1994 7
1995 8
1996 7
1997 9
1998 8
1999 6
a
Table 8. Fall population estimates of adult (1 year or older) bighorn sheep in the northern Santa Rosa Mountains from 1985 to 1998 (Ostermann etal. in press).
Fall population Number of captiveestimate of reared bighorn in yearling and adult the population
Year bighorn (ewes)
1985 40(22) 1
1986 46(25) 5
1987 52(30) 16
1988 52(33) 19
1989 50(32) 20
1990 41(24) 26
1991 30(21) 17
1992 35 (24) 20
1993 27(17) 16
1994 23(11) 16
1995 24(10) 16
1996 21(10) 16
1997 22(11) 16
1998 22(10) 15
a minimum number known to be alive, based on absolute population count. 37 D. REASONS FOR LISTING
The following discussion is organized according to the listing criteria under section 4(a)(1) ofthe Endangered Species Act.
I. THE PRESENT OR THREATENED DESTRUCTION, MODIIFICATION,
OR CURTAILMENT OF THEIR HABITAT OR RANGE
Habitat loss is a leading cause ofcurrentspecies extinctions and endangerment (Burgman et at. 1993). It represents a particularly serious threat to Peninsular bighorn sheep because they live in a narrow band oflower elevation habitat that represents some ofthe most desirable real estate in the California desert and is being developed at a rapid pace. At least 7,490 hectares (18,500 acres or about 30 square miles) ofsuitable habitat has been lost to urbanization and agriculture within the range ofthe three ewe groups that occur along the urban interface between Palm Springs and La Quinta (see the maps referenced in Appendix B).
Within the narrow band ofhabitat, bighorn sheep need to be able to move daily, seasonally, and annually to make use ofsparse and sometimes sporadically available resources found within their home ranges. As humans encroach into this habitat, these resources are eliminated or reduced in value, and the survival of ewe groups is threatened. Bighorn sheep are also sensitive to habitat loss or modification because they are poor dispersers (Geist 1967, 1971), largely learning their ranging patterns from older animals rather than on their own (refer to section I.B.2). When habitat is lost or modified, the affected group is likely to remain within their familiarsurroundings but with reduced likelihood of population persistence, due to reduced quantity and/or quality ofresources. Habitat fragmentation is amajor threat to bighorn sheep (Schwartz et at. 1986, Bleich et at. 1996) and Peninsular bighorn sheep are particularly vulnerable because ofthe narrow elevational band ofsuitable habitat, behavior (use oflow elevation habitat and ewe home range fidelity), and population structure. Fragmentation poses a particularly severe threat to species with a metapopulation structure because overall survival depends on interaction among subpopulations. Encroaching urban development and anthropogenic disturbances have the dual effect of restricting animals to a smaller area and severing connections between ewe groups. Movements by rams through downtown Palm Springs (Tevis 1959, Desert Sun, 9/12/1995, DeForge et at. 1997) may provide insight into past bighorn 38 movement patterns. Former long-distance movements across the valley floor to the north and east ofthe Coachella Valley, though never documented, likely occurred as they currently still do between other mountain ranges in the desert southwest (Bleich et at. 1996; J. Wehausen, pers. comm.). The potential for such movements now has been eliminated by high density urban development, major freeways, fences, agriculture, and canals. The movement oframs and occasional ewes between ewe groups maintains genetic diversity and augments populations ofindividual ewe groups (Soul~ 1980, Krausman and Leopold 1986, Schwartz et at. 1986, Burgman et at. 1993, refer to section II.A.2). The occasional movement of ewes can result in a “rescue effect” (Brown and Kodric-Brown 1977) by increasing the number ofewes in a declining ewe group. Temporary moves by females between neighboring ewe groups could also provide new habitat knowledge that facilitates future range expansion (Geist 1971). Increased fragmentation reduces such possibilities.
Beyond physical barriers to movement, fragmentation also can result from less obvious forms ofhabitat modification. As described above in section I.C.2, increased traffic on roads apparently make bighorn sheep, especially ewes, hesitant to cross these roads (Rubin et at. 1998). Animals that do cross suffer an additional risk ofmortality (Turner 1976, McQuivey 1978, Cunningham and deVos 1992, DeForge and Ostermann 1 998b, Bighorn Institute 1999), with the result that a group whose range is bisected by the road can have reduced viability in the long term (Cunningham and deVos 1992). Human disturbance along roads and trails can cause sheep to avoid those areas (Papouchis et at. 1999), potentially affecting bighorn sheep movement and habitat use (refer to section I.B.2), thereby “fragmenting” bighorn sheep distribution although the habitat appears to be intact.
Development and human populations along the eastern slope ofthe Peninsular Ranges continue to grow at a rapid pace at the lower and upper elevational boundaries of Peninsular bighorn sheep habitat. The Coachella Valley Association ofGovernments anticipates that by the year 2010, the human population there will increase from 227,000 to over 497,000, not including 165,000 to 200,000 seasonal residents. Bighorn population declines typically have been most pronounced in ewe groups adjoining the urban interface in Coachella Valley. The decline in local bighorn populations in the San Jacinto and northern Santa Rosa Mountains parallels the demise ofsheep populations near 39 Albuquerque and Tucson (Krausman et at. in prep.), other majormetropolitan areas that have encroached into sheep habitat in the desert southwest. Other cumulative factors caused by human activities within bighorn sheep habitat are discussed in detail below (refer to section I.D.5).
2. OVERUTILIZATION FOR COMMERCIAL, RECREATIONAL,
SCIENTIFIC, OR EDUCATIONAL PURPOSES
There is no regulated hunting season for Peninsular bighorn sheep in the United States, and poaching is rarely documented. Precautionsshould continue to be taken, however, to prevent poaching. The Bighorn Institute and Living Desert Museum each maintain a captive population of Peninsular bighorn sheep for scientific and educational purposes. This use is thought to have no negative impact on free-ranging bighorn sheep. Researchers are required to obtain State and Federal permits before handling Peninsular bighorn sheep. Although current research techniques are not believed to have a negative impact on bighorn sheep, how research is carried out must always be a consideration (Bleich et at. 1994, see Appendix D).
3. DISEASE AND PREDATION
The westward spread ofEuropeans and their domestic livestock across North America was thought to play a significant role in reducing the distribution and abundance ofbighorn sheep due to the introduction ofnew infectious diseases (Spraker 1977, Onderka and Wishart 1984). In particular, domestic sheep have been repeatedly implicated in Pasteuretta pneumonia die-offs ofbighorn sheep.
In the Peninsular Ranges, a number ofpathogens have been isolated or detected by serological assay from bighorn sheep (refer to section I.B.7). In the Santa Rosa Mountains, many years ofhigh lamb mortality from an apparent disease epizootic contributed to a population decline from inadequate recruitment (DeForge and Scott 1982, Wehausen et at. 1987, DeForge et at. 1995). Although diseases do not currently appear to be limiting population growth throughout the range, they pose a potential threat that could occur at any time, especially if disease episodes can be precipitated by chronic levels of disturbance (Geist 1971, Hamilton et at. 1982, Spraker et at. 1984, King and Workman 1986, Festa-Bianchet 1988, Desert Bighorn Council 1992).
40 Mountain lion predation is an apparent limiting factor forsome ewe groups in the Peninsular Ranges; 69 percent of61 mortalities ofradiocollared sheep from 1992 to 1998 between Highway 74 in the Santa Rosa Mountains and Mexican border are attributed to mountain lions (Hayes et at. 2000). The relatively low survivorship ofadults (section I.B.4) and associated population declines have recently affected the recovery of most ewe groups.
4. THE INADEQUACY OF EXISTING REGULATORY MECHANISMS
In 1971, the Peninsular bighorn sheep was listed under California State law as a rare species. The designation was changed to “threatened” in 1984 to standardize terminology ofthe amended California Endangered Species Act. The Peninsular bighorn sheep also is listed by the State as a “fully protected species” under the Fish and Game Code (Section 4700). The California Environmental Quality Act, which allows public comment and generally requires mitigation for significant environmental effects, including adverse impacts to State and federally listed species, has not resulted in conservation benefits sufficient to maintain stable populations.
The Bureau ofLand Management and California Department of Fish and Game jointly developed the Santa Rosa Mountains Habitat Management Plan in 1980 and McCain Valley Habitat Management Plan in 1984 to address the needs, as identified at that time, ofbighorn sheep in these areas. The Department ofFish and Game also established the Carrizo Canyon and Magnesia Spring Ecological Reserves to protect important watering sites. The effectiveness ofthese management areas in the Santa Rosa Mountains has been limited because of heavy human use, lack of management presence, and limited funding. The lack of funds also has prevented acquisition of all private lands within the protected areas, resulting in continued fragmentation by development. The existence of private inholdings within the boundaries of Anza-Borrego Desert State Park is also a potential threat to Peninsular bighorn sheep because these lands include prime bighorn sheep habitat, but a lack offunding and/or unwilling sellers have prevented public acquisition to date.
In California, it is Bureau of Land Management policy to conserve State-listed plants and animals and to use its authorities in furtherance ofthe purposes ofthe 41 State ofCalifornia’s rare and endangered species laws. The Bureau ofLand Management and California Department of Fish and Game have developed conference procedures to promote cooperation in the application ofthis policy, although they are inconsistently implemented. Neither State listing nor the proposed Federal listing of bighorn sheep prompted land management agencies to effectively address adverse effects associated with land exchanges, recreational and commercial uses, and livestock grazing programs. Although domestic sheep on Federal lands in the Peninsular Ranges are not a current threat, adverse effects from cattle grazing (including resource competition, degradation of water sources, and disease transmission) require resolution.
A number of development projects with potentially significant adverse effects on bighorn sheep recently have been approved because project proposals and local General Plans formost of the cities in the Coachella Valley inadequately address threatsto the long-term conservation of Peninsular bighorn sheep. Though some habitat protection is derived from the presence of the State and federally listed least Bell’s vireo ( Vireo bettii pusittus) and southwestern willow flycatcher (Empidonax traitiji extimus), benefits are limited due to the specialized habitats (riparian woodland) used by these birds. Section 404 ofthe Clean Water Act provides protection through the U. S. Army Corps of Engineers’ regulation ofthe discharge ofdredged and fill material into certain waters and wetlands ofthe United States, but Corps’ jurisdiction can be avoided under various situations.
5. OTHER NATURAL OR MANMADE FACTORS AFFECTING THEIR
CONTINUED EXISTENCE
Drought: Prolonged drought is a natural factor that can have negative impacts on desert bighorn sheep populations, either by limiting watersources or by affecting forage quality (Rosenzweig 1968, Hansen 1980a, Monson 1980, Douglas and Leslie 1986, Wehausen et at. 1987, refer to section I.B.1). During drought years, the concentration ofbighorn sheep near remaining water sources may increase competition for forage as well as water, thereby limiting population growth through density dependent regulation (Caughley 1977, Gotelli 1995). In addition, increased density potentially renders animals more susceptible to diseases or parasites (Anderson and May 1979, May and Anderson 1979). 42 Human Disturbance: Human development affects sheep through habitat loss, fragmentation, or other modification (refer to section I.D. 1 .1), but these impacts also extend into bighorn sheep habitat beyond the urban edge. Though a growing human population and increased activity adjacent to and within bighorn sheep habitat have potential to adversely affect bighorn sheep, accurate mapping oftrail locations and quantitative monitoring of recreational trail use have not been conducted. In addition, incremental proliferation oftrails has gone largely unaddressed.
Numerous researchers have expressed concern over the impact of human activity on Peninsular bighorn sheep (e.g., Jorgensen and Turner 1973, Hicks 1978, Olech 1979, Cunningham 1982, DeForge and Scott 1982, Gross 1987, Sanchez et at. 1988), as well as on sheep in other areas (Graham 1980, Gionfriddo and Krausman 1986, Smith and Krausman 1988). Leopold (1933) considered bighorn sheep a wilderness animal because they fail to thrive in contact with urban development. A variety ofhuman activities such as hiking, mountain biking, hang gliding, horseback riding, camping, hunting, livestock grazing, dog walking, and use of aircraft and off-road-vehicles have the potential to disrupt normal bighorn sheep social behaviors and use of essential resources, or cause bighorn sheep to abandon traditional habitat (McQuivey 1978, MacArthur et at. 1979, Olech 1979, Wehausen 1979, Leslie and Douglas 1980, Graham 1980, MacArthur et at. 1982, Bates and Workman 1983, Wehausen 1983, Miller and Smith 1985, Krausman and Leopold 1986, Krausman et at. 1989, Goodson 1999, Papouchis et at. 1999).
Attempts to ascribe relative importance, distinguish among, or generalize the effects of different human activities on sheep behavior are not supportable, given the range ofpotential reactions reported in the literature and the different variables impinging on given situations.
Although cases have been cited in which bighorn sheep populations did not appear to be affected by human activity (e.g., Hicks and Elder 1979, Hamilton et at. 1982), numerous researchers, including these authors, have documented altered bighorn sheep behavior in response to anthropogenic disturbance. Even when bighorn sheep appear to be tolerant of a particular activity, continued and frequent use can cause them to avoid an area, eventually interfering with use ofresources, such as water, mineral licks, lambing or feeding areas, or use oftraditional movement routes (Jorgensen and Turner 1973, McQuivey 1978, Graham 1980, 43 Leslie and Douglas 1980, DeForge and Scott 1982, Hamilton et’ at. 1982, Krausman and Leopold 1986, Rubin ei’ at. 1998). In addition, disturbance can result in physiological responses such as elevated heart rate (MacArthur et at. 1979, 1982), even when no behavioral response is discernable. It was repeatedly cautioned that human disturbance threatened the viability ofa bighorn sheep population in the Santa Catalina Mountains, outside of Tucson, Arizona (Etchberger et at. 1989, Krausman et at. 1989, Krausman 1993, Krausman et at. 1995). In these mountains, Etchberger ei’ at. (1989) found that habitat abandoned by bighorn sheep had greater human disturbance than occupied habitat. Today, this population is extinct, or nearly so, and human activities apparently contributed to its demise (Schoenecker 1997; Krausman et at. in prep.; P. Krausman, pers. comm.).
A high level ofhuman activity occurs in the habitat ofPeninsular bighorn sheep.
For example, during a recent 10-hour period in spring, 49 hikers, 2 mountain bikers, and 13 dogs (9 unleashed) were counted in Carrizo Canyon in the northern Santa Rosa Mountains (Bureau of Land Management, unpublished data). This trail bisects a lambing area that has received reduced levels ofsheep use in recent years. A ewe and her lamb were observed to wait for over S hoursto come to water because ofcontinuous off-road vehicle traffic (Jorgensen and Turner 1973).
Jorgensen (1974) reported that bighorn sheep use ofimportant waterholes was 50 percent lower on days with off-road vehicle traffic. In Carrizo Canyon, Hicks (1978) observed a group ofbighorn sheep flee from a spring area when a Navy helicopter passed overhead, Olech (1979) noted that bighorn sheep did not use waterholes when motorcycles were heard nearby, and Cunningham (1982) speculated that the use ofsprings by humans (recreationists and persons entering California across the U. S.-Mexico border) reduced use ofthis resource by bighorn sheep. Sanchez ei’ at. (1988) recommended that future management efforts should attempt to reduce human impacts on bighorn sheep in Carrizo Canyon. As the human population ofthe southern California desert grows, such human activity in bighorn sheep habitat will increase.
Bighorn sheep responses to human activity are difficult to predict (Miller and Smith 1985) and depend on type of activity, season ofthe activity, elevation ofthe activity relative to resources (Hicks 1978, Graham 1980), and distance ofthe activity from resources critical to bighorn sheep (Miller and Smith 1985), among 44 other variables. For instance, ewes with lambs typically are more sensitive to disturbance (Light and Weaver 1973, Wehausen 1980), as are animals that are approached from higher elevations (Hicks 1977, Graham 1980). Papouchis et at. (1999) found bighorn sheep to be more sensitive to disturbance during spring and fall, corresponding with the lambing and rutting seasons. Etchberger and Krausman (1999) observed the abandonment of lambing habitat while construction activities were ongoing.
Livestock Grazing and Water Diversion: Human actions also indirectly affect use ofresources by bighorn sheep. Domestic livestock and feral animals can reduce the availability and quality ofresources (water and forage) required by bighorn sheep (refer to section I.B.6), and can function as potential vectors for diseases such as bluetongue virus. In portions ofthe range, water has been pumped from aquifers and diverted away from springs for use by ranches and private residences, reducing and eliminating the water sources upon which bighorn sheep depend (Tevis 1961; Blong 1967; Turner 1976; M. Jorgensen, pers. comm.).
Non-native Plants: In the Peninsular Ranges, the presence of tamarisk (Tamarix sp.), also known assaltcedar, represents a serious threat to bighorn sheep. This exotic plant was introduced as an ornamental and windbreak but is now a major weed problem (Lovich et at. 1994). It consumes large amounts of water and has rapid reproductive and dispersal rates (Sanchez 1975, Lovich et at. 1994), enabling it to outcompete native plant species in canyon bottoms and washes. It has the following negative effects on bighorn sheep: 1) it reduces or eliminates standing water that bighorn sheep depend on, 2) it outcompetes plant species that bighorn sheep feed on, and 3) it occurs in thick, often impenetrable stands that block access ofbighorn sheep to water sources and provide cover for predators.
Tamarisk has also been recognized as a threat to other bighorn sheep populations (Sanchez 1975) and native ecosystems in general (Lovich et at. 1994). Effective eradication methods are possible (Barrows 1994) and eradication programs currently are underway by the Agua Caliente Band of Cahuilla Indians, Bureau of Land Management, and Auza-Borrego Desert State Park.
Fire Suppression: As described in section I.B.2 of this recovery plan, bighorn sheep rely on vigilance and visibility to detect and avoid predators. Long-term 45 fire suppression results in taller and more dense stands ofvegetation, thereby reducing openness and visibility and in turn making bighorn sheep more susceptible to predation (Sierra Nevada Bighorn Sheep Interagency Advisory Group 1997). In this same manner, fire suppression can influence the distribution and habitat use patterns ofbighorn sheep by causing avoidance of areas with low visibility (Risenhoover and Bailey 1985, Wakelyn 1987, Etchberger et at. 1989, Etchberger et at. 1990, Krausman 1993, Krausman et at. 1996). In addition, Graf (1980) suggested that fire suppression reduces forage conditions in some bighorn sheep ranges. In the Peninsular Ranges, changes in vegetation succession are evident in some portions ofbighorn sheep range, primarily in higher elevation chaparral and pinyon-juniper habitats, and have apparently influenced bighorn sheep use ofcertain canyons and springs (M. Jorgensen, pers. comm.). Although temperature and rainfall likely influence the pattern ofvegetation associations along the eastern slopes of the Peninsular Ranges more than fire frequency does, a number of researchers have pointed out that fire is an important tool in the management of bighorn sheep habitat (Graf 1980, Smith and Krausman 1988, Krausman et at. 1996, Sierra Nevada Bighorn Sheep Interagency Advisory Group 1997).
E. PAST AND CURRENT MANAGEMENT! CONSERVATION
ACTIVITIES
1. FEDERAL AGENCIES
1.1 United States Fish and Witdt~fe Service. We listed the Peninsular bighorn sheep as a Category 2 candidate from September 18, 1985 (50 FR 37958) until May 8, 1992, when it was proposed for Federal listing as an endangered species (57 FR 19837). Between the date ofthe proposed rule and final listing on March 18, 1998 (63 FR 13134), certain Federal activities were reviewed under the section 7 interagency regulations (50 CFR Part 402) and conference procedures for proposed species. Since Federal listing, the mandatory requirements of sections 7, 9, and 10 ofthe Endangered Species Act have been in effect, in addition to the allocation ofrecovery funding to the State under sections 4 and 6 ofthe Act. On July 5, 2000, we proposed to designate critical habitat throughout the Peninsular Ranges in California (65 FR 41405). This recovery plan is prepared pursuant to section 4(f) ofthe Endangered Species Act, which requires 46 usto give priority to the preparation and implementation ofrecoveryplans to those species that are most likely to benefit from such recovery plans, particularly those that are, or may be, in conflict with construction or other development projects or other forms of economic activity.
1.2 Bureau ofLandManagement. Approximately 26 percent of bighom sheep habitat in the Peninsular Ranges is on public lands administered by the Bureau of Land Management (Figure 4). This management was custodial in the Peninsular Ranges until implementation ofthe California Desert Conservation Area Plan began in 1980. Implementation ofthis plan included preparation ofthe Santa Rosa Mountains Habitat Management Plan (1980), McCain Valley Wildlife Habitat Management Plan (1984), and In-Ko-Pah Area ofCritical Environmental Concern Management Plan (1988), which identified actions to be taken for the benefit of bighorn sheep in the Peninsular Ranges. From 1988 to the present, using Land and Water Conservation Fund dollars appropriated by Congress and taking advantage ofland gifts ftom private individuals, the Bureau ofLand Management acquired about 4,520 hectares (11,165 acres) ofbighorn sheep habitat in the Peninsular Ranges, primarily in the Santa Rosa Mountains National Scenic Area. It should be noted that without the help ofthe Santa Rosa Mountains Conservancy, a group ofprivate citizens concerned with conservation ofthe Santa Rosa Mountains, the Land and Water Conservation Funds ‘might not have been made available forthese purchases. Other conservation activities included:
• Installation ofgap fencing to eliminate cattle grazing from steep terrain and from water sources in canyons;
• Reduction in grazing pressure on allotments;
• Closure of most routes oftravel east ofMcCain Valley Road, except to private inholdings, to ranchers, and to Carrizo and Sacatone Overlooks; • Designation of wilderness study areas and subsequent management for non-impairment ofwilderness values;
• Designation ofJacumba, Carrizo Gorge, Coyote Mountains, Sawtooth Mountains, Fish Creek Mountains, and Santa Rosa Wilderness Areas by Congress, with attendant elimination ofvehicular access; • Tamarisk control efforts around water sources;
• Establishment ofthe Santa Rosa Mountains National Scenic Area Visitors Center to provide public education;
47 • Financial assistance to the Bighorn Institute during its formative years, as well as land transfer and lease under the Recreation and Public Purposes Act;
• Temporary closure to dogs on most lands in the Santa Rosa Mountains National Scenic Area; and
• Closure ofroads into Dead Indian Canyon and Carrizo Canyon.
On October 25, 2000, legislation was signed to create the Santa Rosa and San Jacinto Mountains National Monument. The monument covers 110,000 hectares (272,000 acres), including lands administered by the Bureau of Land Management, U.S. Forest Service, California Department of Fish and Game, California Department of Parks and Recreation, Agua Caliente Band of Cahuilla Indians, Coachella Valley Conservancy, and private owners. The designation will prohibit mining and off-road vehicle use on federal lands, support coordinated land management by federal agencies, and increase the area’s funding priority.
1.3 US. Forest Service. The San Bernardino National Forest is responsible for management of bighorn sheep habitat on some public lands. Approximately 3 percent ofbighorn sheep habitat in the Peninsular Ranges is on U.S. Forest Service land (Figure 4). Since 1978, the Forest Service has acquired 3,107 hectares (7,680 acres) ofland in or within 1.6 kilometers (1 mile) of Peninsular bighorn sheep range. Current management ofthe San Bernardino National Forest is guided by the Forest Land and Resource Management Plan (Forest Plan) established in 1989. Forest Plan standards and guidelines pertaining to Peninsular bighorn sheep include the following: “coordinate with Bureau of Land Management to manage the Santa Rosa bighorn sheep population in accordance with the (Santa Rosa Mountains Wildlife) habitat management plan”; “establish seasonal closures as necessary to protect important habitat”; “manage domestic sheep and goat grazing to prevent disease transfer to bighorn sheep [a minimum
3.2-kilometer (2-mile) buffer is recommended]”; and “avoid introducing barriers to movement of bighorn sheep.” Recent proposed changes in management relative to Peninsular bighorn sheep are discussed in a programmatic Biological Assessment completed by the San Bernardino National Forest (January 27, 1999).
This assessment evaluated all ongoing activities occurring in Peninsular bighorn sheep habitat within the San Bernardino National Forest. Specific actions that will be implemented include: 1) cattle will be removed from portions of allotments that overlap bighorn sheep habitat (Wellman allotment), 2) fences 48 within and adjacent to bighorn sheep habitat will comply with specifications listed in section II.D. 1 .2 ofthis recovery plan, 3) a barrier will be constructed along the gated closure on Palm Canyon Drive (also known as Dunn Road) to reduce unauthorized vehicular use, and 4) guidelines for management of hiking, biking, and equestrian trails (e.g., seasonal closures) will follow recommendations outlined in section II.D. 1.2 ofthis recovery plan.
Additional actions recommended in the San Bernardino National Forest Biological Assessment include: 1) the Forest Service should not authorize forage use by domestic livestock where they currently do not graze in bighorn sheep habitat, 2) other existing grazing allotments on the San Jacinto Ranger District should not be converted from cattle to domestic sheep or goat use, and 3) the minimum buffer distance between domestic sheep grazing and bighorn sheep habitat should be increased from 3.2 kilometers (2 miles) (the current Forest Plan standard) to 14.5 kilometers (9 miles) throughout the Forest.
2. STATE AGENCIES
2.1 Catfornia Department of Fish and Game. To designate areas important to bighorn sheep conservation in the Santa Rosa Mountains, the Department of Fish and Game established a State Game Refuge pursuant to Fish and Game Code section 10837. State lands administered by the Department ofFish and Game total about 3 percent of bighorn habitat in the Peninsular Ranges (Figure 4). To further identify and implement management needs, the Department ofFish and Game coordinated with the Bureau ofLand Management in the completion ofthe Santa Rosa Mountains Wildlife Habitat Management Plan (Bureau ofLand Management 1980). Currently, the Department of Fish and Game’s management activities for bighorn sheep are at the highest level in the State’s history. Funds provided through the sale of Environmental License Plates and through the auction ofspecial fund-raising permits have enabled the Department of Fish and Game to support a number ofimportant research efforts concentrating primarily on population characteristics and the disease status ofbighorn sheep. The Department of Fish and Game cooperates with several universities, agencies, and non-profit organizationsin support ofbighorn sheep research and conservation in California. Conservation goals for bighorn sheep, as published in the Statewide Plan for Bighorn Sheep (California Department of Fish and Game 1983), are as follows:
49 1. Maintain, improve, and expand bighorn sheep habitat where possible or feasible.
2. Reestablish bighorn sheep populations on historic ranges where feasible.
3. Increase bighorn sheep populations so that all races become numerous enough to no longer require classification as rare or fully protected.
4. Provide for aesthetic, educational, and recreational uses of bighorn sheep.
The California Department of Fish and Game’s Bighorn Sheep Management Program maintains an inventory of the distribution of bighorn sheep in California.
This assessment of bighorn sheep populations has been conducted as part of a long-term management plan for mountain sheep in California. The populations of bighorn sheep in California are grouped into metapopulations, or ‘systems’ of populations, that best represent logical regions to manage for the long-term viability of the species. This regional approach recognizes the importance of inter-mountain areas that allow movement and exchange of individuals between populations, the re-colonization of vacant habitats, and the interagency coordination of land management. The program’s definition of regional populations considers not only vegetative and geographic boundaries, but also man-made barriers that define distributions and have resulted in the fragmentation of habitat. Given the need to understand the status and dynamics of regional populations ofbighorn sheep, this type ofinventory should provide an index for documenting regional population changes over time, and help evaluate the success or failure of management actions at a meaningful level. Further, this approach may help identify the “missing pieces ofthe puzzle” for optimizing future reintroduction and management efforts to ensure population viability.
Although a metapopulation approach is an important biological principle for longterm survival of bighorn sheep populations, it is equally important as a management concept that prioritizes regional coordination for bighorn sheep population and habitat management. For example, data regarding extinction and recolonization are limited, and the biological justification for considering some regions as true metapopulations is therefore incomplete. Nevertheless, given the need for regional management of bighorn sheep populations, metapopulations have been defined based on the best understanding ofthe regions. Several 51 investigations have postulated the importance of population size and genetic diversity to the long-term viability ofbighorn sheep populations.
California State law (Assembly Bill 560), which was enacted under an emergency provision in September 1999, allows control ofmountain lions to protect threatened, endangered, fully protected, and candidate sheep species. In these cases, selective removal of lions is an alternative short-term emergency measure to facilitate recovery of vulnerable sheep populations, such as in the Peninsular Ranges (refer to section II.D. 1.3).
2.2 Catfornia Department ofParks andRecreation. Two State parks are within the range ofthe Peninsular bighorn sheep: Auza-Borrego Desert State Park and Mount San Jacinto State Wilderness. Anza-Borrego Desert State Park comprises 243,000 hectares (600,000 acres) along the backbone ofthe Peninsular Ranges, encompassing approximately 47 percent of this species’ existing habitat within the United States (Figure 4). The park also supports a majority of the rangewide sheep population (Rubin et at. 1998). Therefore, recovery of the species hinges greatly on the successful management ofbighorn sheep habitat in this State park.
Anza-Borrego Desert State Park has been actively involved in the conservation of bighorn sheep for 30 years (Table 9).
2.3 Coachetta Vattey Mountains C~onservancy. The Conservancy was established by California State legislation in 1990 to “acquire and hold, in perpetual open space, mountainous lands surrounding the Coachella Valley and to provide for the public’s enjoyment of and the enhancement of their recreational and educational expenences on those lands in a manner consistent with the protection of the lands and the resource values specified in Section 33500 [PublicResources Code]”.
The Conservancy has acquired either fee title or a conservation easement on 973 hectares (2,405 acres) in the San Jacinto and Santa Rosa Mountains, and has assisted other entities with additional acquisitions. The Conservancy is preparing the Coachella Valley Multiple Species Habitat Conservation Plan under contract to the Coachella Valley Association of Governments (refer to section I.E.3.2).
3. LOCAL ORGANIZATIONS AND AGENCIES
3.1 Bighorn Institute. The Bighorn Institute is a nonprofit, tax-exempt organization that was formed in 1982 to investigate the causes of bighorn sheep 52 declines, particularly Peninsular bighorn sheep. The Institute is located in Riverside County, California, adjacent to the City of Palm Desert. Its facilities, which include an office, laboratory, staff residence, and pens for a captive breeding herd ofPeninsular bighorn sheep, are located on 120 hectares (297 acres) of land at the base of the Santa Rosa Mountains.
The Institute began monitoring radio-collared bighorn sheep in the northern Santa Rosa Mountains and the San Jacinto Mountains in 1982 and 1992, respectively.
Long-term studies of the population characteristics, distribution, reproductive success, nutrition, movements, and general ecology of these bighorn sheep are ongoing. In the spring of 1998, the Institute initiated a multi-year study of causespecific mortality of radio-collared lambs in the northern Santa Rosa Mountains.
The Bighorn Institute has conducted annual helicopter surveys of bighorn sheep in the Santa Rosa Mountains since 1982 and in the San Jacinto Mountains since 1987, and has also surveyed bighorn sheep throughout the Peninsular Ranges in Mexico. Since 1982, 39 sick lambs have been captured from the U.S. Peninsular Ranges for disease research and rehabilitation at the Institute. In 1985, the Institute began a Captive Breeding and Population Augmentation Program.
Although this program began as a by-product of disease research on causes of low lamb survival (DeForge et at. 1982, DeForge and Scott 1982), in 1995 it was redirected as a formal captive breeding program with the primary goals of producing stock for augmenting and re-establishing wild populations, and conducting a research program in the Santa Rosa and San Jacinto Mountains.
Captive bighorn are maintained in 12-hectare and 3-hectare enclosures encompassing rugged hilltops. Rams and ewes are selectively combined for the breeding season and the parentage of all captive-born animals is recorded.
Captive animals are not available for public viewing and a standardized feeding and observation routine is used to limit exposure to humans (Ostermann et at. in press).
Before release, all bighorn are health-tested, eartagged, and fitted with mortalitysensing radiocollars. Within the northern Santa Rosa Mountains, bighorn have been released in Bradley Canyon (n equals 60), east Magnesia Canyon (n equals 6), and west Magnesia Canyon (n equals 8). Of the 74 captive-reared bighorn released into the northern Santa Rosa Mountains, 49 (22 males, 27 females) were captive-born and 25 (12 males, 13 females) were wild-born lambs brought into captivity for research and rehabilitation at I to 5 months of age (Ostermann et at. 53 Table 9. Past and present conservation activities in Anza-Borrego Desert State Park.
Year Description of activities
1968 Field studies were conducted in Anza-Borrego as part of a statewide status report on bighorn sheep (Weaver 1972, 1975, 1989; Weaver et at. 1968; Weaver and Mensch 1970).
circa 1970 Construction ofBlue Spring guzzler in Vallecito Mountains with the Society for the Conservation ofBighorn Sheep.
1971 The annual Anza-Borrego Bighorn Sheep Count began with about 25 volunteers. A waterhole count has been conducted every summer since this time and now involves about 75 volunteers counting 24 watering sites. Over 2,000 volunteers have donated over 60,000 hours to date. 1972-1975 Jorgensen and Turner (1973, 1975) conducted 4 summers of bighorn sheep research and documented over 100 water sources used by bighorn sheep. Russi (1978) continued this work in 1976.
1973-
present
Tamarisk removed from riparian areas within bighorn sheep habitat to enhance water availability and native plant community regeneration.
Currently, a Riparian Restoration Team works full time to remove tamarisk and other exotic plants. Approximately 208 kilometers (120 miles) of canyons and stream courses have been treated by the team to date.
1975 A seasonal closure ofbighorn sheep watering areas in Coyote Canyon during June 15 to September 15 was implemented. This closure was expanded in 1996 from June 1 to October 1.
1982 A bighorn sheep guzzler was constructed in collaboration with California Department ofFish and Game at Limestone Spring in the Santa Rosa Mountains.
1982 163,085 hectares (403,000 acres) ofAnza-Borrego Desert State Park were designated as State Wilderness Areas, setting aside a large area of 1983-
present
Park staff assisted in annual helicopter surveys of the entire Santa Rosa and San Jacinto Mountain ranges (DeForge e at. 1995, 1997). 1983-1992 Park staff assisted the Bighorn Institute with disease research. 1987 Feral cattle (117) were removed from bighorn sheep habitat by helicopter at a cost of $70,000, culminating 16 years of effort to remove domestic cattle from park lands.
1987 Six bighorn sheep guzzlers were constructed in the Vallecito Mountains to provide water where natural springs and streams had been usurped by human activity. Over 200 volunteers and $30,000 were used and expended respectively, in the project.
54 Table 9. Continued
1987-1988 Gap fencing [22.5 kilometers (14 miles)] was constructed in the upper elevations ofthe park to keep stray cattle from entering from neighboring lands. A special Senate appropriation ($200,000) was obtained for this project.
1992-
present
Cooperated on Peninsular Ranges Bighorn Sheep Population Health Study with University ofCalifornia (Davis) and the Zoological Society of San Diego.
1994-1998 Helicopter surveys were conducted in Anza-Borrego Desert State Park, in collaboration with the University ofCalifornia - Davis and California Dept._of Fish_and_Game_(Rubin_et_al._1998,1999).
A 15-minute movie “The Bighorn of Anza-Borrego” was produced.
This movie is seen by thousands of park visitors each season in the Anza-Borrego Visitor Center.
1995-1996
1996 The Coyote Canyon Public Use Plan was implemented, calling for the closure of Middle Willows and Upper Willows to motor vehicular traffic. This trail segment is 5 kilometers (3.1-miles) long. in press). In 1997, three captive-reared ewes were released into Tahquitz Canyon in the San Jacinto Mountains. Two of these females were captive-born, and the third was a wild-born ewe captured as a lamb from the northern Santa Rosa Mountains (Ostermann and DeForge 1996, Bighorn Institute 1997).
3.2 Coachetta Vaitey Mutu~te Species Habitat Conservation Plan. This ongoing planning effort is sponsored by the Coachella Valley Association of Governments, with the cooperation of the Fish and Wildlife Service and California Department of Fish and Game, and has been in preparation since 1996. Within the areas at issue in this plan, the Association’s membership includes the County of Riverside and all nine cities in the Coachella Valley, as well as the Agua Caliente Band of Cahuilla Indians. Though the plan is not yet complete, it currently proposes to address the conservation needs of bighorn sheep. Lands in the San Jacinto and Santa Rosa Mountains set aside in the past and future by the cities and Riverside County as open space will provide important contributions to bighorn sheep recovery and completion of the habitat conservation plan ifthose lands are managed appropriately. If the plan is adopted, participating Federal, State, and local governments will cooperate in implementing an agreed upon conservation strategy for bighorn sheep and other species over a large area of the San Jacinto and Santa Rosa Mountains in Riverside County.
55 4. INDIAN TRIBES
4.1. Agua Catiente Band ofCahuitta Indians. The Agua Caliente Band of Cahuilla Indians (Tribe) is a federally recognized Indian Tribe whose reservation was established in 1876 by Executive Order. The Agua Caliente Indian Reservation encompasses 13,000 hectares (32,000 acres) ofland in the western Coachella Valley and is encompassed within a checkerboard ownership pattern that supports a significant amount of bighorn sheep habitat.
The Tribe has a long and rich history ofland stewardship, particularly in the foothills ofthe San Jacinto and Santa Rosa Mountain ranges. For decades, the Tribe has managed the area known as the Indian Canyons for cultural resource protection and use by the public as a Tribal park. Protection ofthe natural resources ofthe reservation and Indian Canyons has been the foremost priority of the Tribe and has been acknowledged by the Secretary ofthe Interior.
Currently, the Tribe is preparing a comprehensive Resource Management Plan for the reservation that will protect cultural, wetland, land use, and wildlife resources.
The Tribe actively participates and holds seats on the Coachella Valley Association ofGovernments, Coachella Valley Mountains Conservancy, and Planning Advisory Group ofthe Coachella Valley Multiple Species Habitat Conservation Plan.
The Tribe’s Planning and Environmental Department presently consists of 10 professionals and technicians who, at the direction ofthe Tribal Council, oversee all land management issues. The Tribal Resource Management Plan will address the management and protection ofendangered species, including bighorn sheep.
To the extent feasible, the Tribe intends to cooperate with interested and affected agencies who share in the implementation ofthis recovery plan.
4.2. Torres-Martinez Desert Cahuitta Indians. This federally recognized tribe supports approximately six sections (1,554 hectares or 3,840 acres) of bighorn habitat in the extreme southern Santa Rosa Mountains.
4.3. Morongo Band ofMission Indians. This federally recognized tribe supports one irregularly shaped section (about 280 hectares or 700 acres) ofbighorn habitat at the extreme north end ofthe San Jacinto Mountains.
56 II. RECOVERY
A. CONSERVATION PRINCIPLES USED IN THIS RECOVERY PLAN
The following sections discuss general conservation principles in the context of our current knowledge regarding Peninsular bighorn sheep, and outline the relationship ofthese principles to the recovery criteria for this species.
Conservation theory recognizes that population and genetic issues need to be addressed in species conservation (Lande 1988), although population threats pose a greater short-term risk to Peninsular bighorn sheep. The conservation of Peninsular bighorn sheep requires an understanding ofhabitat use, population dynamics, behavior, and spatial population structure, as well. Ecosystem protection provides an additional important tool in species conservation. The use of models in conservation decision-making for the recovery of bighorn sheep in the Peninsular Ranges also is discussed below.
I. POPULATION CONSIDERATIONS
Population parameters are important to the viability ofall populations; however, they are an especially important consideration in the conservation ofsmall populations (Gilpin and Soul~ 1986). Variation in population parameters (birth, death, immigration, and emigration rates, as well as population age and sex structure) can cause fluctuations in population size that make small populations especially vulnerable to extinction. Lande (1988) noted that a shortcoming of some past recovery plans has been an inadequate emphasis on factors related to population characteristics, and cautioned that for many wild populations, risks related to population parameters are of more immediate importance than genetic concerns.
The small number of Peninsular bighorn sheep (334 adults estimated in 1998) mandates that population dynamics be of concern in their conservation.
Furthermore, Peninsular bighorn sheep occur in discrete ewe groups that have ecological significance relative to the genetic and distributional structure ofthe population (Rubin et at. 1998, Boyce et at. 1999), and therefore represent an important management and conservation unit (Bleich et at. 1996). The persistence ofsuch subgroups are important to the viability ofthe entire 57 population (Soul~ 1987). Some ofthese groups include less than 20 ewes, making them highly vulnerable to chance variation in birth and death events. The high male to female sex ratio in the San Jacinto Mountains (DeForge et at. 1997) provides an example.
Because ewe groups are connected by movements oframs and rarer dispersal by ewes, Peninsular bighorn sheep are considered to comprise a metapopulation (Torres et at. 1994, Bleich et at. 1996, Boyce et at. 1997). Metapopulations typically are assumed to exist in a state of balance between population extinctions and colonizations (Hanski and Gilpin 1991). However, in the case ofPeninsular bighorn sheep, the use of a metapopulation approach should not diminish the importance of individual ewe group viability for the following reasons. Bighorn sheep are relatively slow colonizers (Geist 1967, 1971; Bleich et at. 1996) and therefore metapopulation extinction-colonization processes would have to function over a very long time period. Recent abandonment of habitat and a lack of known colonizations suggest that Peninsular bighorn sheep comprise a nonequilibrium metapopulation” (i.e., extinctions are occurring at a faster rate than colonizations) (Harrison 1994, Hanski and Simberloff 1997). Hanski and Gilpin (1991) cautioned that such systems must be managed carefully because they may not necessarily function as a metapopulation. Therefore, extirpations of existing ewe groups should be avoided, while colonization ofhabitat should be promoted.
In the Peninsular Ranges, a variety offactors have reduced bighorn sheep numbers to levels where random variations in population characteristics and environmental factors have become serious threats. Therefore, this recovery effort should strive to increase the overall population ofbighorn sheep by addressing and, where possible, reversing processesthat caused the past population decline. This effort will entail implementing actions that increase the size ofindividual ewe groups by reducing mortality rates, increasing recruitment, and allowing inter-group movements to occur.
2. GENETIC CONSIDERATIONS
Maintaining genetic variation is an important conservation goal because loss of genetic variability can result in inbreeding depression (a loss offitness) and the inability of populations to respond to long-term environmental changes (Gilpin 58 and Sould 1986, Ralls ei’ at. 1988, Lande 1988, Meffe and Carroll 1994, FitzSimmons et at. 1995). By reducing the fitness ofindividuals, loss ofgenetic variation also can reduce the growth rates and resilience of populations (Lacy 1997). Loss of genetic variation is a special concern when dealing with small populations because heterozygosity is lost (through the processes offounder effects, population bottlenecks, genetic drift, and the effects ofinbreeding) more quickly in small populations than in large ones (Meffe and Carroll 1994). In the Peninsular Ranges, movement ofmales apparently has maintained gene flow between ewe groups, resulting in a relatively high level of genetic diversity (Boyce et at. 1997). However, increased habitat fragmentation could reduce the connectivity among groups. Ifewe groups become isolated, they will face an increased risk of losing genetic variability in addition to vulnerability to natural random fluctuations in the population.
Even if gene flow is maintained among ewe groups in the Peninsular Ranges, the overall population size (approximately 334 adults) is small enough to cause concern. The effective population size (N) (Crow and Kimura 1970), which e
determines the rate at which heterozygosity is lost, is even smaller than the census size. Au effective population size of 500 individuals has been suggested asthe minimum recommended for maintenance of genetic variation for future evolutionary change (Franklin 1980, Lande and Barrowclough 1987, Franklin and Frankham 1998), while Lande (1995) suggested that this numbershould be even higher. The current census size ofPeninsular bighorn sheep falls far below even the lower recommendation. Because reduced population levels may place Peninsular bighorn sheep at risk, important goals ofthis recovery effort are to increase the abundance ofPeninsular bighorn sheep and maintain as much genetic variation as possible. This recovery plan recommends maintenance of connectivity with populations in Baja California and it may be deemed appropriate in the future to recreate connectivity or induce gene migration with the Mojave Desert metapopulation.
Although the observed genetic variation among ewe groups in the Peninsular Ranges is not known to confer adaptive advantage to local environments, genetic theoryholds that existing genetic variation should be maintained “in as near a natural geographic distribution as possible, so that evolutionary and ecological processes may be allowed to continue” (Meffe and Carroll 1994). In Peninsular bighorn sheep, as in many taxa, genetic variation is partitioned among and within 59 subunits or ewe groups (Meffe and Carroll 1994, Boyce et at. 1999, refer to section I.A.3). Although there is no evidence to suggest that bighorn sheep in the Peninsular Ranges lack genetic diversity, a conservative approach to genetic conservation suggests that recovery tasks should recognize and attempt to preserve existing genetic structure whenever possible. This approach will require preservation of multiple ewe groups, maintenance of movement opportunities between groups (Schwartz et at. 1986), and judicious protocols forpopulation augmentation, reintroduction, and captive breeding programs (Ryman and Laikre 1991, Elliott and Boyce 1992, see Appendix C). Because the major problems facing bighom sheep in the Peninsular Ranges relate to population dynamics and viability, genetic theory should not over-ride management objectives to maintain and expand the number and size ofewe groups throughout the Peninsular Ranges.
This objective can be accomplished by selecting augmentation and reintroduction stock from the closest available populations (Wehausen 1991, Ramey 1993, Wehausen and Ramey 1993, Gutierrez-Espeleta et at. 1998).
3. ECOSYSTEM PROTECTION
Loss ofhabitat is recognized as the leading cause ofspecies endangerment and the leading threat to global biodiversity (Groombridge 1992, Noss and Murphy 1995).
It is also considered the most significant threat to the viability ofbighorn sheep populations (Bleich et at. 1996). The potentially negative impacts that habitat loss and degradation have on bighorn sheep are presented in section I.D. Although habitat loss may not directly cause mortality in bighorn sheep, loss ofimportant resources (e.g., water, forage, escape terrain, lambing areas, movement linkages) ultimately reduces carrying capacity, which can affect survival and recruitment rates. In some cases, the cause ofdeath may be documented as disease, malnutrition, or predation, etc., when in fact habitat loss was the underlying cause that resulted in death. In addition, altered land uses that support larger human populations introduce increased levels of anthropogenic disturbance in adjoining habitat. The decline or extirpation ofbighorn populations near other metropolitan areas such as Tucson near the Santa Catalina Mountains and Albuquerque near the Sandia Mountains (Krausman et at. in prep.), provide case history examples of apparent vulnerability of bighorn to urban influences. This recovery plan will attempt to avoid repeating these scenarios, and accordingly adopts the approach of conserving the larger ecosystem upon which bighorn sheep in the Peninsular Ranges depend, as afforded under section 2(b) ofthe Endangered Species Act. 60 Such an ecosystem approach also will benefit numerous other common and uncommon species.
4. THE USE OF POPULATION MODELS TO HELP GUIDE RECOVERY
ACTIONS
Models have become an important tool to scientists attempting to understand complex processes because intuition is often not reliable (National Research Council 1995). Conservation biologists frequently use models to gain a better understanding ofthe many interacting factors (environmental, population, and genetic) that place a species or population at risk. The comprehensive modeling of these factors was christened “population vulnerability analysis” by Gilpin and Sou1~ (1986). Typically, the goal of a population vulnerability or “viability” analysis is to evaluate the risk of extinction, either in terms of estimated time to extinction or the probability of extinction in a given time interval (Boyce 1992).
As such, a population viability analysis is similar, in concept, to risk analyses used to understand issues ofpublic health and safety (Ginzburg et at. 1982).
Population viability analyses, like other forms of risk analysis, contain a degree of uncertainty because they attempt to determine the likelihood offuture events based on past and present patterns (of population dynamics, environmental conditions, etc.). All models are inherently dependent onunderlying assumptions (Starfield and Bleloch 1991) and on the quality ofdata entered into the model.
Therefore, the results of a population viability analysis must be interpreted with caution (Caughley 1994, Beissinger and Westphal 1998). Inclusive population viability analyses may not be appropriate when data are limited (Beissinger and Westphal 1998). This limitation does not mean that the use ofmodels should be discouraged (Ak~akaya and Burgman 1995, Starfield 1997, Beissinger and Westphal 1998).
Au additional role ofmodeling in conservation biology is as a decision making tool (Starfield and Bleloch 1991, Walsh 1995, Starfield 1997). Models can be used to compare the relative effects (rather than the absolute outcome) of alternative management strategies or environmental scenarios (Starfield and Bleloch 1991, National Research Council 1995, Walsh 1995, Starfield 1997, Beissinger and Westphal 1998) and can help guide management strategies or 61 focus future research efforts. Smaller, focused models have great potential in guiding conservation decisions (Starfield and Bleloch 1991, Starfield 1997).
Use of modeling can help to elucidate several issues related to the recovery of Peninsular bighorn sheep (refer to section ll.D.2.2). Models should be designed to ask specific questions (Starfield 1997) that increase our understanding ofthe ecological processes in the Peninsular Ranges, and should be coupled with field studies ofthe bighorn sheep (Beissinger and Westphal 1998). It may be useful to simulate shorter time periods, as well as the 100 to 200 year intervals typically used in population viability analyses, so that model predictions (as well as model assumptions) can be evaluated with the use offield study results (Beissinger and Westphal 1998). This type ofapproach will allow conservation biologists to learn from the models and field studies, and will allow conservation efforts to be adaptive (Minta and Kareiva 1994).
B. OBJECTIVES AND CRITERIA
1. RECOVERY OBJECTIVE
The ultimate objective ofthis recovery plan is to protect and maintain sufficient individuals and habitat of bighorn sheep in the Peninsular Ranges to eventually delist this species. The recovery of Peninsular bighorn sheep will involve a twostage process, beginning with an interim goal of downlisting ofthe species from endangered to threatened status, followed by long-term recovery and removal of threatened status. As new information becomes available, the downlisting and delisting criteria may warrant modification through future revisions to the recovery plan.
2. DOWNLISTING CRITERIA
As an interim management goal, Peninsular bighorn sheep may be considered for downlisting (reclassification to threatened status) when all ofthe following objective, measurable criteria are met:
Downtisting Criterion 1: As determined by a scientifically credible monitoring plan, at least 25 adult ewes are present in each ofthe following 9 geographic regions (Figure 5) during each of6 consecutive years 62 (equivalent to approximately one bighom sheep generation), without continued population augmentation:
1. San Jacinto Mountains
2. Santa Rosa Mountains--North ofHighway 74
3. Santa Rosa Mountains--South ofHighway 74 through Martinez Canyon
4. Santa Rosa Mountains--South ofMartinez Canyon
5. Coyote Canyon
6. North San Ysidro Mountains (Henderson Canyon to County Road S-22)
7. South San Ysidro Mountains (County Road S-22 to State Highway 78)
8. Vallecito Mountains
9. Carrizo Canyon/Tierra Blanca Mountains/Coyote Mountains Area
Justification: The nine regions were selected on the basis ofmaintaining:
(1) historical distribution, (2) home range herd memory, and (3) connectivity among ewe groups to facilitate re-colonization in the event of localized extirpations. Recovery Team members with knowledge of current and historical conditionsjudged that each area was capable of supporting at least 25 ewes with associated subadults and rams. Within each ofthe nine regions, fluctuation in the number ofewe groups, including re-colonization offormer habitats, is expected under the metapopulation model. As such, ewe groups may merge, split, and redistribute themselves over time. Although the 9 areas support respective carrying capacities well in excess of 25 adult ewes, a downlisting objective based on maximum attainable population size was not selected because static population levels at full range capacity cannot be maintained in naturally variable environments, even assuming intensive management capability. The minimum group size of 25 adult females was selected by Recovery Team consensus because it:
1. would reduce risk ofextirpation from random naturally occurring events to an acceptable level;
64 2. should be achievable with prudent, population and land management practices;
3. is consistent with management objectives for bighorn sheep in other metapopulations;
4. should maintain ewe group knowledge of a large home range that will minimize the extent of geographic gaps between ewe groups, thereby facilitating interchange of genes and populations within the metapopulation;
5. falls well within known or estimated historical population levels; and
6. should provide, in all but the most catastrophic scenarios, sufficient time for management intervention to prevent extirpation.
Downtisting Criterion 2: Regulatory mechanisms and land management commitments have been established that provide for long-term protection of Peninsular bighorn sheep and all essential habitat as described in section II.D.l ofthis plan.
Justification: Given the major threat offragmentation to species with metapopulation structures, connectivity among all portions of habitat must be established and assured through land management commitments, such that bighorn sheep are able to move freely throughout all habitat. In preparation for delisting, protection by means other than the Endangered Species Act must be assured. Such protection should include alternative regulatory mechanisms by Federal, State, and local governments, and land management commitments that would provide the protection needed for continued population stability.
3. DELISTING CRITERIA
As a long-term management goal ofthe Peninsular bighorn sheep, three delisting criteria are proposed;
Detisting Criterion I: As determined by a scientifically credible monitoring plan, at least 25 ewes must be present in each ofthe 9 regions (Figure 5) listed under Downlisting Criterion #1 above, during each of 12 consecutive years (approximately 2 bighorn sheep generations), including 65 the 6 years under Downlisting Criterion HI, without continued population augmentation.
Detisting Criterion 2: The rangewide population must average 750 individuals (adults and yearlings) with a stable orincreasing population trend over 12 consecutive years (same time period as Delisting Criterion #1 above).
Justification: Recovery Team members with knowledge ofhistoric and current population levels evaluated the condition ofexisting habitat and determined a carrying capacity ofapproximately 1,000 bighorn sheep in the Peninsular Ranges, which approaches historical population estimates.
The required 12-year average population estimate of 750 animals is based on the assumption that achieving the objectives in Downlisting Criterion #1 ofat least 25 females in each ofthe 9 geographic areas likely will result in some areas supporting substantially more than 25 ewes and other sheep.
This scenario likely will result in an overall metapopulation size that fluctuates between 600 and 1,000 sheep, averaging about 750 sheep with a normal sex ratio, or approximately 75 percent ofestimated carrying capacity. An average population level would allow for natural population fluctuations in a random environment and is believed to be reasonably attainable assuming implementation ofthe management measures prescribed in this recovery plan.
Detisting Criterion 3: Regulatory mechanisms and land management commitments have been established that provide for long-term protection ofPeninsular bighorn sheep and all essential habitat as described in section II.D. I ofthis recoveryplan. Protection considered long-term can be provided through appropriate institutional practices, such as State Park General Plans, an amended California Desert Conservation Act Plan, an amended Forest Plan, a completed Coachella Valley Multispecies Habitat Conservation Plan, and natural resource management plans on Tribal lands. In addition, connectivity among all portions of habitat must be established and assured through land management commitments such that bighorn sheep are able to move freely throughout the Peninsular Ranges.
Delisting would result in loss ofprotection under the Endangered Species Act; therefore continued protection by other means must be assured. 66 Justification: This protection should include alternative regulatory mechanisms, land management commitments, or conservation programs that would provide the long-term protection needed for continued population viability.
Recovery of Peninsular bighorn sheep likely will take several decades or longer due to a low reproductive rate (e.g., only one offspring per female per year and reproduction starting usually at 2 years of age). The above criteria will be revised as necessary through a recovery plan amendment or revision if new information becomes available, or ifthese criteria no longer pass scientific muster or otherwise meet the conservation needs ofthis species based on the best available information.
C. RECOVERY STRATEGY
This recovery plan describes a strategy to recover and delist bighorn sheep in the Peninsular Ranges. The strategy consists oftaking necessary actions to: (1) improve population variables (reproduction, recruitment, survivorship), and (2) secure and effectively manage habitat, including linkages between ewe group home ranges. The recovery actions to implement this strategy are organized in the narrative outline below. This recovery strategy is a synthesis ofknowledge accumulated on bighorn sheep in desert environments and elsewhere in North America. Four biological principles ofbighorn biology are evident from past research and have been incorporated into management guidelines by various agencies (e.g., McQuivey 1978, Wilson et at. 1980, Smith and Krausman 1988, Bureau of Land Management 1996, New Mexico Department of Game and Fish 1995):
1. Bighorn sheep are wide-ranging animals that are spatially dependent on large tracts ofhabitat that provide a diversity ofresources needed to offset seasonal, annual, and longer term cycles ofenvironmental variability and scarcity;
2. Metapopulation structure requires habitat contiguity between/among constituent demes (ewe groups) to allow for long-term shifts in distribution and genetic interchange;
67 3. Bighorn sheep appear to lack natural or acquired resistance to some diseases and remain highly vulnerable to diseases introduced by domestic sheep; and
4. Behavioral responses to human-related activities can be variable among individuals and populations, which can adversely affect habitat use patterns and population persistence.
In the short term, acquisition and conservation ofthe relatively narrow band of habitat that still remains is crucial to attaining the population recovery and delisting objectives ofthis recovery plan. Given the: (1) inability ofbighorn sheep to use higher elevation habitats because of excessive shrub and tree cover, (2) incompatible land uses that have encroached into habitat along the lower elevational slopes ofthe Peninsular Ranges, and (3) pervasive influence ofhuman activities throughout bighorn habitat, the future ofbighorn sheep in the Peninsular Ranges will depend on rapid and adequate protection oflower elevational areas that provide critical resources, such as foraging, watering, lambing, and rearing habitats. Short-term management actions to increase population recruitment and adult survivorship are also necessary to effect population increase.
Past studies on bighorn sheep in desert and mountain environments have amassed a wealth ofapplicable knowledge that guides the management prescriptions ofthis recovery plan. Much ofthis work applies to bighorn sheep in general and, therefore, need not be reexamined through further research in the Peninsular Ranges. The monitoring and research tasks recommended in this recovery plan are intended to address the longer-term, more complex environmental relationships that have posedmanagement difficulties in the past. These tasks will require substantial investment by numerous partners ifthey are to be successfully accomplished. However, only through such a cooperative effort will it be likely that the knowledge requirements for effective management be met.
The success ofthis recovery plan will also depend on strong education and public awareness programs. A number ofrecovery actions outlined in this plan will directly affect the general public. Therefore, the general public needs information and outreach on proposed actions being taken, especially in localized areas of action. Programs that include comprehensive and accurate facts about the ecology 68 ofPeninsularbighorn sheep and the threats that face them, will be crucial to obtaining public support for conservation measures.
D. NARRATIVE OUTLINE FOR RECOVERY ACTIONS ADDRESSING
THREATS
Recovery actions are first described in general below, and then are identified as site-specific tasks, with reference to their appropriate recovery regions, in section ll.E. The following tasks consist ofinterim and long-term management goals and activities that range from single event actions or studies to continuous efforts extending across the entire recovery implementation time line. The task descriptions and the implementation schedule (Part III ofthis recovery plan) help frame the duration ofthe respective goals/actions and responsible entities for taking the lead or assisting others in implementation responsibilities.
1. PROMOTE POPULATION NCREASE AND PROTECT HABITAT
1.1 Protect, acquire, enhance, and restore habitat. The historic range of Peninsular bighom sheep has been adversely affected by urban development, agriculture, mining activities, and highways that have led to the destruction, modification, and fragmentation ofhabitat. Further development can be expected in the future. As pointed out in section I.D ofthis recovery plan, the viability and, therefore, the recovery of Peninsular bighom sheep are critically dependent on availability ofhabitat.
Consequently, an important part ofthis recovery effort is the protection and restoration ofremaining habitat essential to Peninsularbighorn sheep conservation.
1.1.1 Protect essential habitat. Essential habitat is that habitat believed necessary for recovery and should, therefore, be protected from further loss or degradation (Figures 2, 4-9). It is likely that the valley floor to the east and the north ofthe Peninsular Ranges (e.g., Coachella Valley, Imperial Valley) historically was used by bighorn sheep, for example during long-distance moves to and from other mountain ranges. Exposure to the hazards ofhigh density urban development, major freeways, fences, agriculture, and canals, now would be considered detrimental to bighorn sheep 69 recovery. Therefore, the vast majority ofthe valley floor to the east ofthe Peninsular Ranges is not considered essential habitat.
Consequently, “essential habitat” comprises those areas believed to be necessary for a self-sustaining bighorn population with a high probability for long-term survival (recovery) in the Peninsular Ranges ofthe United States. Essential habitat, therefore, consists ofthose physical and biological resources (space, food, water, cover) needed for: (1) normal behavior and protection from disturbance, and (2) individuaL/population growth and movement, including dispersal necessary to support a future population expansion to meet the recovery objective (delisting criteria of approximately 750 animals).
Much ofthe historical range ofthe sheep is needed to sustain the larger population levels necessary for recovery because:
a. Habitat may be colonized and inhabited by future ewe groups (Bleich et at. 1996), if, for instance, population spatial structure or environmental conditions change, orthe population grows as a result ofrecovery actions. The longtermpersistence ofa metapopulation depends on the number ofhabitat patches that are available for
colonization (Hanski 1989). An important phenomenon,
which is not intuitively obvious, is that destruction ofonly a fraction ofavailable habitat can drive a metapopulation to extinction by disrupting the balance between colonization and extinction rates (May 1991). Even locally abundant
species can sometimes be very close to extinction ifthe proportion ofsuitable habitat is near the extinction
threshold (Lande 1987).
b. Movement throughout the range is needed to sustain the metapopulation (Bleich et at. 1 990a).
70 c. The factors limiting the viability ofPeninsular bighorn sheep are not yet fully understood and, in general, bighorn sheep habitat use and selection need to be more thoroughly examined (McCarty and Bailey 1994). It is therefore
necessary to protect all remaining suitable habitat.
d. The habitat of Peninsular bighorn sheep is restricted to a narrow band along the base ofthe Peninsular Ranges, from the San Jacinto Mountains south to Mexico. In some areas, this band is less than 6 kilometers (4 miles) wide, so
essentiallyno true “core” habitat exists. Without
protection, connectivity could be severed at any point along this narrow band ofhabitat.
e. Habitat near the eastern edge ofthis band often coincides with alluvial fans and canyon washes, which provide
Peninsular bighorn sheep with important resources (refer to section I.B.1).
f. Unpredictable changes in global climate warrant retention offuture options in habitat conservation strategies.
The delineation ofessential habitat was based on habitat features known to be important to bighom sheep, rather than being based solely on current use patterns, because population numbers currently are low and use patterns are known only for a recent short time period. In addition, data collected on radio-collared animals (a sample ofthe entire population) represent a subset ofthe total area used. Methods used to delineate essential habitat are outlined in Appendix B. Compiling historical data and conducting recommended ecological research will further understanding of how bighorn sheep use available habitat. See Figures 2, 4-9 for maps ofessential habitat.
1.1.2. Secure habitat. Bighorn sheep habitat that is currently in private ownership should be secured (e.g., purchased or acquired by exchange on a voluntary basis) by State or Federal agencies and 75 managed compatibly through individual or regional habitat conservation plans or programs (e.g., Coachella Valley
Multispecies Habitat Conservation Plan, which will delineate these lands in its planning area), so that proper protection, management, and restoration measures can be implemented. Interagency conservation plans or other potential agreements made with local governments and private land owners should assure: (1) long-term protection oflands under city and countyjurisdiction, and (2) appropriate land uses adjoining bighom sheep habitat to prevent indirect effects from degrading habitat value. Limited funds for land acquisition will require prioritizing parcels; the value ofeach tract ofland should be evaluated according to the following criteria, although not necessarily in the order listed below:
a. At the level ofindividual ewe groups: how important is this land in supporting a ewe group in this area?
b. Does this land include particularly important resources (e.g., water sources, escape terrain, habitat for lambing, or important forage resources) forthe bighom sheep?
c. Does this land represent important habitat for movement and dispersal necessary for connectivity among ewe groups throughout the Peninsular Ranges?
d. Has this ewe group already experienced habitat loss? e. Would acquisition ofthis land reduce the cumulative
negative effects ofurban growth?
f. Is the habitat imminently threatened?
A list ofprioritized parcels should be prepared and updated annually by land management agencies (Bureau ofLand
Management, U.S. Forest Service, California Department ofFish and Game, Auza-Borrego Desert State Park, Coachella Valley Mountains Conservancy) to facilitate acquisition when
76 opportunities arise. Methods to facilitate public and private cooperation should be pursued, such as: (1) development ofland use planning guidelines (e.g. the Coachella Valley Multiple Species Habitat Conservation Plan, conservation guidelines in Appendix F), (2) development ofa public education and outreach program (refer to II.D.3), and (3) development ofsupporting maps that better identify and explain bighorn sheep ecology and conservation requirements.
1.1.3 Maintain, manage, and restore habitat qualit’,.’ and connectivity. As mentioned in section I.D. ofthis recovery plan, the recovery ofPeninsular bighorn sheep is dependent on the existence ofadequate habitat. Maintenance, management, and restoration ofessential habitat will allow for geographic expansion when population numbers increase. The ability ofbighorn sheep to move freely throughout all parts ofthe range is critical to recovery because it: (1) facilitates exchange ofgenes between ewe groups, (2) allows habitat colonization, and (3) allows selection of alternative habitat in response to predation pressure ortemporary changes in habitat quality (Schwartz et al. 1986, Bleich et al. 1996) or human-related disturbance. Shifts in habitat use occur more readily within existing ewe group home ranges but home range boundaries themselves also can change, albeit less frequently and more slowly over time. Therefore, in addition to protection of designated essential habitat, the following measures should be taken to restore and maintain habitat quality and to assure connectivity throughout the range:
1.1 .3.1 Remove exotic vegetation and preventfurther
invasion by exotic plants. This item refers primarily to control oftamansk (Tamarix species) along stream courses but also applies to other species such as fountain grass (Pennisetum setaceum) in select regions. Additional
funding should be secured to continue and expand current tamarisk removal programs throughout the Peninsular
Ranges. These programs should include, or be coordinated with, efforts to eradicate tamarisk outside ofbighorn sheep 77 habitat, as this will reduce future invasion into bighorn sheep habitat. Tamarisk eradication, such as at Thousand Palms Oasis, can result in immediate reappearance of
surface water (Barrows 1994), which can help expand
sheep distribution.
1.1.3.2 Reduce or eliminate wild horse populationsfrom
bighorn sheep habitat. Though burros and goats are
currently absent, they also should be eliminated ifthey become established. The reduction orremoval ofnonnative ungulates would: (1) eliminate potential sources of competition, (2) reduce potential destruction ofwater
sources and vegetation, and (3) benefit other riparian
dependant wildlife, such as least Bell’s vireo and
southwestern willow flycatcher. The involved State and
Federal agencies, along with the Agua Caliente Band of
Cahuilla Indians, should determine whether wild horse
management in Coyote Canyon (Anza-Borrego Desert State
Park) and Palm Canyon is consistent with bighorn recovery objectives in these areas. Any continuation of feral horse grazing should be contingent upon the demonstrated ability to implement an effective management and monitoring
program to ensure against: (1) the possibility of
competition with sheep for food and water, (2) trespass onto other land ownerships, and (3) risks to public safety.
1.1.3.3 Implement afire management plan that recognizes fire as a natural disturbance infire-adapted habitats ofthe Peninsular Ranges ecosystem and as a process that helps maintain bighorn sheep habitat. A wildland fire policy
should establish fire management areas for natural and
management ignited prescribed fires. Further research on the use offire as a management tool should help guide such a plan (Smith and Krausman 1988, Krausman et al. 1996;
78 and refer to section II.D.2.3). However, fire can represent a serious threat to bighorn habitat quality in Sonoran scrub plant communities, which unlike chaparral are not well
adapted to fire disturbance.
1.1.3.4 Maintain existing water sources and consider
providing additional sources on public lands ifwater is thought to be a limitingfactor in particular areas. Water development should be incorporated into research that
investigates the effect that the addition ofwater has on bighorn sheep and other species (refer to section II.D.2).
1.1.3.5 Maintain and re-establish connectivity throughout all habitat. Bamers to movement (roads, fences, increased use of off-road vehicle areas, renewed railroad activity) should be prevented. Potential bighorn sheep crossing
areas should be identified and bridged or tunneled to
attempt reestablishing connectivity. Typical culverts are not adequate because bighorn sheep are not known to move through dark tunnels. Existing roads appear to represent barriers between four current ewe groups (Rubin et al.
1998); solutions to promote connectivity should be
attempted. Another important recovery goal is to
reestablish connectivity to habitat south ofInterstate 8 and, ultimately, to Mexico. This task will require the
cooperation ofthe California Department of Transportation to incorporate bighorn sheep movement opportunities into their future construction plans. Coordination with Border Patrol and the Mexican government will be needed to
control human disturbance and the threat ofdisease
transmission from domestic sheep and goats while
reestablishing connectivity across the international border. 79 1.2 Reduce or eliminate direct and indirect human impacts. In addition to habitat loss, habitat modification and human activities often directly or indirectly affect Peninsular bighorn sheep habitat use (refer to sections I.B.5 and I..D.5). The following actions, which should all be accompanied by strong educational and public awareness programs (refer to section II.D.3), will reduce these impacts.
1.2.1 Reduce impactsfrom existing andfuture developments and projects. These recommended actions pertain to any project (residential, recreational, resort, commercial, agricultural, or mining) that has been constructed within bighorn sheep habitat, or any project adjacent to bighorn sheep habitat. Though habitat and opportunities for sheep movement throughout all suitable habitat should be maintained, habitat use along the immediate urban interface should not be encouraged because ofrisks associated with behavioral habituation.
1.2.1.1 Constructfences to exclude bighorn sheepfrom
urban areas where they have begun or may begin using
urban sources offood and water. Fences serve several
functions including: (1) separating bighorn sheep from
potential threats of urbanization (e.g., toxic plants,
parasites, accidents, vector-borne diseases, traffic,
herbicides, pesticides, behavioral habituation), (2)
controlling human and pet access to remaining bighorn
sheep habitat, (3) preventing bighorn sheep from becoming habituated to and dependent upon artificial sources offood and water, and (4) modifying habituated behaviors and
redirection into remaining native habitat. In the northern Santa Rosa Mountains, ongoing coordination with cities
and landowners on a regional fencing strategy will be
critical to the long-term health and maintenance ofthis ewe group. Retrofitting existing developments with fences
where sheep currently exploit urban food and water sources 80 is particularly important; cooperation by residential landowners will be critical to the success ofexcluding the northern Santa Rosa Mountains ewe group from urban
habitats. Along the remainder ofthe urban interface, where sheep have not yet shown indications ofhabituation to
human habitats, future behavioral habituation also may
occur. Although fencingmay be viewed as a last resort to other potential forms ofaversive conditioning, prudent
planning dictates that mitigation be required to offset the likelihood offuture adverse effects (behavioral habituation and increased mortality rates) when new projects are
approved along the urban interface. Though actual fence construction could be contingent upon future use by sheep and the ineffectiveness ofother potential deterrents, the wherewithal, responsibilities, and easements for fences should be determined and secured at the time of project approval. Fences should be 2.4 meters (8 feet) high, or functionally equivalent, and should not contain gaps in which bighorn sheep can be entangled. Gaps should be 11 centimeters (4.3 inches) orless. This fence design should only be used at the urban interface. Refer to section
II.D. 1.2.2 for guidelines for livestock fences within bighorn sheep habitat.
1.2.1.2 Avoid non-native vegetation along unfenced habitat interfuces where it may attract or concentrate bighorn
sheep. Along fenced sections ofthe urban interface,
ornamental and toxic plants should not extend over or
through fences where they may be accessible to browsing bighorn sheep.
1.2.1.3 Promote the use ofnative vegetation and limit the planting ofexotic species (including grass) in areas
accessible to bighorn sheep. A list oflocally native plants 81 should be provided to developers, landscapers, and
homeowners. On Bureau of Land Management lands,
especially livestock grazing allotments in and near bighorn sheep habitat, utilize only native vegetation in fire
rehabilitation and range improvement projects.
1.2.1.4 Prohibit the use ofany known toxic plants where they may be accessible to bighorn sheep orpotentially
invade bighorn sheep habitat. A list of known toxic plants should be provided to all developers, landscapers, and
homeowners.
1.2.1.5 Discourage the use ofplants known to invade and degrade bighorn sheep habitat (e.g., tamarisk, fountain grass).
1.2.1.6 Prohibit intentional enticement ofbighorn sheep ontoprivate property. This item includes, but is not
limited to, vegetation, mineral licks, or unfenced swimming pools, ponds, or fountains upon which bighorn sheep may become dependent for water.
1.2.1.7 In unfenced areas, monitorthe use ofpesticides, fungicides, herbicides, andfertilizers ifsheep are using urban landscapes. All products used should be warranted by the manufacturer to not be harmful to wildlife when
applied at the label rate, and no applications should exceed the label rate. Coordination with landowners and
homeowner groups is needed.
1.2.1.8 Regulate the diversion orprocurement of water,
whetherfor human use or irrigation, and whetherfrom
springs or aqu~fers, that would reduce natural water
sources used by bighorn sheep. Coordination with land
82 owners and the State Water Resources Control Board is needed to redress potential water rights conflicts. The Regional Water Quality Control Board’s Basin Plan should recognize bighorn sheep as a beneficial use for perennial and seasonal waters within essential habitat.
1.2.1.9 Prohibit the construction ofwater bodies in
developed areas adjoining sheep habitat that may promote the breeding ofmidges (Culicoides sp.) and
monitor/control vectors in existing problematicponds.
Water features should be designed to eliminate blue-tongue and other vector-borne diseases by providing deeper water (over 0.9 meters [3 feet]), steeperslopes (greater than 30 degrees), and if possible, rapidly fluctuating water levels (see Mullens 1989, Mullens and Rodriquez 1990).
Landowners and managers should coordinate with local
mosquito and vector control districts to ensure management ofexisting water bodies that harbor vector species.
1.2.1.10 Discourage the art~ficialfeeding of coyotes
because ofthepotentialfor increasingpredator abundance
and consequentpredation on bighorn sheep.
1.2.1.11 Establish a method and secure funding to
consistently monitor and enforce all actions listed under task 1.2.1.
1.2.2 Reduce or eliminate detrimental human activities within bighorn sheep habitat. A variety ofhuman activities can affect bighorn sheep (refer to section I.D). Bighorn sheep may react in two ways (Papouchis et al. 1999): (1) avoidance ofdisturbance or human encounters (potentially including habitat abandonment), and (2) habituation to sources of disturbance ifthey are sufficiently predictable. Behavioral habituation can include adjustments to 83 timing ofuse in certain areas, such as by avoiding the area until the disturbance is gone (Hamilton et al. 1982) or fleeing the disturbance and returning when the disturbance is absent.
Expansive urban development in and around bighorn sheep in desert habitats has occurred in three metropolitan areas to date-- Albuquerque, Tucson, and Coachella Valley—and in all instances, habitat abandonment and population decline has resulted (Gionfriddo and Krausman 1986; Krausman, in litt. 1998; Krausman et al. In prep.). Bighorn sheep have demonstrated greater resilience to human disturbance in more remote locales such as Alberta (MacArthur et al. 1982) and the Sierra Nevada (Hicks and Elder 1979), though bighorn also are known to avoid excessive human disturbance in areas well away from urban centers (Papouchis et al. 1999).
Given the potential behavioral vulnerabilities ofbighorn sheep to human disturbance (including dogs) and associated risks to the persistence ofcurrently depressed populations in the Coachella Valley, a biologically conservative management approach is appropriate in the Peninsular Ranges. The public should be educated regarding problems associated with human-sheep relationships, and encouraged to continue supporting conservation efforts (Smith and Krausman 1988). A trails management program is currently in place on Anza-Borrego Desert State Park and appears to be providing a level ofmanagement that is maintaining relatively stable population levels of bighorn sheep. The success of this program may be attributable to an intensive educational program, along with prohibitions against dogs (on trails) and other disruptive activities, and a strong management presence to ensure adequate compliance. In addition, the most heavily used areas typically are located in steep terrain that limits the number and location oftrails to relatively few narrow canyon bottoms. Sheep are better able to coexist with recreational use where human 84 disturbance typically occurs at elevations lower than where sheep spend most oftheir time (Hicks 1977).
The following section primarily focuses on the northern Coachella Valley though the principles pertain rangewide. The relative remoteness ofthe Anza-Borrego region renders comparisons with the heavily populated Coachella Valley difficult, but recreation activities could be viewed differently because they are part ofa cumulative set offactors affecting the sheep, some ofwhich (e.g., development-related pressures in sheep habitat) are more intense in the Coachella Valley. Though cause and effect relationships have not been established, the proportionally larger population declines in the northern Santa Rosa and San Jacinto Mountains than elsewhere may be related in part to the relatively higher levels of human disturbance associated with the largermetropolitan area.
Other contributing factors may include the more extensive and interconnected trail system that is not largely restricted to canyon bottoms. Most ofthe trails head upslope and intersect other trails at higher elevations, forming an extensive trail network throughout ewe group home ranges, including lambing, rearing, and watering habitat. The patchwork of differing land ownerships has contributed to management difficulties. The types oftrail use activities, as well as proliferation ofnew trails, also have gone largely unregulated. The Dunn Road, constructed illegally in the northern Santa Rosa Mountains in the I 970s, also is considered a trail since much ofthe use is by recreational pedestrians and bicycles and vehicular access is restricted. Travel in washes by vehicles and on foot also should be considered trail use.
The Agua Caliente Band ofCahuilla Indians currently is preparing a wildlife habitat management plan for the reservation, including a trails management program, which should be coordinated with the larger planning effort to ensure attainment ofregional objectives.
The Tribe recently banned dog use on its trails system, and will 85 coordinate its efforts with other agencies when a draft plan is complete.
Research should focus on how different kinds and levels of disturbance affect bighorn behavior and habitat use patterns. The prevailing lack ofbaseline data on location, types, and extent of trail use must be overcome as a prerequisite to studying and better understanding these effects.
1.2.2.1 Develop and implement a trails management
program with affected landmanagement agencies,
scientWc organizations, and user groups. A trails program in the San Jacinto and Santa Rosa Mountains necessarily will require interagency cooperation, with specific
responsibilities and levels offunding identified. The cities and primary land management agencies, with the Bureau of Land Management in a leadership role, should coordinate with user groups in developing a plan with the Fish and Wildlife Service and the Department ofFish and Game so
that it can be effectively implemented on a regional basis.
Regular interagency meetings should be scheduled to
ensure effective coordination and implementation. The
program should consist ofthe following components:
a. Public education. Preparation of a public education and outreach program is needed so that trail users better
appreciate and understand bighorn sheep and other
biological values associated with the Peninsular Ranges.
Also see Section II.D.3. Most members ofthe public likely will voluntarily refrain from recreating in sensitive habitats during critical seasons ifthey understand the effects of human related disturbance on bighorn sheep. Nonetheless, monitoring and enforcement will be necessary to provide effective management.
86 b. Prohibition ofdogs in bighorn sheep habitat. Dogs should remain in developed or designated areas
(campgrounds, picnic areas, on paved roads, etc.) under restraint and prevented from roaming into bighorn sheep habitat.
c. Lambing and rearing habitat. Seasonal restrictions are needed on selected trails that bisect lambing habitat. In this Recovery Plan, the lambing season is defined as January 1 to June 30, and lambing and rearing habitat is defined as those areas in which ewes and lambs are observed during this period. These definitions were chosen to provide
protection for the majority oflambs during the first 3
months oflife and to allow ewes undisturbed access to
lambing areas prior to the peak parturition months
(February through April). Trails that are currently known to result in disturbance to lambing and rearing habitat are listed in Table 10.
d. Water sources. Seasonal restrictions or trail relocations may be appropriate for selected trails that lead to water sources. Trail use should be avoided near critical summer water sources from June 1 through September 30, and other times, as well, if water is scarce. Trail use is prohibited by regulation [see California Government Code, Title 14,
Section 630(b)(l l)(A) and (30)(A)] at Magnesia Springs and Carrizo Canyon Ecological Reserves. Trailsthat are
currently known to conflict with the summer water
requirements are listed in Table 10.
e. Trail management. Trails that conflict with lambing, rearing, and water requirements should be addressed
through management tools, such as seasonal restrictions or 87 Table 10. Trails and areas with potential conflicts that should be addressed in an interagency trails management plan.*
Trail
Conflicts with
Lambing from
January 1
through June
30 Conflicts with
Water stress
from June 1
though
September 30
Comment
N. Lykken trail X X
Skyline trail X
Museum trail (Palm
Springs)
X X Applies above picnic
table at Desert Rider’s
Park.
South Lykken trail X
Picnic table trail
(south ofTahquitz
Canyon)
X Applies above picnic
table.
Tahguitz Canyon X X
Dunn Road X X
Murray Hill trail
complex
X X
Cathedral Canyon
trail
X X
Mirage trail (Bump
and Grind)
X Applies above the flat
overlook
Art Smith, Schey,
and connecting trails
X X
Carrizo Canyon trail X X
Bear Creek Canyon
trail
X X
Boo Hofftrail X X
Guadalupe trail X X
Morrow trail X X
This list of trails should be updated annually through the interagency trails program, based on the most current information.
relocations. Permanent closures may be necessary where
relocation is not possible and seasonal restrictions cannot be effectively monitored or enforced. Trails should be used as a tool to focus human activity away from areas of
concern. New trails in bighorn habitat should be avoided, 88 except in select areas along the urban edge, where they could provide two benefits—alleviate pressure on trails that intrude deeper into sheep habitat, and provide a disturbance barrier to discourage potential sheep attraction to urban sources offood and water. Any new trails should minimize adverse impacts to alluvial fans, canyon bottoms, and other areas that may provide essential seasonal forage conditions while still accomplishing the objective ofrouting use away from the more sensitive areas.
f. Monitoring, enforcement, and research. A management
presence by uniformed personnel should be deployed
during peak use periods to educate the public, monitor
compliance with trails rules, and enforce rules against any violations. Monitoring of bighom sheep habitat use
patterns should be designed to detect behavioral responses that can adaptively feedback into revised management
measures. Experimental research to further our
understanding of human/sheep interactions also should be conducted. See Section II.D.2.7.
1.2.2.2 Manage activities within bighorn sheep habitat that fragment or interfere with bighorn sheep resource use
patterns or other behaviors to reduce or eliminate adverse effects. This task includes but is not limited to road traffic, trail use, off-trail activity, and aerial activities, such as hang gliders and helicopters, which may have a negative effect on bighorn sheep. For example, the U.S. Navy currently
implements a 457-meter (1,500-foot) minimum ceiling for military flights above bighorn sheep habitat in the north end of the Anza-Borrego Desert State Park and a 60-meter
(200-foot) minimum ceiling in the remainder ofthe park.
The 457-meter (1,500-foot) minimum ceiling should apply to all flights over any bighorn sheep habitat.
89 1.2.2.3 Manage livestock grazing to reduce competitionfor scarce resources and to minimize the potential for disease transmission. Existing (Canebrake, with lambing and
watering habitat) and currently inactive (Vallecito and Oriflamme) allotments should be evaluated and modified or closed, if necessary to achieve recovery objectives. The McCain Valley allotment should also be assessed to ensure compatibility with adjoining sheep habitat. If the closure of one or more livestock grazing allotments is determined
necessary to remove the impediments to recovery described above in Section I.B.6 concerning competition or in Section I.B.7 concerning disease transmission, the Bureau of Land Management should develop proposed land use plan
amendments to effect such closure(s). Until decisions are made regarding potential allotment modifications or
closures, the current allotment boundaries should be fenced according to Bureau of Land Management fence
specifications for cattle and bighorn sheep (Bureau of Land Management 1989). If any allotments, or portions thereof, that overlap with bighorn sheep habitat are subsequently closed through land use plan amendments, the fences
around such allotments should be removed following the
cessation of livestock grazing.
1.2.2.4 Prohibit the grazing ofdomestic sheep within 14.5 kilometers (9 miles,) ofbighorn sheep habitat to prevent disease transmission.
1.2.2.5 Require all cattle grazing allotments adjacent to bighorn sheep habitat to befenced where cattle straying into bighorn sheep habitat degradesforage or water
resources. Fences should comply with Bureau of Land
Management specifications for cattle fences in bighom
sheep habitat (Bureau ofLand Management 1989).
90 1.2.2.6 Prohibit the use ofgoats as pack animals in
bighorn sheep habitat. Goats are known to transmit
diseases to bighorn sheep. Other pack animals, such as
llamas and camels, should be assessed for potential disease risk and prohibited if a risk exists.
1.2.2.7 Establish a method and secure funding to
consistently monitor and enforce all actions listed under task 1.2.2.
1.3 Reduce mortality rates. Low survivorship of adult Peninsular bighorn sheep currently threatens population viability (refer to section I.B.4).
Measures to improve survivorship are fundamental to this recovery effort.
1.3.1 Reduce mortality due to unnatural causes. A number of mortalities of Peninsular bighorn sheep have been caused directly or indirectly by human activities. Some mortality factors, such as poisoning by plants and vehicular collisions, are a byproduct of urban developments built within or adjoining bighorn sheep habitat, or human presence in bighorn sheep habitat (refer to section II.D.1.2). Additional causes ofmortality should be reduced with the following actions:
1.3.1.1 Prohibitfences in which bighorn sheep may
become entangled or strangled, or that interrupt habitat connectivity or block movement ofbighorn sheep within
remaining habitat. At the urban interface, fences should not contain gaps larger than 11 centimeters (4.3 inches) (refer to section II.D. 1.2.1 .1). All other fences should comply with Bureau ofLand Management specifications
for fences within bighorn sheep habitat (Bureau of Land Management 1989).
91 1.3.1.2 Post all movement areas or areas of bighorn sheep concentration near highways with bighorn sheep crossing signs to warn motorists. Post informational warning signs at the entrance to blind curves. Solutions need to be
identified and implemented to reduce the extent of
vehicular related mortality along problematic road
segments such as Highway 74 above Palm Desert, S-22
west ofBorrego Springs, and Highway 78 south ofBorrego
Springs. If monitoring indicates that more effective
warning systems are needed, flashing yellow lights and
intensified signage, etc., should be phased in. Coordination with Caltrans and the counties will be required.
1.3.2 Reduce mortality due to natural causes. Predation by mountain lions represents a threat to the viability of bighorn sheep in the Peninsular Ranges (refer to sections I.B.4, I.B.5, and I.D).
Selective removal of lions may therefore be necessary to facilitate recovery. The goals of reducing predation pressure are to protect small subpopulations from extinction and to stimulate population increases. The following guidelines for implementing predator management were designed to facilitate recovery ofPeninsular bighorn sheep in accordance with the recovery criteria established in this recovery plan. The first level of predator control is essentially an emergency action to protect small subpopulations from extinction. This level of management was identified to help the population meet downlisting criterion #1 (the presence of25 ewes in each ofthe 9 recovery regions), while the second level of lion control will be conducted, if necessary, to facilitate achievement of delisting criterion #2.
Removal of mountain lions should be selective and only target individual lions known to be, or suspected of, preying on bighorn sheep. Predator management should not be implemented as a mitigation measure for habitat loss because it is a temporary 92 remedy for a potential short-term problem and does not offset the permanent impact of habitat loss. Lion removal must be
accompanied by careful monitoring to determine if predator control achieves the desired protection ofbighorn sheep (refer to section II.D.2.5). The effects ofpredator management should be
incorporated into ecosystem level research on the predator/prey relationships among bighorn sheep, lions, and deer (refer to section ll.D.2.3). The criteria for implementing predator control may need to be changed as knowledge regarding this predator-prey relationship and the balance between predation and population viability are better understood (refer to section II.D.2). The ultimate goal is to restore an ecological system that includes viable predator/prey systems in which no predator removal is necessary.
Predator RemovalLevel I. Predator removal should be
implemented if there are fewer than 15 adult female bighorn sheep in a given recovery region (refer to the 9 regions in section II.B) and predation is a known mortality factor. In this circumstance, protection of individual bighorn sheep is critical for ensuring bighorn population survival and persistence in the recovery region.
Lion removal should be implemented solely in the recovery region of concern, and continue until population growth is reestablished to a trajectory expected to achieve the downlisting threshold of25 adult ewes in the region.
Predator Removal Level 2. Predator removal may also be
implemented if there are greater than 25 ewes in each of the 9 recoveryregions, to further facilitate the long-term goals of population recovery. Lion removal should only occur if lion predation is the primary cause of mortality and low survivorship is determined to be limiting population recovery. Careful
monitoring, habitat evaluation, and possibly computer simulations should be used to determine if, when, and where predator removal should occur. Predator removal should be discontinued if available 93 evidence indicates that: (1) lion predation no longer limits bighorn sheep population growth, and (2) continued removal would no longer result in a population expansion within the recovery region necessary for the overall recovery ofthe metapopulation. 1 .4 Develop a long-term strategy and maintain the current capability for captive breeding, reintroduction, and augmentation programs. A small captive breeding herd (14 animals in 1998) exists at the Bighorn Institute (refer to sections I.C. 1 and I.E.3) and is managed according to the guidelines outlined in Appendix C. This herd was established in 1984 to facilitate the study oflow lamb survival. Animals born or rehabilitated at the facility have been released into the northern Santa Rosa Mountains (n equals 74) orthe San Jacinto Mountains (n equals 3), typically as small groups ofyearlings, since 1985 (Ostermann et al. in press).
The Recovery Team should develop a long-term strategy that identifies the process and circumstances under which captive breeding, reintroductions, and augmentations may be appropriate and carried out, including the potential introduction of animals from adjoining metapopulations.
Reintroduction and augmentation are potential tools to (re)establish ewe groups and restore connectivity among neighboring groups. Augmentation ofdwindling groups may serve as a “rescue effect” (Brown and KodricBrown 1977), thereby reducing the risks associated with naturally occurring random variations in populations. Augmentation may also play an important role in the conservation of bighorn sheep because habitat use patterns are learned from experienced animals. Once use of a particular area is discontinued by females, it maybe more difficult for inexperienced sheep to become established in this area (refer to section I.B.2). Finally, augmentation can be of value to address genetic concerns.
Reintroduction and augmentation programs are recognized conservation tools and have been used extensively to manage bighorn sheep populations (Bleich et al. 1990b, Ramey 1993); however, they come with a set of potential problems (Campbell 1980, Kleiman 1989, National Research 94 Council 1995). Reintroductions and augmentations also must be coordinated with other recovery efforts. That is, they are meant to play supportive roles to other measures that protect Peninsular bighorn sheep and their habitat, they should be supported through public relations and education programs (Kleiman 1989, National Research Council 1995), and they should be preceded or accompanied by other conservation measures to restore population viability (Stanley Price 1991). Finally, decisions regarding reintroductions and augmentation need to consider the genetic, disease, and population structure consequences of such actions.
Although there are advantages to using free-ranging animals in augmentations and reintroductions, captive breeding also can provide animals for releases. In addition, captive propagation can be used as a recovery tool to: 1) conduct recovery related research, 2) maintain genetic diversity or genetic lineages, and 3) maintain refugial populations.
The long-term strategy should specify the goals of reintroduction and augmentation activities, and describe the steps that will be followed to reach these goals. The strategy should be consistent with the guidelines adopted by the Conservation Breeding Specialist and the Reintroduction Specialist Groups of the Species Survival Commission of the International Union for the Conservation of Nature and Natural Resources, The World Conservation Union, and those of the American Zoo and Aquarium Association’s Caprinae Taxon Advisory Group. Appendix C outlines additional considerations and a protocol for captive breeding and release of captive animals.
2. INITIATE OR CONTINUE RESEARCH PROGRAMS NECESSARY TO
MONITOR AND GUIDE RECOVERY EFFORTS.
This section focuses on research topics with management applicability needed for recovery. The approach is to design management actions so that: (1) results can be measured, (2) efficacy can be evaluated as testable hypotheses, and (3) alternative or refined actions can be formulated and tested again (adaptive 95 management, as defined by Holling 1978). However, adoption of this approach for bighorn sheep recovery likely will be more problematic than for most species.
Many results will not become apparent for many years because sheep are longlived and behavior can be slow to change and difficult to document.
2.1 Monitor population status. The status, population dynamics, and population trends of Peninsular bighorn sheep should be monitored so that the success ofthis recovery effort can be evaluated. Consistent long-term monitoring will allow use of adaptive management approaches that would increase the effectiveness of recovery efforts. Continued monitoring is also a necessary component offuture research. Population monitoring (abundance, distribution, recruitment) should be coordinated with other research (e.g., survivorship, habitat selection) to maximize cost efficiency and the data collected per animal collared, as well as to minimize handling and marking animals.
2.1.1 Monitor abundance. All bighorn sheep habitat in the Peninsular Ranges should be surveyed by helicopter at least every other year to generate population estimates. Initially, this will require that a known number of radio-collared animals are distributed throughout the range so that mark-recapture abundance estimations can be generated. The number of collared animals should be sufficient to achieve an accuracy of plus or minus 25 percent with a probability of 0.05, following the methods described in Krebs (1989) and Robson and Regier (1964), or approximately 30 percent of the estimated ewe population should be radiocollared. However, a “sightability” estimate may be generated after additional surveys are conducted, thereby eliminating the need to maintain this percentage of radio-collared animals. This approach would be especially beneficial if/when population numbers become large. Where ewe group delineations are known, estimates of abundance should be generated for individual ewe groups as well as for the entire range. Annual waterhole counts should be continued in Anza-Borrego Desert State Park and 96 perhaps reinitiated in the Santa Rosa and San Jacinto Mountains.
Data from waterhole counts can be used to potentially provide important information about population characteristics (e.g., lamb to ewe ratios and/or ram to ewe ratios) and to index abundance.
Continuation of waterhole counts concurrent with helicopter surveys (for 5 to 10 years) may reveal a relationship between abundance indices and population estimates. This relationship may allow biologists to use historical waterhole count data (collected over 28 years) to estimate historical abundance patterns. Aerial surveys and waterhole counts should be conducted according to the protocols in Appendix E.
2.1.2 Monitor distribution. Further data should be collected on distribution of Peninsular bighorn sheep. Ground surveys for bighorn sign should supplement aerial surveys and telemetry studies to further define habitat use patterns. Questions regarding distribution include but are not limited to: (I) how many ewe groups are currently found in the Santa Rosa Mountains and Vallecito Mountains, (2) if augmentation or reintroductions are necessary, where should these occur, and (3) how do the number and distribution of ewe groups change over time as conditions or population numbers change?
Abundance monitoring (see task 2.2.1.1) will initially require that radio-collared animals be distributed throughout the range. The location ofeach animal should be obtained via visual location or fixed wing aircraft telemetry surveys, at least biweekly. In addition, the locations of all observed animals without collars should be recorded during biennial helicopter surveys.
2.1.3 Monitor recruitment. Reproductive success, which includes lamb production and recruitment, should be monitored on a yearly basis in all ewe groups. Tracking and observing individually marked ewes generates the most useful data because lamb survival 97 to specific ages can be determined, and the reproductive success of individual ewes can be tracked. Alternatively, the lamb to ewe ratio ofeach ewe group could be measured at various times ofthe year (e.g., during waterhole counts or helicopter surveys). Ground surveys should be organized if feasible. If lamb mortality is found to be high in specific ewe groups, the radio-collaring oflambs may be necessary to identify causes ofmortality. Recruitment should be compared among ewe groups, years, and management strategies.
2.1.4 Monitorsurvivorship and cause-speqfic mortality. Adult survivorship should be monitored annually in all ewe groups. This monitoring would require that radio-collared rams and ewes are present in each area and telemetry signals are monitored on a regular (at least biweekly) basis. It is important that all mortalities be investigated promptly so that cause specific mortality rates can be calculated. A standardized mortality site investigation protocol should be established. Whenever possible, fresh carcasses or tissue samples should be collected and submitted to the California Veterinary Diagnostic Laboratory for pathological examination.
Survivorship and cause-specific mortality should be compared among ewe groups, years, and management strategies.
2.2 Developpopulation models. Although a substantial amount of knowledge exists regarding bighorn sheep in the Peninsular Ranges and elsewhere, there is a need for further research regarding their ecology and the factors that influence population viability. Incorporating existing knowledge into models may provide insight into the ecology of Peninsular bighorn sheep and the system to which they belong. Rather than using the absolute results of models to make policy or management decisions, however, the relative outcomes of alternative models should be used to guide management decisions (Beissinger and Westphal 1998) and future research efforts. Models uncover knowledge gaps and thereby guide future research and generate hypotheses that would not otherwise be addressed. The recovery of Peninsular bighom sheep will benefit from 98 answers to a number of questions. These questions include, but are not limited to: (1) how do the number ofewe groups, size ofgroups, and level of connectivity among groups affect persistence probabilities ofthe metapopulation, and (2) what are the relative long-term effects of various levels ofadult and juvenile mortality on population viability? Although the above questions pertain primarily to viability from the perspective ofpopulation numbers, future models could also incorporate data to assess genetic diversity. Additional models should explore habitat selection versus availability.
2.3 Research the relationships between bighorn sheep, mountain lions, mule deer, and habitat. In the Peninsular Ranges, mountain lions and mule deer are found within bighorn sheep habitat, and are important variables affecting this ecosystem (Hayes et al. 2000). To increase our knowledge ofthe ecology of Peninsular bighorn sheep, a better understanding of predation, interspecies relationships, and habitat selection is needed. Information regarding the relationships will be valuable in making future management decisions to facilitate population recovery, including decisions regarding habitat management, reduction of mortality due to predation, and whether other species should be managed to achieve recovery of Peninsular bighorn sheep. Pertinent research goals include, but are not limited to:
a. Estimate the number ofmountain lions preying on bighorn sheep. b. Examine movement patterns of mountain lions within and adjacent to bighorn sheep habitat, and attempt to identify influencing factors.
c. Examine the spatial and temporal patterns of mountain lion predation on bighorn sheep and mule deer in relation to the distribution of both prey species, season, climate patterns, and habitat characteristics.
99 d. Describe the habitat use patterns and distribution ofmule deer in and near bighorn habitat.
Answering some of these questions requires long-term study (perhaps 10 or more years). Such a study would require extensive monitoring and habitat study of all three species. Experimental approaches involving removal of mountain lions and manipulation ofmule deer populations and habitat should be designed to test the outcome in terms of predation rates on bighorn sheep.
2.4 Investigate the relationships between bighorn sheep and coyotes and bobcats. Although mountain lions appear to be the primary predator of adult bighorn sheep, predation by coyotes or bobcats also may affect the viability of bighorn sheep populations, primarily through predation on lambs. Factors that put bighorn sheep at risk from these predators should be investigated. Studies should examine what impact expanding urbanization, the use of urban environments, and artificial water sources may have on the relationship between these three species.
2.5 Investigate the efficacy oftemporary suppression of natural predation. Mountain lion predation currently is the primary cause ofdeath ofadult radio-collared bighorn sheep in most ewe groups in the Peninsular Ranges, and threatens population viability (refer to sections I.B.4 and I.B.5). Any measures to intervene should be designed so that the effectiveness ofvarious techniques can be evaluated. The presence of lions and other predators in the area ofinterest should be monitored as part ofthe investigation. Because mortality and mountain lion predation rates fluctuate across years (refer to sections I.B.4 and 1.B.5), it will be important to evaluate the effectiveness of these actions over multiple years.
2.6 Research habitat use/selection and dispersal behavior. Habitat use by sheep has been studied by a number ofresearchers (refer to section I.B.l), but many questions remain. In the Peninsular Ranges, as in many other 100
bighorn sheep habitats, the specific factors that limit populations are not well understood. A better understanding ofhabitat use patterns and factors underlying habitat selection will aid our understanding ofresource requirements and promote informed management decisions. Selected topics for future research include: (1) water and nutritional requirements and how these factors affect population characteristics and distribution, (2) how and where habitat use and movement are influenced by disturbance barriers and sources of fragmentation, (3) habitat use and how it relates to predator evasion, (4) how habitat quality influences dispersal behavior, and (5) how human disturbance affects habitat use patterns.
Documentation of habitat use for essential life functions,such as lambing, rutting, summer water stress, and dispersal, is needed. A detailed vegetation map with sources of fragmentation for the entire Peninsular Ranges would facilitate analyses ofthese variables on habitat use patterns.
A number of questions exist regarding dispersal behavior. For example, how often do ewes move between groups? Although preliminary data suggest it occurs at a low rate, long-term monitoring (two or more bighorn sheep generations) may be necessary to more accurately estimate the frequency of such moves. Other questions include, but are not limited to:
(1) what conditions (population density, forage quality, time ofyear) are associated with movement ofanimals between ewe groups; (2) what habitat features are associated with movement paths; (3) how does range expansion occur; and (4) how far (and among how many ewe groups) do rams typically move? The frequency and duration ofmonitoring will depend on the specific research questions. For example, long-term studies are needed to document dispersal behavior, while frequent or nearly continuous monitoring maybe necessary for studying habitat selection and use patterns (Laundre et al. 1987). The use of Global Positioning System collars may provide a valuable tool in such studies.
2.7 Evaluate the effect of human activities on bighorn sheep. Given the history of bighorn sheep population declines and extirpations in other areas near urban centers, information is needed on how to manage 101
recreational activity in a manner that does not interfere with bighorn habitat use. Because knowledge ofthe location and extent of human activity is a prerequisite to conducting research and making informed management decisions, responsible land management agencies should place a high priority on obtaining this information. A variety ofstudy designs may be appropriate, such as: (1) experimentally prescribing different management techniques and measuring results, (2) measuring physiological changes in individuals in response to different disturbance regimens, (3) determining the effects ofhuman activities on bighorn population characteristics (e.g., reproduction and recruitment rates), and (4) determining the effects ofhuman activity on bighorn behavioral patterns or activity cycles. It is critical that studies seeking to detect the effects of human disturbance have sufficient sample sizes and statistical power to avoid type II statistical errors (accepting a false null hypothesis).
2.8 Research disease and preventive measures. There is a need to provide ongoing screening forpathogens and exposure to infectious diseases to detect and mitigate emerging epizootics. Although infectious diseases do not currently appear to play an important role in population dynamics of bighorn sheep in most of the Peninsular Ranges, it will be important to continue monitoring the presence and impact ofinfectious diseases in ewe groups because outbreaks could occur at any time. Since it will be essential to radio-collar animals to monitor ewe groups, biological samples should be collected at the time ofcapture and tested for presence of infectious disease. In particular, whole blood and serum should be analyzed for the presence of specific pathogens and antibodies to those pathogens. A standardized sampling protocol should be developed and the laboratories used by researchers should be identified in all reports so that testing can also be standardized. When feasible, fresh carcasses should be taken immediately to the California Veterinary Diagnostic Laboratory in San Bernardino for necropsy. A standardized necropsy protocol should be developed, and necropsy reports made available to all agencies and researchers.
102
At this time, preventive measures such as vaccination or anthelmintic treatments do not appear to be warranted in any ofthe ewe groups with the exception ofthe northern Santa Rosa Mountains ewe group. Nematode parasites have been documented in this group and nematode treatment may be appropriate. Treatment schemes should be designed so that the effectiveness of each treatment can be evaluated (control animals or groups should be used). Infectious disease data should be re-evaluated periodically or continuously, and recommendations regarding treatment and preventive strategies based on research findings.
Pathogen monitoring should be extended to cattle and mule deer in the Peninsular Ranges. Other ungulates may serve as reservoirs for cross transmission of bluetongue to bighorn sheep.
2.9 Research genetics of bighorn sheep in the Peninsular Ranges.
Genetic issues should be considered and re-evaluated during the recovery process, especially as new methods become available. Samples should be used in association with those already collected to more clearly delineate population structure, to estimate gene flow, to identify the most appropriate source stock (free ranging and captive) for translocation, to assess the risk ofinbreeding and outbreeding depression, to test ifthere has been a recent population bottleneck within a subpopulation, and to monitor loss of variation due to changes in breeding structure. Research directed towards the estimation ofthe effective population size (N) should e
be a priority, and genetic variability should be directly monitored (Lande and Barrowclough 1987). In addition, analyses ofsamples collected from bighorn sheep within and outside of the Peninsular Ranges would be useful to better estimate the phylogeographic structure of desert bighorn sheep and to further identify management units. DNA samples should be collected from every animal captured in the Peninsular Ranges and from adjacent populations, using a standardized sampling protocol. A DNA bank has been established at the University ofCalifornia at Davis that consists of over 700 samples from bighorn sheep in the Southwest, including over 100 samples from the Peninsular Ranges. Given recent and 103
anticipated technological advancements, collection and long-term storage of germinal and somatic cells from captured animals should be initiated for future use.
3. DEVELOP AND IMPLEMENT EDUCATION AND PUBLIC AWARENESS PROGRAMS.
Conservation efforts have a higher chance ofsuccess if they are supported by the local community. A number ofrecovery actions outlined in this recovery plan will directly affect the general public. It is therefore imperative that strong public education and awareness programs be implemented. The public needs to be informed ofthe reasons why specific recovery actions are being taken. This task will require an education program on the ecology ofPeninsular bighorn sheep, what threats this species is currently facing, and how recovery actions will reduce these threats. Coordination with the public and interest groups will be particularly important for controversial issues, such as trails and predator management. This knowledge should translate into a respect and concern forthis species, leading to support for conservation measures.
Several programs and sources ofinformation pertaining specifically to Peninsular bighorn sheep already exist. Interpretive displays and materials are found at the Visitor Center in Anza-Borrego Desert State Park, the Bureau of Land Management Visitor Center in Palm Desert, Bighorn Institute, Living Desert in Palm Desert, and Palm Springs Desert Museum. In addition, local interest groups have hosted guest talks by biologists studying bighorn sheep. These programs should be continued and additional programs established, such as information provided to the public through the tourist industry and ecotourism operators. The effectiveness ofeducational programs would be increased if a higher degree of coordination existed among individual programs and other recovery activities.
This coordination would not only allow each program to present the most accurate and updated information, but would also let the general public see that the recovery ofPeninsular bighorn sheep is a collaborative effort supported by multiple agencies, organizations, and individuals. Specific recovery actions are:
104
3.1 Distribute information related to recovery efforts. Updated and accurate information should be available to interested individuals, groups, or local governments. This material should be provided by the key agencies involved in the recovery effort and should include information on the ecology ofPeninsular bighorn sheep, current threats to population viability, and explain recovery actions. Information dissemination should coordinate with the Coachella Valley Multiple Species Habitat Conservation Plan.
The need for specific recovery actions should be explained to the general public. For example, home owners, land managers, and developers should be provided with information that explains: (1) why restrictions on toxic plants, fences, and pesticides are needed, and (2) why artificial feeding of coyotes could adversely affect bighorn sheep. Recreation groups should be provided with information that explains why certain trail closures are necessary. Interpretive signs should be posted at all trailheads that enter bighorn sheep habitat. Trained docents could be present at popular trailheads during high trail usage periods and during periods oftrail closures to provide additional information and answer questions.
3.2 Continue, update, and coordinate existing education programs.
Existing programs should be expanded and regularly updated to provide an accurate view of our current knowledge regarding Peninsular bighorn sheep. Dynamic displays that feature up-to-date population status and monitoring activities, current research projects, and conservation activities likely will be most effective. Each program should highlight not only how its agency’s or organization’s activities contribute to the recovery of Peninsular bighorn sheep, but how these activities complement those of other agencies/organizations. Au annual meeting of government officials including the Fish and Wildlife Service, the Bureau of Land Management, California Department ofFish and Game, California Department ofParks and Recreation, U.S. Forest Service, researchers from the University of California at Davis, Bighorn Institute, and others, as appropriate (e.g. educational facility representatives or public relations directors), should be 105
held to facilitate the exchange ofinformation and ideas for improving and updating education programs.
3.3 Develop additional educationalprograms. An educational program targeting local schools should be developed. This program might include a teaching packet that school teachers can use to introduce their students to Peninsular bighorn sheep and the desert ecosystem in general. Classroom activities could be combined with visits from biologists ortours of bighorn sheep habitat, possibly in conjunction with existing programs (e.g., at Auza-Borrego Desert State Park and The Living Desert). Current conservation issues, population monitoring, and research projects could be incorporated into this type ofprogram, possibly through the use of informative videos or web sites. Cunningham (1993) outlined the use of such an interactive program in Arizona.
The feasibility ofadditional educational programs should be investigated.
Possible sites/organizers are the Zoological Society of San Diego, the Los Angeles Zoo, and museums within Riverside and San Diego Counties.
Additional goals of existing and newly developed programs should be to:
a. Reach people who would not typically be exposed to traditional programs (i.e., individuals who might not frequent visitor centers or who do not have school-aged children). This goal might be accomplished by promoting informative presentations at senior citizen centers, home owner group meetings, tourist centers, or golf clubs. In addition, local and national television programs featuring the Peninsular bighorn sheep should be developed, and press releases should be encouraged.
b. Stress an ecosystem approach in which habitat protection is an integral part ofthe recovery ofPeninsular bighorn sheep. 106
c. Encourage the public to take part in conservation activities. A prime example is 28 years of waterhole count data that have been collected by volunteer counters in Anza-Borrego Desert State Park.
Habitat restoration, such as tamarisk removal or water
development also represent ideal volunteer projects. An observation logbook might be established at visitor centers to allow visitors to record bighorn sheep and otherspecies they observed. d. Conduct public attitude assessmentsto determine the effectiveness ofspecific programs and guide future activities.
3.4 Distribute a protocol to select law enforcement, public health, and safety offcialsfor the humane treatment ofinjured bighorn sheep. Injured bighorn sheep are sometimes found by motorists, pedestrians, or hikers who then report the situation to public officials in a variety of agencies.
Personnel ofthese agencies often are not knowledgeable about medical or humane treatment procedures for injured animals. A protocol needs to be developed and distributed to city, county, State, and Federal agencies that are likely to receive reports ofinjured animals that provides information on appropriate contacts who are qualified to diagnose and treat injured animals. Information from such cases should be collected and maintained by one agency so that a complete data base is available for researchers and managers.
E. SITE SPECIFIC RECOVERY TASKS.
In this section, the recovery actions described in section II.D are further identified as site specific recovery tasks. They are matched with the nine recovery regions listed under the recovery criteria (Table 11). Site specific tasks for each ofthese areas are indicated in Table 12.
107
Table 11. Recovery criteria regions.
RECOVERY REGIONS
1. San Jacinto Mountains
2. SantaRosa Mountains--North of
State Highway 74
3. Santa Rosa Mountains--South of Highway 74
through Martinez Canyon
4. Santa Rosa Mountains--South of Martinez
Canyon to slopes west ofVillage Peak
5. Coyote Canyon--east and west sides
6. North San Ysidro Mountains-- Henderson
Canyon to CountyRoad S-22
7. South San Ysidro Mountains-- County Road S-22
to State Highway 78
8. Vallecito Mountains/Fish CreekMountains
9. Carrizo Canyon/Tierra Blanca
Mountains/Coyote Mountains A/south ofInterstate 8
108
Table 12. Site specific tasks recommended for each recovery region. Refer to the narrative outline (section II.D) for a complete description of recovery actions.
Recovery Action
(abbreviated)
Recovery Region
SRN74SY-S VM/
EC
SJ
——
x x
SRS74
—
x
SRMCS
a
x
CC
—
x
SYN
———
x x x
CC/TB!
CM
—
1.1.1 Protectessentialhabitat x
1.1.2 Secure habitat x x x x x x x x x
1.1.3.1 Remove exotic vegetation X X X X X X X X X
1.1.3.2 Reduce/eliminate wild horses x x
1.1.3.3 Implement fire management plan x x x x x x x x x
1.1.3.4 Maintain/provide water sources x x x x x x
1.1.3.5 Maintain/reestablish habitat connectivity x x x x x x x x x
1.2.1.1 Constmct fences (at urban interface) x x x
1.2.1.2 Avoid non-native vegetation x x x
1.2.1.3 Promote native plants, limit exotic plants x x x
1.2.1.4 Prohibit use of toxic plants x x x
1.2.1.5 Discourage use of exotic invasive plants x x x
1.2.1.6 Prohibit enticement onto private property x x x
1.2.1.7 Monitor use of pesticide, herbicides, etc. x x x
1.2.1.8 Regulate water diversion/procurement x x x x x x x x x
1.2.1.9 Prohibit artificial water sources (Culicoides) X X X
1.2.1.10 Discourage feeding coyotes x x x
1.2.1.11 Secure funds/methods to monitor x x x x x x x x x
1.2.2.1 Develop trails management program x x x x
1.2.2.2 Prohibit activities withnegative impacts x x x x x x x x x
1.2.2.3 Minimize livestock grazing impacts x x x
1.2.2.4 Prohibit domestic sheep grazing x x x x x x x x x
1.2.2.5 Fence neighboring cattle allotments x x x
1.2.2.6 Prohibit goats as pack animals x x x x x x x x x
1.2.2.7 Secure funds/methods tomonitor x x x x x x x x x Table 12. Continued.
Recovery Action
(abbreviated)
Recovery Region
SJ SRN74SR574SRMCSCC SYNSY-S VM/
FC
CC/TB!
CM
1.3.1.1 Regulate fence construction and design x x x x x
1.3.1.2 Postlmonitor highway crossing areas x x x x x x
1.3.2 Reduce mortality due to natural causes x x x x x x
1.4 Develop reintro/augment. strategy x x X
2.1.1 Monitorabundance x x x x x x x x x
2.1.2 Monitordistribution x x x x x x x x x
2.1.3 Monitorrecruitnient x x x x x x x x x
2.1.4 Monitor survivorship/causes of mortality x x x x x x x x x
2.2 Developpopulation models x x x x x x x x x
2.3 Research bighom/lions/deer/habitat x x x x x x
2.4 Research impact of coyotes/bobcats x x x x x x x
2.5 Research methods to decrease predation x x x x x x
2.6 Research habitat use/dispersal x x x x x x x x x
2.7 Monitor human impacts x x x x x x x x
2.8 Research disease/prevention x x x x x x x x x
2.9 Research genetics x x x x x x x x x
3.1 Distributerecoveryinforniation x x x x x x x x x
3.2 Cont./update public education programs x x x x x x x x x
3.3 Develop new public education programs x x x x x x x x x
3.4 Distribute protocol for injured sheep treatment x x x x x x x x x SI: San Jacinto Mountains
SR-N74: Santa Rosa Mountains - north of Highway 74
SR-574: Santa Rosa Mountains - south of highway 74
SR-MCS: Santa Rosa Mountains--South of Martinez Canyon
CC: Coyote Canyon--east and west side
SY-N:
SY-S:
North San Ysidro Mountains
South San Ysidro Mountains
VM/FC: Vallecito/Fish Creek Mountains
CC/TB/CM: Carrizo Canyon/Tierra Blanca
Mountains/Coyote Mountains
III. IMPLEMENTATION SCHEDULE
The Implementation Schedule that follows outlines actions and estimated costs for the Peninsular bighorn sheep recovery program, as set forth in this recovery plan.
It is a guide for meeting the objectives discussed in part II ofthis plan. This schedule indicates task priority, task numbers, task descriptions, duration oftasks, responsible agencies, and estimated costs. The agencies responsible for committing funds are not necessarily the entities that will carry out the tasks. The agency or agencies with lead responsibility for each task are indicated in the table.
Initiation ofthese actions is subject to the availability offunds.
The Implementation Schedule indicates speculative, future costs (preparation of additional plans, orresearch programs, etc.) as “to be determined”. Some costs appear as zero because indirect costs, such as those incurred by: (1) contributions oftime and materials by agencies and other groups, and (2) administrative or regulatory costs by public agencies, are not included in cost totals. Costs of continuous tasks are estimated assuming a 25-year time to recovery. Though the Implementation Schedule does not distinguish between public and private costs, no identifiable or specific expenditures are likely to be needed by the private sector, other than voluntary efforts contributed by nonprofit organizations and citizen groups. Priorities (Column 1 ofthe following table) are assigned as follows:
Priority I - An action that must be taken to prevent extinction or to prevent the species from declining irreversibly.
Priority 2 - An action that must be taken to prevent a significant decline in species population/habitat quality or some other significant negative impact short of extinction.
Priority 3 - All other actions necessary to provide for full recovery ofthe species.
111
Abbreviations used in the Implementation Schedule:
To be determined
Continuous
Coachella Valley Multiple Species Habitat Conservation Plan, which includes participating cities, County ofRiverside, and landowners
Palm Springs, Cathedral City, Rancho Mirage, Palm Desert, Indian Wells, and La Quinta
San Diego, Imperial, and Riverside Counties
ACBCI
BI
BLM
CALTRANS
CDFG
CDPR
CVMVCD
CVMC
CVWD
DoD
FWS
RWQCB
RC
RCFCWCD
SDZS
UCD
USFS
*
Agua Caliente Band ofCahuilla Indians
Bighorn Institute
Bureau ofLand Management
California Department of Transportation
California Department ofFish and Game
California Department of Parks and Recreation
Coachella Valley Mosquito and Vector Control District
Coachella Valley Mountains Conservancy
Coachella Valley Water District
Department ofDefense
U.S. Fish and Wildlife Service
Regional Water Quality Control Board
Riverside County
Riverside County Flood Control and Water Conservation District San Diego Zoological Society
University ofCalifornia - Davis
U.S. Forest Service
Lead Agency
TBD
cont.
MSHCP
Cities
Counties
AGENCIESAND ORGANIZATIONS
112
RECOVERY PLAN IMPLEMENTATION SCHEDULE FOR PENINSULAR BIGHORN SHEEP Responsible
Agencies
Cost (SI ,000s)
jFYj F’i’
Priority
—
I
Task Task Description
Task
Duration
(Years)
—____
cont. ACBCI*, BLM*,
FWS*, CVMC*,
MSHCP*,
CDFG*, CDPR*,
CVWD*
Total
Estimated
Cost
(SI ,OOOs)
~L2il22L2LIJL
0 0 0 0 0 0
FY FY FY
I
I I
Protect essential habitat
1.1.2 Secure habitat cont. BLM*, CDFG*,
CVMC*, CDPR*,
MSHCP*
70,000 TBD TBD TBD TI3D TBD
I 1 3 1 Remove exotic vegetation and prevent
invasion by exotic plants
cont. ACBCI*, BLM*,
CDFG*, CDPR*,
CVWD*,
RCFCWCD*
250 10 10 10 10 10
1 1.1.3.2 Reduce/eliminate wild horses 5 ACBCI*, BLM*,
CDPR*
TBD TBD TBD TBD TBD TBD
I 1.1.3.4 Maintain/provide water sources 5 13LM~, CDFG*, CDPR*
50 20 20 10 0 0
1 1.1.3.5 Maintain/re-establish habitat
connectivity
cont. BLM* , FWS*,
CDFG*, CDPR*,
Caltrans*, MSHCP*
TBD TBD TBD TBD TBD TBD
1 1.2.1.1 Construct fences to exclude bighom
sheep from urban areas
5 MSHCP*, CDFG, FWS 500 100 100 100 100 100
I 1.2.1.4 Prohibit use of toxic plants cont. MSHCP* 0 0 0 0 0 0 I 1 2 1 8 Regulate water diversion/procurement cont. RWQCB*, CVWD* 0 0 0 0 (1 0
RECOVERY PLAN IMPLEMENTATION SCHEDULE FOR PENINSULAR BIGHORN SHEEP Responsible
Agencies
Priority
—I
Task Task Description
Task
Duration
(Years)
—cont.
Total
Estimated
Cost
($1,000’s)
MSI~1CP* 1............... 0
Cost (S 1,000’s)
IFYI FY
..2L0 0 0 0 0 ——— 02 03 I...~2LI2~ —
FY FY
02 FY
I .2 I. II Secure funding to implement measures 03
I 1.2.2.1 Develop and implement a trails
management program
cont. RLM*, CDFG, USFS,
FWS, MSHCP
TBD TBD TBD TBD TBD TI3D
I I 2 2 2 Prohibit fragmenting and interfering
activities
cont. BLM*, USFS*, FWS*,
DoD*, CDFG*, CDPR*
Counties*, Cities*
TBD TBD TBD TBD TBD TBD
I 1.2.2.3 Minimize livestock grazing impacts 5 BLM¶ USFS* 25 5 5 5 5 5
1.2.2.4 Prohibit grazing by domestic sheep 5 BLM*, USFS* 0 0 0 0 0 0 I 1.2.2.7 Secure funding to implement measures cont. BLM*, IJSFS*, FWS*, 0 0 0 0 0 0
1.3.2 Reduce mortality due to natural causes cont. CDFG*, CDPR, FWS, BLM
TBD TBD TI3D TBD TBD TBD
I 2 11 Monitor abundance cont. CDFG*, CDPR, BLM,
FWS, BI
323 11 15 11 15 11
I 2 I 2 Monitor distribution cont. CDFG*, CDPR, I3LM,
FWS, BI
323 II 15 11 15 II
I 2.1.3 Monitor recruitment cont. CDFG*, CDPR, BLM,
FWS, RI
323 11 15 11 15 II
I 2.1.4 Monitor survivorship and cause-specific
mortality
cont. CDFG*, CDPR, BLM,
FWS, BE
125 5 5 5 5 5
2 1.1.3.3 Implement fire management plan 5 USFS*, BLM, CDFG, CDPR
TBD TI3D TBD TBD TBD TBD
2 1.2.1.2 Avoid non-native vegetation cont. MSHCP* 0 0 0 0 0 0 I; RECOVERY PLAN IMPLEMENTATION SCHEDULE FOR PENINSULAR BIGHORN SHEEP Priority Task
—
I 2 1 9
Task Description
Task
Duration
(Years)
—
cont.
Responsible
Agencies
Total
Estimated
Cost
(SI,000’s)
Cost (S 1,000’s)
}FYj FY
K2LL2L
——— —
0 0 0 0 0
FY[ FY IFY
Oil 02103
2 2 Prohibit (7ulicoides water sources MSHCP* 0
2 1.2.2.5 Fence cattle allotments adjoining habitat 3 BLM* TBD TBD TBD TBD 0 0 2 1.2.2.6 Prohibit goats as pack animals cont. BLM*, USFS*, CDFG*, CDPR*
0 0 0 0 0 0
2 1.3.1.1 Regulate fence design/construction cont. BLM*, USFS*, MSHCP*
0 0 0 0 0 0
2 1.4 Develop captive breeding,
reintroduction, augmentation strategy
cont. BI,* CDFG,* FWS* TBD TBD TBD TBD TBD TBD
2 2.2 Develop population models 3 TBD 30 10 10 10
2 2.3 Research the relationships between
bighorn, mountain lions, mule deer, and
habitat characteristics
5 FWS,* CDFG,*
CDPR*, SDZS*, UCD*
650 130 130 130 130 130
2 2.5 Investigate the efficacy of temporary
suppression ofnatural predation
5 CDFG*, FWS, CDPR 150 30 30 30 30 30
2 2.6 Research habitat use/selection and
dispersal behavior
10 TBD ISO 15 15 15 15 IS
2 2.7 Monitor the effects of human
disturbance
3 CDFG*, BLM, CDPR,
USFS, FWS
TBD TBD TBD TBD
2 2.8 Research disease and preventive
measures
3 TBD TBD TBD TBD TBD
2 2.9 Research genetics 3 TBD TBD TBD TBD TBD
RECOVERY PLAN IMPLEMENTATION SCHEDULE FOR PENINSULAR BIGHORN SHEEP Priority Task Task Description
Task
Duration
(Years)
Responsible
Agencies
Total
Estimated
Cost
($l,OOO’s)
Cost (51,000’s)
—1~
FY FY FY FY FY
01J02j03j04J05
— ——— —
2 2 2 2 2
2 2 3.1 Distribute information on recovery
efforts
cont. FWS*, BLM, CDFG,
BI, MSHCP, CDPR,
USFS
5 50
2 3.2 Continue, update, and coordinate
existing programs
cont. FWS*, BLM, USFS,
CDFG, BI, CDPR,
MSHCP
50 2 2 2 2 2
2 3.3 Develop educational programs cont. FWS*, BLM, USFS,
CDFG, MSHCP,CDPR,
BI
50 2 2 2 2 2
3 1.2.1.3 Promote native plants cont. MSHCP* 29 5 I I I I 3 1.2.1.5 Discourage use of exotic invasive plants cont. MSHCP* 0 0 0 0 0 0 3 1.2.1.6 Prohibit enticement on private property cont. MSHCP* 25 I I I I I 3 1.2.1.7 Monitor use of pesticide, herbicides 5 MSHCP* 25 5 5 5 5 5 3 1.2.1.10 Discourage feeding coyotes cont. MSI~1CP* 0 0 0 0 0 0 3 1.3.1.2 Post/monitor highway crossing areas cont. Caltrans*, BLM,
CDPR, CDFG
25 TI3D TBD TBD TBD TBD
3 2.4 Investigate the relationships between
bighorn, coyote, and bobcat
10 TBD 100 10 10 10 10 10
3 3 4 Injured sheep treatment protocol cont. CDFG*, FWS, I3LM, MSHCP
0 0 0 0 0 0
Total estimated cost ofrecovery: $73,253,000 +
ON
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147
V. APPENDICES
APPENDIX A. AN OVERVIEW OF THE PENINSULAR RANGES
The Peninsular Ranges are located in southern California and Mexico, in the Colorado Desert division ofthe Sonoran Desert (Ryan 1968). On the north, the Peninsular Ranges are bordered by the Transverse Ranges. From this point, they extend south into Mexico, forming the backbone ofBaja California. In California, the ranges form a prominent natural province (Sharp 1976) that is bounded on the east by the Salton Trough. To the west, the province extends to the Pacific Ocean, as a 130-kilometer-wide (80-mile-wide) series ofnorthwesterly trending basins and ranges. The basins form channels below sea level and the ranges form the islands of San Nicolas, Santa Barbara, Santa Catalina, and San Clemente.
The highest peak in the San Jacinto Mountains is the 3,292-meter (10,800-foot) high San Jacinto Peak. Toro Peak, at 2,655 meters (8,700 feet), is the highest peak in the Santa Rosa Mountains (Oakeshott 1978). The Salton Sea, located to the east ofthe Peninsular Ranges, is found in the largest land mass below sea level in the Western Hemisphere (Ting and Jennings 1976). Historically, the Salton Sea has alternated between a freshwater lake fed with waters from the Colorado River, and a dying brackish pond when the waters ofthe Colorado River flowed instead to the Gulf ofMexico. When filled, the Salton Sea lapped at the foothills ofthe Santa Rosa Mountains. Since approximately 1907, however, the sea has been an increasingly salty depository for agricultural wastes ofthe Coachella and Imperial Valleys (Ting and Jennings 1976).
Bighorn sheep inhabit the eastern slopes ofthe Peninsular Ranges in habitat characterized by steep slopes and cliffs, canyons, washes, and alluvial fans. The remainder ofthis appendix will, therefore, provide an overview ofthe eastern slopes ofthe Peninsular Ranges.
Within bighorn sheep habitat, annual rainfall is variable with maxima of35 to 470 millimeters (1.3 to 18.5 inches) during the past 36 years (National Oceanic and 148
Atmospheric Administration, 1962 to 1997). Rainfall exhibits a bimodal distribution pattern with most (approximately 70 percent) occurring in the winter months and a lesser amount in the late summer months. Winter rains are ofthe Pacific marine type, characterized by steady long rain showers, which promote the spring peak in plant productivity. Summer showers are ofthe Gulfmarine type, which result in localized and sometimes fierce thunderstorms (Lindsay and Lindsay 1991). Maximum temperature in bighorn sheep habitat often reaches 46 degrees Celsius (115 degrees Fahrenheit) in summer, while winters are mild, with temperatures occasionally reaching freezing (National Oceanic and Atmospheric Administration, 1962 to 1997).
On the eastern slopes ofthe Peninsular ranges, vegetation associations are coniferous forest, primarily ponderosa pine (Pinus ponderosa), Jeffrey pine (Pinus jeffreyi), Coulter pine (Pinus coulteri), and white fir (Abies concolor) above approximately 1,800 meters (5,905 feet), chaparral above approximately 1,500 meters (4,920 feet), and pinyon pine (P. monophylla)-juniper (Juniperus cal~fornica) above approximately 1,200 meters (3940 feet). Lower elevations are dominated by agave (Agave deserti), ocotillo (Fouquieria splendens), cholla (Opuntia spp.) and palo verde (Cercidiumfioridurn), creosote (Larrea tridentata), palo verde-mesquite (Prosopis spp.) associations(Ryan 1968). Bighorn sheep typically are found at elevations less than 1,400 meters (4,600 feet) (Jorgensen and Turner 1975), usually staying at elevations below the chaparral and pinyon pine-juniper vegetation associations. These associations can represent visual obstruction because ofdenser and taller structures, and therefore make bighorn sheep more susceptible to predation (refer to section I.B. I and I.B.2).
The Peninsular Ranges are inhabited by a large number ofmammalian species (reviewed by Ryan 1968). The only native sympatric ungulate is the mule deer (Odocoileus hernionus). Bighorn sheep and deer distributions overlap at the upper elevations of bighorn sheep habitat, with possible geographic and seasonal differences in the degree ofoverlap. Deer are observed more frequently at lower elevations during the winter months. Potential native predators ofbighorn sheep are mountain lions (Puma conco1or~, bobcats ~Lvnxrufus), coyotes (C’anis latrans), and golden eagles (Aquila chrvsaetos). These species are found throughout bighorn sheep habitat in the Peninsular Ranges. 149
References
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Brigandi, P. 1995. The livestock industry on the Anza-Borrego desert. A report for the Anza-Borrego Desert State Park. Contract No. C4532007.
Cunningham, S. C. and R. D. Obmart. 1986. Aspects ofthe ecology ofdesert bighorn sheep in Carrizo Canyon, California. Desert Bighorn Council Transactions 30:14-19.
Jorgensen, M. C. and R. E. Turner. 1975. Desert bighorn ofthe Anza-Borrego Desert State Park. Desert Bighorn Council Transactions 19:51-53.
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Oakeshott, G. B. 1978. California’s changing landscape: a guide to the geology ofthe state. McGraw-Hill, New York, New York. Y79pp.
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152
APPENDIX B. DELINEATION OF ESSENTIAL HABITAT FOR
BIGHORN SHEEP IN THE PENINSULAR RANGES
Intended use ofthe map (Figures 2, 4-9)
A number ofhabitat models have been developed to rate bighorn sheep habitat (e.g., Hansen 198Gb, Holl 1982, Armentrout and Brigham 1988, Cunningham 1989, Dunn 1996) and components ofbighorn sheep habitat have been examined or discussed by numerous researchers (e.g., Hansen 1980a, McCarty and Bailey 1994). It has been suggested that some ofthese models be used to rate bighorn habitat in the Peninsular Ranges. However, application ofthese models here is inappropriate because they were developed in other areas and life zones where bighorn sheep exhibit different habitat requirements. For example, the Hansen model has been shown to be oflimited value in measuringhabitat quality in areas outside the habitats in which it was derived (Andrew and Bleich 1999) and is no longer used by the California Department ofFish and Game (S. Torres, California Department ofFish and Game, pers. comm.). Cunningham (1989) suggested that such habitat models need to be modified before being applied to novel bighorn sheep habitat.
The purpose ofmapping bighorn sheep habitat in this recovery plan is not to rate the relative value ofhabitat types and areas within the Peninsular Ranges, but to identify those lands in need ofprotection, restoration, and management that are essential to bighorn sheep recovery (refer to section I1.D.1). Rating the quality of sheep habitat would require a more thorough understanding of habitatselection versus habitat availability; studies that address this topic in the Peninsular Ranges have not been conducted to date but are recommended under section II.D.2.6.
Though bighorn sheep habitat sometimes can be described by its function (e.g., habitat for escape or lambing), Wilson et al. (1980) and Bleich et al. (1996) concluded that all habitat types used by bighorn sheep in desert environments are necessary for their population viability. The Santa Rosa Mountains Wildlife Habitat Management Plan (Bureau of Land Management 1980), a long-standing plan developed and implemented under the Sikes Act (16 USC 670a etseq., Public Law 86-797) also recognized this, stating “(e)ach acre of bighorn habitat is important in maintaining the present population”.
153
The purpose ofthis mapping effort is to delineate those areas believed to be necessary for a self-sustaining bighorn population with a high probability for longterm survival and recovery in the Peninsular Ranges ofthe United States. “Essential habitat”, therefore, consists ofthose areas that provide bighorn sheep with the various physical and biological resources (e.g., space, food, water, cover) potentially needed for: (1) individual/population growth and movement, and (2) normal behavior with protection from disturbance. Essential habitat should be protected from further loss or degradation (refer to section II.D. 1.1). The valley floor to the east and the north ofthe Peninsular Ranges (e.g., Coachella Valley, Imperial Valley) likely was used historically by bighorn sheep during rare, longdistance moves to and from other mountain ranges. However, no such moves have been documented. Furthermore, the chance ofsuchmoves has essentially been eliminated by high density urban development, major freeways, fences, and canals. Consequently, the vast majority ofthe valley floor to the east ofthe Peninsular Ranges is not included as essential habitat and is now detrimental to future use by sheep.
Approach used
The delineation ofessential habitat was based on physical and biological features known to be important to bighorn sheep. These features were identified by reviewing pertinent literature and by drawing on the collective knowledge and experience ofthe Recovery Team and other biologists who have studied bighorn sheep in the Peninsular Ranges. The knowledge ofsuch biologists played an important role in the mapping exercise because Peninsular bighorn sheep occupy a habitat that has marked climate and vegetational differences compared to habitat ofmost other bighorn sheep populations. The Peninsular Ranges are located in the Colorado Desert, a division ofthe Sonoran Desert, which experiences different precipitation patterns (timing and intensity ofrainfall) than the Mojave or other Sonoran deserts and contains a somewhat different flora (Jaeger 1957, MacMahon 1985). These differences appear to cause Peninsular bighorn sheep to use habitat differently than bighorn sheep in other areas. For example, dense vegetation at higher elevations ofthe Peninsular Ranges restricts bighorn sheep to the more open desert slopes at lower elevations. For this reason, researchers familiar with bighorn sheep in the Peninsular Ranges have referred to these 154
mountains as the “upside-down mountain ranges” (R. Weaver, California Department ofFish and Game retired, pers. comm.). Therefore, published information regarding habitat use patterns ofbighorn sheep, in general, was supplemented with knowledge regarding habitat use patterns ofPeninsular bighorn sheep, to identify habitat features that determine the distribution of bighorn sheep in these ranges.
Delineation ofessential habitat is not based solely on known use patterns because:
(1) population numbers currently are low and small populations use less habitat than larger populations, such as will be needed for recovery; (2) bighorn sheep are difficult to detect; (3) use patterns are only known for a recent short time period; (4) telemetry data on radio-collared animals (a sampled subset ofthe entire population) represents only the area used by marked animals, not the entire herd; and (5) habitat loss and human disturbance likely inhibits use ofsome lower elevation habitat. However, the delineated habitat boundaries were reviewed by Recovery Team biologists studying bighorn sheep in the Peninsular Ranges to verify that the mapped habitat encompassed most areas known to be used by animals currently or in the recent (25 to 30-year) past. However, numerous documented locations ofsheep fell outside the essential habitat boundaries (Figure 6). The resulting map also was compared against a previous modeling effort (Bureau of Land Management 1980) as part ofthe validation and refinement process (see below).
Choice of habitat components
Habitat requirements have been examined by numerous researchers in the past (e.g., Cunningham 1989, McCarty and Bailey 1994). Topographic cover, water, and forage appear to be the most consistently recognized habitat requirements, although other components such as mineral availability, thermal cover, as well as absence ofcompetition with other ungulates and disturbance from human activities also have been suggested to be important (Cunningham 1989, McCarty and Bailey 1994).
Because these habitat components and characteristics largely determine how bighorn sheep use their habitat in the Peninsular Ranges, information available on 155
these potential model parameters were compiled for analysis. Data that are available consisted of: (1) a fairly comprehensive inventory ofwater sources for Anza-Borrego Desert State Park, (2) a water source survey by the Bureau of Land Management for the northern parts ofthe range, (3) vegetation community maps, and (4) topographic relief.
In desert environments, water is a known limiting factor for many species of plants and wildlife. However, some populations ofbighorn sheep are known to exist in areas withoutsources ofperennial water (summarized in Broyles 1995), as is known to be the case in parts ofthe Peninsular Ranges for at least some parts of the year (refer to section lB. 1). In the Peninsular Ranges, the presence of perennial water is known to be a limiting factor only during prolonged droughts or summers withoutsignificant thunderstorm activity. However, given the numerous dependable watersources in the San Jacinto Mountains and other portions ofthe range (e.g. central Santa Rosa Mountains), water likely does not limit sheep distribution in these regions, even under drought conditions. The variable quality and lack ofreliable water source data in some portions ofthe Peninsular Ranges, and the fact that water availability does not limit habitat use in much ofthese ranges, resulted in the decision to not use water sourcesto delineate bighorn sheep habitat. Available observational records (Figure 6) indicate that sheep range at least 16 kilometers (10 miles) from known perennial water sources. Given the existing distribution of water, sheep are capable of using, and therefore can be expected to use, all areas mapped as essential habitat.
Generalized plant community mapping has been completed within bighorn habitat throughout Riverside County, and detailed mapping has been completed in AnzaBorrego Desert State Park. However, bighorn sheep are generalist foragers and plants known to be eaten are broadly distributed across habitat types in the Peninsular Ranges. Extreme topographic relief provides a diversity of interdigitated habitats and plant communities across the mountainous slopes, canyons, washes, and alluvial fans within the home range ofeach ewe group.
Consequently, the distribution of forage plants does not appear to limit sheep distribution, though it can influence seasonal habitat use patterns. 156
The primary habitat components that limit the distribution ofbighorn sheep in the Peninsular Ranges may be those associated with predator evasion. Unobstructed visibility is recognized as an important habitat characteristic by many researchers (e.g., Geist 1971, Risenhoover and Bailey 1985, Fairbanks et at. 1987, Etchberger et at. 1989). Bighorn sheep rely on their keen vision and climbing ability to detect and evade their predators (Geist 1971). The presence ofescape terrain and an unobstructed view are, therefore, key habitat requirements (Geist 1971).
All bighorn sheep habitat models recognize escape terrain as a key habitat component. However, the definition of“escape terrain” varies widely (McCarty and Bailey 1994). Some researchers defined it by a minimum slope (e.g., Andrew et at. 1999, Dunn 1996) or slope plus a qualitative measure ofruggedness (e.g., Holl 1982, Risenhoover and Bailey 1985, Armentrout and Brigham 1988), while others have described escape terrain with word models that incorporate a qualitative description ofslope and ruggedness(e.g., Hansen 1 980b, Elenowitz 1983, Gionfriddo and Krausman 1986, Fairbanks et at. 1987, Cunningham 1989).
The difficulty in determining a universal definition may be because bighorn sheep in different mountain ranges have access to different habitat (in terms ofslope and ruggedness), and/or because use ofescape terrain varies with group size (Risenhoover and Bailey 1985), group composition, and season (Cunningham and Ohmart 1986, Bleich et a!. 1997). Furthermore, escape terrain has been described as habitat used “for escape from perceived danger” (Van Dyke et at. 1983). This definition recognizes that escape terrain is based on a bighorn sheep’s perception, something that apparently differs among individuals and populations. Desert bighorn sheep frequently have been found at slopes of21 to 50 percent (Elenowitz 1983), slopes greater than or equal to 20 percent (Andrew et at. 1999), and slopes averaging 13 to 34 percent (Bleich et at. 1997). A minimum slope of 20 percent was used (in combination with canopy cover) to define bighorn sheep habitat in New Mexico (Dunn 1996). A slope of greater than or equal to 20 percent was adopted as the minimum required as escape terrain for bighorn sheep in the Peninsular Ranges. The first step ofthe habitat mapping process was, therefore, to identify all patches ofland having a slope of greater than or equal to 20 percent (see following methods).
157
Bighorn sheep are closely associated with mountainous habitat and often are hesitant to venture far from escape terrain (Geist 1971). Although they have been documented to move great distances from escape terrain on rare occasions (Schwartz et at. 1986), it is not uncommon to observe animals moving a short distance from escape terrain in search of forage or water sources, or moving between neighboring mountain masses. Washes and alluvial fans often support a higher diversity, quality, and quantity offorage species than less productive rocky slopes (Leslie and Douglas 1979), seasonal and perennial water sources (Wilson et al. 1980, Holland and Keil 1989), bedding and thermal cover (Andrew 1994), alternative forage sources in times ofdrought, resource scarcity, and stress (Leslie and Douglas 1979, Bleich et a!. 1997), and a source offorage with higher nutritional value during the lambing and rearing season (Hansen and Deming 1980). Also refer to section I.B. 1. Since temperature varies inversely with elevation, the earliest winter forage growth occurs at lower elevations (Wehausen 1980, 1983), and sheep often seek this early source ofnutrients. The critical importance to bighorn ofaccess to a variety of feeding habitats was demonstrated in the Whipple Mountains when reintroduced sheep were confined to an enclosure containing what was considered ample forage. At lambing time, both ewes and their new lambs began dying ofmalnutrition (Berbach 1987), apparently because they were not free to seek out habitats containing more nutritious forage.
Researchers have documented animals ranging at a variety of distances from mountainous terrain, e.g., 1.6 kilometers (0.80 mile) (Denniston 1965), 0.8 kilometer (0.50 mile) (MeQuivey 1978), 1.3 kilometers (0.70 mile) (Leslie and Douglas 1979), greater than 1 kilometer (1.6 miles) (Burger 1985), greater than
1.6 kilometers (1 mile) (Bleich eta!. 1992), and greater than 2.5 kilometers (1.6 miles) (Andrew eta!. 1997). Jones et at. (1957) reported bighorn sheep foraging as far as 2 kilometers (1.2 miles) from the base ofthe Santa Rosa Mountains.
Elsewhere in the Peninsular Ranges, bighorn sheep were frequently observed within 0.8 kilometer (0.5 mile) from mountainous habitat feeding in or moving across washes and alluvial fans (DeForge and Scott 1982; E. Rubin and M.
Jorgensen, pers. comm.). Accordingly, the second step ofthe mapping process was to include habitat within 0.8 kilometers (0.50 mile) ofslopes greater than or equal to 20 percent.
158
To identify slopes of 20 percent or greater, 7.5’ digital elevation models (DEMs) were merged together over the entire study area. These digital elevation models are 30-meter by 30-meter (98-foot by 98-foot) cell grids with a vertical accuracy of 7 meters (23 feet). All grid cells were then aggregated into slope classes. Next, the slope classes were analyzed to select habitat within 0.8 kilometer (0.5 mile) of slopes of greater than or equal to 20 percent. This selection was accomplished by first lumping slopes greater than or equal to 20 percent into one class in a derivative grid. A buffer of 0.8 kilometer (0.5 mile) was then applied to the perimeter of all areas ofslope in the derivative grid.
In the Peninsular Ranges, bighorn sheep habitat is delimited at upper boundaries by dense vegetation associations (primarily chaparral) that reduce visibility and likely increase susceptibility to mountain lion predation. Measuring visibility (by actual fieldmeasurements) to delineate the upper boundary ofhabitat would require study because it is currently not known what visibility threshold is acceptable to bighorn sheep in the Peninsular Ranges. Fire frequency and its effect on plant succession changes visibility thresholds over time (refer to section I.D). Therefore, to determine the upper boundary ofbighorn sheep habitat, the westernmost areas used by bighorn sheep within the past 25 to 30 years were identified and the vegetation associations in these areas were applied rangewide where detailed vegetation analyses were available. Because a detailed vegetation map was not available rangewide, a team of biologists experienced with Peninsular bighorn sheep flew the entire upper/western boundary line in a helicopter and visually assessed vegetation associations. The path ofthe flight was determined by consensus among the biologists and was recorded via a Global Positioning System (GPS). The antenna of a Trimble Navigation, LTD., Global Positioning System was mounted in the helicopter and position data were recorded every 10 seconds. A total of228 kilometers (142 miles) were flown. A base station Global Positioning System, located in the Anza-Borrego Desert State Park, was run during the entire flight. Trimble Navigation Pathfinder Office software was used to post process the collected Global Positioning System data using base station information. Trimble Navigation Pathfinder Office (IM) was then used to export the data as an ESRI NRC/INFO Geographic Information Systems (GIS) readable file. Only corrected data were used to build the resulting Geographic Information System layer. Because this line is dynamic in response to 159
fire frequency and likely has shifted to a lower elevation with the advent offire suppression, a 0.8 kilometer (0.5 mile) extension was added to the westside of this line.
The resulting line in Anza-Borrego Desert State Park was checked against detailed Geographic Information System mapping of vegetation associations within the park (Keeler-Wolf et at. 1998). Vegetation associations not typically used by bighorn sheep in the Peninsular Ranges were excluded from essential habitat.
These associations primarily included Muller’s oak (Quercus cornelius-rnutteri), sugarbush (Rh us ova ta), chamise (Adenostomafascicutatum), and manzanita (Arctostaphvlos spp.) associations. Associations encompassed within bighorn sheep habitat included brittlebush (Encetiafarinosa), desert lavender (Hyptis emo,yi), cholla (Opuntia spp.), burro-weed (Ambrosia dumosa) and creosote (Larrea tridentata), and other creosote associations. The resulting line supported the habitat boundary that was derived during the helicopter flight along the western margin ofcurrent bighorn sheep habitat.
To validate the choice ofgreater than or equal to 20 percent slope and 0.8 kilometer (0.5 mile) distance from this slope as model parameters, Recovery Team members experienced with Peninsular bighorn sheep flew the easternmost line ofbighorn sheep habitat in a northern portion ofthe range (San Jacinto Mountains and Santa Rosa Mountains). The path ofthis flight was determined by consensus among the team members, based on theirobservations ofbighorn sheep in these ranges, and was believed to represent the low elevation (easternmost) boundary ofhabitat commonly used by Peninsular bighorn sheep. The path ofthis flight, which was recorded via Global Positioning System, supported the choice of the greater than or equal to 20 percent slope plus 0.8 kilometer (0.5 mile) distance from this slope as the eastern, lower elevation habitat boundary.
The resulting habitat boundaries were reviewed by Recovery Team members who have studied bighorn sheep in the Peninsular Ranges to verify whether those areas known to be used by sheep in the recent past (within the past 25 to 30 years) were included within the modeled habitat boundaries. This review included a comparison of bighorn sheep sighting locations against the map and verified that 160
most areas used by sheep within the past 25 to 30 years were included within the modeled habitat boundaries (Figure 6).
Mapping Refinement
Upon further review by Recovery Team members, it was determined that the modeled habitat included a habitat type not likely to be used by Peninsular bighorn sheep. This habitat type, classified as mud hills (Augustine and Ward 1995) was found in the Borrego Badlands and Camzo Badlands ofAnza-Borrego Desert State Park. Much ofthis soil type was removed from the delineated map because it did not correspond with known bighorn sheep habitat use patterns.
Conversely, the preliminary habitat boundaries excluded several small islands of “nonhabitat” (defined by the modeling ofslope and distance from slope). Because Recovery Team members familiar with the areas considered these islands to be bighorn sheep habitat on the basis of known sightings in nearby or comparable areas, these islands were included in delineated habitat.
A small number of known observations fell outside the delineated boundaries at lower elevations on relatively flat terrain, such as Clark Dry Lake and Coyote Canyon. These observations support previously published reports ofbighorn sheep occasionally moving away from mountainous areas. However, the relative rarity ofrecords beyond the 0.8 kilometer (0.5 mile) distance from slope was judged to indicate that such habitat was not essential to population recovery if the habitat delineated within the 0.8 kilometer (0.5 mile) distance from slope were protected. In other areas, the opposite process was required to minimize the habitat edge to area ratio consistent with sound tenets ofresource management and preserve design. Along some segments, the 0.8 kilometer (0.5 mile) distance from slope was expanded slightly to capture “nonhabitat” areas that would have represented deep but narrow intrusions into an otherwise stable and manageable essential habitat boundary.
Further modifications were deemed necessary along the urban interface in the Coachella Valley. The 0.8 kilometer (0.5 mile) distance from slope largely has been lost to urban development. Much ofthe remaining valley floor and alluvial habitat within the 0.8 kilometer (0.5 mile) distance is highly fragmented and 161
degraded with marginal or detrimental value to bighorn conservation (e.g., vacant lots along Highway 111, parcels bordered on three sides by urban development).
A series ofmeetings with affected jurisdictions and majorland owners was convened under the auspices ofthe Coachella Valley multiple-species planning effort to discuss and refine the delineation of essential habitat along the urban interface. Lands without long-term conservation value were excluded from essential habitat (Figures 7, 8, 9). The larger fragments that still remain were included within essential habitat where they were contiguous with mountain slope habitat and ofa configuration amenable to effective management. Subject to implementation ofrequired conservation measures, the essential habitat boundary does not include development projects previously reviewed and approved by us.
Finally, pursuant to Secretarial Order 3206 June 5, 1997, we have entered into government to government discussions with the various American Indian tribes that possess lands in bighorn sheep habitat. We coordinated with the tribes to encourage their participation in delineating essential habitat and developing the Peninsular bighorn sheep Recovery Plan in a way that promotes recovery ofthe species and minimizes the social, cultural, and economic impacts on tribal communities. We worked with and supported the efforts ofthe Torres-Martinez Desert Cahuilla Indians to obtain data on the value ofReservation lands to bighorn sheep conservation but the Tribe has not agreed that sufficient information is available to demonstrate that theirlands are essential to recovery.
Based on coordination with the Morongo Band of Mission Indians, tribal lands within the essential habitat boundary will be included for sheep conservation. The Agua Caliente Band of Cahuilla Indians has coordinated with us in the delineation and have agreed that a reservation-wide habitat conservation planning effort will determine appropriate land management issues at a finer scale within the essential habitat boundary.
References
Andrew, N. G. 1994. Demography and habitat use by desert-dwelling mountain sheep in the East Chocolate Mountains, Imperial county, California. M. S. thesis, University ofRhode Island, Kingston. i35pp.
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Andrew, N. G., V. C. Bleich, P. V. August, and S. G. Torres. 1997. Demography of mountain sheep in the East Chocolate Mountains, California.
California Fish and Game 83(2):68-77.
Andrew, N. G. and V. C. Bleich. 1999. Habitat selection by mountain sheep in the Sonoran desert: Implications for conservation in the United States and Mexico. Calif. Wildlife Cons. Bull. No. 12.
Armentrout, D. J. and W. R. Brigham. 1988. Habitat suitability rating system for desert bighorn sheep in the Basin and Range province. U.S. Department ofthe Interior, Bureau ofLand Management. Technical Note 384. l8pp.
Augustine, S. and K. Ward. 1995. Geomorphology Mapping Project, Calif.
Depart. Parks and Recreation and Cesar Lab, San Diego State Univ.
Berbach, M. W. 1987. The behavior, nutrition, and ecology ofa population of reintroduced desert mountain sheep in the Whipple Mountains, San Bernardino County, California. M.S. Thesis, Calif, State Polytechnic University, Pomona, l3Spp.
Bleich, V. C., M. C. Nicholson, A. T. Lombard, and P. V. August. 1992.
Preliminary tests of a mountain sheep habitat model using a geographic information system. Biennial Symposium ofthe Northern Wild Sheep and Goat Council 8:256-263.
Bleich, V. C., J. D. Wehausen, R. R. Ramey II, and J. L. Rechel. 1996.
Metapopulation theory and mountain sheep: implications for conservation.
Pages 353-373 in Metapopulations and Wildlife Conservation. D. R.
McCullough, ed. Island Press, Washington, D.C. 4.29pp.
Bleich, V. C., R. T. Bowyer, and J. D. Wehausen. 1997. Sexual segregation in mountain sheep: resources or predation? Wildlife Monographs No. 134. 50pp.
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Broyles, B. 1995. Desert wildlife water developments: questioning use in the southwest. WildI. Soc. Bull. 23(4):663-675.
Bureau ofLand Management. 1980. Santa Rosa Mountains Wildlife Habitat Management Plan: a Sikes Act plan. Prepared by Bureau ofLand Management and California Department of Fish and Game.
Burger, W. P. 1985. Habitat use by desert bighorn sheep on Desert National Wildlife Range, Nevada. M.S. thesis. Humboldt State University, California. Q3pp.
Cunningham, 5. 1989. Evaluation ofbighorn sheep habitat. Pages 135-160 in The desert bighorn sheep in Arizona. R. M. Lee, ed. Arizona Game and Fish Department.
Cunningham, S. C. and R. D. Ohmart. 1986. Aspects ofthe ecology of desert bighorn sheep in Carrizo Canyon, California. Desert Bighorn Council Transactions 30:14-19.
DeForge, J. R. and J. E. Scott. 1982. Ecological investigations into high lamb mortality. Desert Bighorn Council Transactions 26:65-76.
Denniston, A. 1965. Status of bighorn in the River Mountains ofLake Mead National Recreation Area. Desert Bighorn Council Transactions 9:27-34.
Dunn, W. C. 1996. Evaluating bighorn habitat: a landscape approach. U. S.
Department ofthe Interior, Bureau ofLand Management. Technical Note 395. 4lpp.
Elenowitz, A. 5. 1983. Habitat use and population dynamics oftransplanted desert bighorn sheep in the Peloncillo Mountains, New Mexico. M.S. thesis. New Mexico State University, Las Cruces. lS8pp. 164
Etchberger, R. C., P. R. Krausman, and R. Mazaika. 1989. Mountain sheep habitat characteristics in the Pusch Ridge Wilderness, Arizona. Journal of Wildlife Management 53:902-907.
Fairbanks, W. S., J. A. Bailey, and R. S. Cook. 1987. Habitat use by a lowelevation, semicaptive bighorn sheep population. Journal ofWildlife Management 51(4):912-915.
Geist, V. 1971. Mountain sheep: a study in behavior and evolution. The UniversityofChicago Press, Chicago, Illinois. 383pp.
Gionfriddo, J.P. and P.R. Krausman. 1986. Summer habitat use by mountain sheep. J. WildI. Manage. 50:33 1-336.
Hansen, C. G. 1980a. Habitat. Pages 64-79 in The desert bighorn: it life history, ecology, and management. G. Monson and L. Sumner, eds. The University of Arizona Press. Tucson. 370pp.
Hansen, C. G. 1980b. Habitat evaluation. Pages 320-335 in The desert bighorn:
its life history, ecology, and management. G. Monson and L. Sumner, eds.
The University of Arizona Press. Tucson. 370pp.
Hanson, C G. and 0. V. Deming 1980. Growth and Development. Pages 152- 171 in G. Monson and L. Sumner, eds. The desert bighorn: its life history, ecology, and management. The Univ. OfArizona Press, Tucson, 370 pp.
Holl, S. A. 1982. Evaluation of bighom sheep habitat. Desert Bighorn Council Transactions 26:47-49.
Holland, V. L. and D. J. Keil. 1989. California vegetation. Calif. Poly. State Univ., San Luis Obispo, Calif. 318pp.
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Jones, F. L., G. Flittner, and R. Gard. 1957. Report on a survey of bighorn sheep in the Santa Rosa Mountains, Riverside County, Calif. Fish and Game 43: 179-191.
Keeler-Wolf, T., K. Lewis, and C. Roye. 1998. Vegetation mapping ofAnzaBorrego Desert State Park and Environs, a report to the California Department of Parks and Recreation. Prepared by the Natural Heritage Division, California Department of Fish and Game, contract number c433000.
Leslie, D. M. Jr. and C. L. Douglas. 1979. Desert bighorn sheep ofthe River Mountains, Nevada. Wildlife Monographs No. 66. 56pp.
McCarty, C. W. and J. A. Bailey. 1994 Habitat requirements ofdesert bighom sheep. Colorado Division of Wildlife, Terrestrial Wildlife Research.
Special report number 69. Z7pp.
McQuivey, R. P. 1978. The desert bighorn sheep ofNevada. Nevada Department of Fish and Game. Biological Bulletin No. 6. 8lpp.
Risenhoover, K. L. and J. A. Bailey. 1985. Foraging ecology of mountain sheep:
implications for habitat management. Journal ofWildlife Management 49:797-804.
Schwartz, 0. A., V. C. Bleich, and S. A. Holl. 1986. Genetics and the conservation of mountain sheep (Ovis canadensis nelsoni). Biological Conservation 37:179-190.
Van Dyke, W. A., A. Sands, J. Yoakum, A. Polenz, and J. Blaisdell. 1983.
Wildlife habitats in managed rangelands- the Great Basin ofsoutheastern Oregon. General Technical Report PNW- 159, USDA Forest and Range Exp. Sta., Portland, Oregon. Y7pp.
Wehausen, J. D. 1980. Sierra Nevada bighorn sheep: history and population ecology. PhD dissertation. Univ. Michigan. 243pp.
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Wehausen, J. D. 1983. White Mountain bighorn sheep: an analysis ofcurrent knowledge and management alternatives. U. S. For. Serv. Adm.. Rep., Inyo Nat. Forest Contract No. 53- 9JC9-0-32.
Wilson, L. 0., J. Blaisdell, G. Walsh, R. Weaver, R. Brigham, W. Kelly, J.
Yoakum, M. Hinks, J. Turner, and J. DeForge. 1980. Desert bighorn habitat requirements and management recommendations. Desert bighorn Council Transactions 24:3-7.
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APPENDIX C. GUIDELINES FOR DEVELOPING A LONG-TERM
STRATEGY FOR REINTRODUCTION, AUGMENTATION, AND
CAPTIVE BREEDING OF BIGHORN SHEEP IN THE PENINSULAR
RANGES
The purpose ofthis appendix is to provide guidelines for developing a long-term strategy for reintroduction, augmentation, and captive breeding ofbighorn sheep in the Peninsular Ranges, as identified in the recovery plan (task 1.4). This appendix is organized into two sections. The first section outlines some ofthe preliminary steps needed to identify cases in which reintroductions, augmentations, and captive breeding may be appropriate, and highlights some important considerations in the development of a long-term strategy. The second section presents protocols for captive breeding and release ofcaptive animals, and represents guidelines prepared by the Bighorn Institute for an existing captive breeding and release program. This section addresses many ofthe issues identified in our Policy Regarding the Controlled Propagation ofSpecies Listed Under the Endangered Species Act (65 FR 56916; September 20, 2000).
I. Considerations in developing a long-term strategy for reintroductions and augmentations
A number ofdecisions must be made when developing a long-term strategy for augmentation and reintroduction ofbighorn sheep in the Peninsular Ranges.
Important preliminary steps are presented here in outline form:
1) Identify the general goals ofthe long-term strategy in relation to the overall recovery effort. These goals should consider the viability ofthe population with respect to population dynamics and genetics.
2) Determine if existing ewe groups should be augmented or new groups established. A population model, using estimated population parameters (e.g., abundance, recruitment, survivorship, dispersal), should be used to evaluate the effectiveness of various options (including the option of no augmentation or reintroductions) on the viability ofthe metapopulation. 168
3) Identify and prioritize sites for augmentations and reintroductions. This assessment must evaluate not only the site’s importance to the viability ofthe entire population, but also must address the following questions:
a) What is/was the cause of extinction or endangerment in this location? b) Has this cause been minimized or removed?
c) Is reintroduction or augmentation the best conservation option for this particular situation? Have other necessary measures, such as habitat restoration or protection, been taken?
4) Determine augmentation and reintroduction techniques. The success of previous bighorn sheep augmentation and reintroduction projects has been mixed, and a number ofquestions remain (Desert Bighorn Council 1996). In reintroducing or augmenting Peninsularbighorn sheep, the following issues need to be evaluated:
a) Determine whether to use captive or free-ranging animals. For the following reasons, caution should be exercised when using captive animals:
i) Ifmultiple, consecutive generations ofanimals are bred in captivity, they may undergo “domestication selection”; that is, captive individuals may have behavioral or morphological phenotypes that perform well in captivity but not in the wild. In addition, captive animals may have been raised in an overly protective environment where selection against deleterious genes was relaxed (Brambell 1977, Campbell 1980, Elliott and Boyce 1992, Bush et a!. 1993). ii) Captive animals may be disease vectors to wild populations if they have been exposed to novel diseases during ex situ (outside the original site, or captive) propagation (Campbell 1980, Woodford and Kock 1991, Bush et at. 1993), or ifthey have continued to harbor pathogens that have been “purged” from wild populations. iii) The use of captive animals during augmentations can reduce or increase the effective population size ofthe wild population (Ryman and Laikre 1990, Elliott and Boyce 1992).
Part 11 ofthis appendix provides protocols by which these concerns may be minimized. Releases offree-ranging animals are typically more successful 169
than are those ofcaptive animals (Griffith eta!. 1989, Gordon 1991, Stanley Price 1991); however, an advantage ofusing captive animals is that their genetic profiles typically are known. In addition, the potential effects on population (Stevens and Goodson 1993) and genetics of removing animals from the wildpopulation must be considered. Currently the small size ofewe groups within the peninsular Ranges limits the availability offree-ranging animals for translocation. Additional genetic studies may help identify sources within the Peninsular Ranges or elsewhere. Future projects could involve both captive and free-ranging bighorn sheep.
b) Ifcaptive animals are to be used in reintroductions and augmentations, determine the desired size ofthe captive herd, and optimum facilities and management techniques. One alternative is to establish a large captive herd that is housed in a larger enclosure and managed less intensely than the existing captive herd. An approach similar to this is used by the New Mexico Department ofGame and Fish (1997) at theirRed Rock Wildlife Area, where bighorn sheep are housed in a fenced area ofover 500 hectares (1,235 acres). Potential advantages ofsuch a facility are that released animals may have traits more characteristic offree-ranging animals (as opposed to animals raised in a more confined environment), and a larger captive population may lessen genetic concerns associated with small founder populations. As with any captive breeding program, however, the source ofanimals for this captive population would have to be considered, and both population and genetic management guidelines would have to be addressed (see part II ofthis appendix). c) Determine the best population composition ofreleased groups. This consideration applies whether captive orfree-ranging animals are used.
The number, age/sex composition, and experience ofreleased animals are important considerations (Lenarz and Conley 1980, Wilson and Douglas 1982, Kleiman 1989). The gregarious behavior of bighorn sheep suggests that larger groups are desirable (Wilson and Douglas 1982). However, smaller group sizes more likely mimic natural re-colonization events. The sex ratio should maximize the reproductive potential ofthe released group 170
orthe wild population during reintroductions and augmentations respectively. For bighorn sheep, this typically means a low ram to ewe ratio (Lenarz and Conley 1980). Young animals have high reproductive value (Gotelli 1995) and have a strong tendency to integrate with existing herds when used as release stock (Ostermann et al, in press), anl thus are desirable for augmentation programs. Lenarz and Conley (1980) suggested that the optimum age for released bighorn sheep is 3 years.
However, inclusion ofa small number ofolder orfree-ranging, and presumably more experienced, individuals increases the likelihood of success ofa reintroduction. The effect ofthese variables needs to be considered not only with respect to how they will influence success ofthe release, but also how the removal ofthese animals will affect the source stock from which they came (Stevens and Goodson 1993).
d) Identify appropriate release animals based on pedigree and proximity to the intended release area. Though based solely on genetic theory, this approach is conservatively designed to: (1) preserve the potential for genetic adaptations to local conditions, (2) prevent outbreeding depression, and (3) maintain the existing genetic structure currently found among Peninsular bighorn ewe groups (Brambell 1977, Boyce et a!. 1999).
However, other options are available to prevent loss ofheterozygosity in the wild population (May 1991). In general, the preservation ofthe gene pool ofthe entire metapopulation (wild and captive populations included) should be the primary concern (Foose 1991). Therefore, when reintroducing or augmenting animals, care must be taken to avoid genetic swamping ofnative populations (Kleiman 1989, Ryman and Laikre 1991, Foose 1991, Elliott and Boyce 1992). Furthermore, during any reintroduction or augmentation, the number and sex ratio ofreleased animals must be considered, as it will affect effective population size (Crow and Kimura 1970, FitzSimmons et at. 1997). The second section of this appendix discusses the genetic considerations ofcaptive breeding and release of captive animals in detail.
171
e) Determine the most effective means ofreleasing animals. These considerations, which applyto both the release ofcaptive and free-ranging animals, should include:
i) Whether to use a ‘soft’ or‘hard’ release (Berbach 1987, Moore and Smith 1991).
ii) How far to move free-ranging animals during reintroductions and augmentations. The philopatric behavior ofbighorn sheep may result in animals attempting to return to their natal home range. Research on dispersal and movement patternsmay guide these decisions (refer to section II.D.2 ofthis recovery plan).
iii) During which time of year to conduct releases.
iv) What specific release site to use. For instance, how far should release sites be from other bighorn sheep (Bleich et at. 1996) or from human development? This question may be assessed by releasing and monitoring a small number ofsentinel animals during a feasibility study (Kleiman 1989, Chivers 1991).
5) Determine methods for monitoring and assessing the success ofreintroduction or augmentation programs, in relation to the goals ofthis recovery effort (Stanley Price 1991), and identify a specific schedule for future review and possible revision ofthe long-term strategy.
II. Captive breeding and release ofcaptive bighorn sheep While it is not a long-term solution (Snyder et a!. 1996), captive breeding is a powerful tool for rescuing species threatened with extinction (Caughley 1994, Philippart 1995, Caughley and Gunn 1996). Captive breeding can also be used to delay extinction while the agents of a decline are investigated (Caughley and Gunn 1996). Other advantages ofcaptive propagation include the ability to moderate environmental variance, manage genetic diversity, increase the effective population size, and expand animal numbers to provide stock for wild populations (Foose et at. 1995). Releasing captive-born animals into the wild to support weak populations is an increasingly common practice (Griffith et a!. 1989, Kleiman 1989, Snyder etat. 1996).
172
Although there are benefits ofcaptive propagation programs forreleasing animals into the wild (Griffith et at. 1989, Kleiman 1989, Caughley 1994, Foose et at. 1995), these programs can be costly, labor intensive, and their effectiveness has been questioned (Campbell 1980, Philippart 1995, Caughley and Gunn 1996, Snyder et a!. 1996). Additionally, there are a number ofpotential risks associated with captive breeding and release programs. Our Policy RegardingControlled Propagation of Species Listed Under the Endangered Species Act (65 FR 56916; September 20, 2000) identified the following risks that must be addressed when planning controlled propagation and reintroduction programs: (1) removal of natural parental stock that may result in an increased risk ofextinction by reducing the abundance of wild individuals and reducing genetic variabilitywithin naturally occurring populations; (2) catastrophic events that can cause the loss of some or all ofthe captive population; (3) potential for inbreeding or other adverse genetic effects that mayresult from increasing only a portion ofthe gene pool; (4) potential erosion of genetic differences between populations; (5) exposure to new selection regimes in controlled environments that may diminish capacity to survive and reproduce in the wild; (6) genetic introgression; (7) increased predation or competition for food, space, and/or mates; and (8) disease transfer.
Adhering to established criteria and upholding standardized protocols will contribute to the success ofreintroduction and augmentation programs and reduce the accompanying risks. In this appendix, generalized criteria and guidelines for reintroduction and augmentation programs are combined with knowledge of desert bighorn sheep ecology to create more specific guidelines for Peninsular bighorn sheep captive breeding and release programs.
In this appendix, reintroduction is defined as the movement of wild or captive animals into formerly occupied habitat, while the release ofanimals into currently occupied habitat is termed “augmentation” or “restocking.” The ultimate objective ofthese guidelines is to establish wild, free-ranging herds that no longer rely on captive breeding. Separate guidelines should be developed for captive breeding programs with other primary goals.
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Before commencing a captive breeding program, a feasibility study should be conducted to determine its necessity and potential for success. The following general criteria should be considered (Kleiman et a!. 1994): the wild population’s need for support with respect to genetic diversity and population structure, the availability ofstock, removal ofthe original cause ofdecline, protection of sufficient habitat, local politics, governmental and nongovernmental agency support, reintroduction/augmentation technology, knowledge ofspecies biology, and sufficient financial resources. A summary ofthese criteria, which are grouped into four categories, is provided below.
Needfor population and/or genetic support
Because captive breeding and reintroduction/augmentation programs require large financial and logistical commitments, the need for population and/or genetic support must first be clearly established (Kleiman 1989, Phillipart 1995, Snyder eta!. 1996). The International Union for the Conservation ofNature and Natural Resources (1995) guidelines for reintroduction and augmentations recommend conducting a population and habitat viability workshop before initiating a program. A population viability analysis may also facilitate the design and objectives ofthe program by providing direction on the number ofanimals needed, and hence the size ofthe facility needed, and whether restocking (augmenting populations) or reintroduction (establishing new groups) is preferred.
Captive breeding is often expensive and not always the most cost-efficient conservation strategy (Kleiman 1989, Kleiman et at. 1991, Snyder et at. 1996). It must be conducted in conjunction with other conservation measures, and should be based on specific recommendations within a recovery or management plan so that it does not unjustlypreempt other recovery techniques (Snyder et a!. 1996).
Environmental conditions
Captive breeding should only be undertaken ifsuitable, unsaturated habitat is available (Brambell 1977, Kleiman 1989, Ounsted 1991) and release sites have sufficient carrying capacity to support the expansion ofthe reintroduced or augmented population. Ideally, release sites should be 174
legally protected (Kleiman et a!. 1994). Removing or controlling the original cause(s) ofdecline is an essential step, as failure to do so is a primary reason that reintroduction and augmentation efforts are unsuccessful (Brambell 1977, Ounsted 1991, Kleiman et a!. 1994).
However, in some situations, augmenting a population while investigating the cause ofdecline is an acceptable practice (Caughley and Gunn 1996).
The philopatric behavior ofbighorn sheep (Geist 1971) suggests there are advantages to augmenting a population to retain traditional herd knowledge, rather than reintroducing animals after extirpation, particularly ifthis would allow research into the cause ofdecline.
Biopolitical conditions andfunding
Although no breeding program can be successful without knowledge of the species’ biology orreintroduction/augmentation technology, nonbiological factors such as long-term funding, project administration, and communication among participating organizations have been found to be important determinants for program success (Stanley Price 1991, Beck et a!. 1994, Kleiman et a!. 1994). Feasibility studies should include investigating prospects for long-term funding and obtaining the support of all relevant governmental and non-governmental agencies. Inadequate funding could severely limit the progress and success ofthe program.
Therefore, programs should not be initiated until funding is secured to ensure that all phases (disease testing, research, post-release monitoring, etc.) will be accomplished. Because captive breeding programs are a multidisciplinary undertaking involving people drawn from a variety of backgrounds (International Union for the Conservation ofNature and Natural Resources 1995), the decision making structure, as well as the authority and responsibility ofeach group involved should be clearly delineated (Kleiman et a!. 1994).
Knowledge ofthe species and reintroduction/augmentation technology Knowing the ecological requirements ofa species is necessary for a successful breeding and release program. For many species, the lack of basic information and release technology necessitates detailed studies examining the species behavior and biological needs before establishing a 175
breeding program (Kleiman 1989, Stanley Price 1991). However, past and ongoing captive propagation programs for desert bighorn sheep (Calkins 1993, New Mexico Department of Game and Fish 1997, Ostermann et al. in press) have demonstrated the potential for establishing self-sustaining captive populations and the techniques developed for translocations (Rowland and Schmidt 1981, Wilson and Douglas 1982) provide information that can be applied to releasing captive-reared animals into the wild.
Husbandry
Large, predator-proofenclosures with native vegetation, natural habitat features, and adequate food, salt, mineral, and water resources are needed. Native vegetation should be retained in the enclosure, and supplemental feed may be required to prevent over-browsing. An enclosure that contains a variety of habitat types and topographic relief will allow captive animals to exhibit natural behavior, such as using escape terrain in response to disturbance. Presumably, housing captive animals in conditions as similarto the release site as possible will ease their transition to a wild environment. During the nonbreeding season, adult males and females should be separated or have ample room to naturally segregate.
To reduce disease transmission risks, captive populations should be maintained within the natural range ofthe animal, in single-species facilities that do not regularly exchange stock (Snyder et a!. 1996). The design ofthe enclosure should allow forthe safe capture ofanimals for sampling and/or release. Enclosure fencing should be greater than or equal to 3 meters (10 feet) in height above ground and extend a minimum of 0.61 meter (2 feet) underground, or employ other options to exclude predators. Mountain lions have entered enclosures and killed captive bighorn sheep on several occasions (Blaisdell 1971, Sandovol 1979, Winkler 1977). Monitoring consisting of at least daily checks ofthe enclosure and animals is necessary for detecting health concerns, causes ofmortalities, and disturbances.
Disease prevention and screening
Disease prevention is ofprimary importance for desert bighorn sheep captive breeding programs. Of all North American wild ungulate species, wild sheep are possibly the most sensitive to common livestock diseases and parasites (Jessup 176
1985). Disease outbreaks terminated reintroduction efforts at both the Lava Beds National Monument in California (Blaisdell 1982) and the Sierra Diablo pensin Texas (Brewer 1997), two initially successful desert bighorn sheep breeding operations. Disease in the captive animals and poorreintroduction success led to the release ofall bighorn sheep from the Zion National Park captive propagation enclosure (McCutchen 1978). Outbreaks ofblue-tongue reduced the Red Rock population by approximately 18 animals in 1985 and 25 animals 1991 (New Mexico Department ofGame and Fish 1997). See section I.E.3 for information on the captive population at Bighorn Institute.
Disease considerations for augmentation programs include the potential of introducing disease to the wild population when releasing captive-reared stock and the impact ofdiseases endemic in the wild population on released animals (Viggers eta!. 1993). The prevalence ofdisease in the wild and captive population will determine the need to eradicate pathogens in animals brought into or released from captivity and whether to release or breed certain animals.
Elimination ofall pathogens from captive animals is not expected or recommended (Bush et a!. 1993, Viggers et a!. 1993), as this may reduce their immunity to disease and place them at risk ofdiseases endemic in the wild population. Regular, standardized disease monitoring ofboth the wild and captive populations is strongly recommended.
Diseaseprevention measures
Captive breeding facilities should be closed to the public and the staff should practice rigorous disease prevention measures, including avoidance of potential disease transmission from other captive stocks as well as between wild and captive bighorn sheep. All potential routes for disease transmission from domestic livestock should be anticipated and avoided.
For example, when purchasing hay, care should be taken to avoid dealers who rotate their crops with domestic livestock grazing.
Separate quarantine facilities should be available to house incoming stock; however, animals known to be sick should not be brought into captivity. It is important to determine the cause of death for all animals that die in captivity or soon afterrelease into the wild. Fresh carcasses should be 177
refrigerated and transported to a veterinary diagnostic laboratory for full necropsy.
Disease-free certification
Disease screening (hematology, serum chemistry, serology, virus isolation, ova and parasite tests, and bacterial culture) should be performed on greater than or equal to 25 percent ofthe captive animals at least annually, and on all pre-release animals within 30 days prior to their release into the wild. Health screening of pre-release bighorn sheep helps prevent the introduction ofdisease into the free-ranging population and optimize the released animal’s chances for survival in the wild. Screening of wildcaught breedstock reduces the chance ofintroducing disease to the captive population. All bighorn sheep entering or leaving the captive breeding program should be certified as “disease-free.” Disease-free certification requiresthat within 30 days prior to release: (1) the animals appear healthy and shows no signs of active infection upon visual examination by an U.S. Department of Agriculture accredited veterinarian familiar with bighorn sheep, (2) recent laboratory results (from testing described above) do not indicate active infection or other health concerns, (3) the animal tests negative for Ovine Progressive Pneumonia (AGlID test), and (4) the animals have not been exposed to diseased animals in the captive breeding facility.
Treatment ofsick animals in captivity
Animals showing signs ofillness (e.g., drooping ears, nasal discharge, coughing, lethargy, weight loss) should be closely observed and biologically sampled to attempt to determine the cause ofillness. Bighorn sheep in poor condition, needing frequent treatment, or exhibiting signs of infectious or contagious disease should be placed in quarantine.
Treatment should be provided under veterinary supervision ifthe condition is life threatening, unless research needs dictate otherwise.
Principles guiding genetic management
Genetic management strives to minimize the loss of naturally occurring genetic variability by preserving genes offounders who represent a gene pool ofinterest 178
(Ballou and Lacy 1995). Goals for the genetic management of captive populations usually include retaining genetic variation for future evolutionary potential, minimizing genetic changes that may occur while a species is in captivity, and avoiding inbreeding (Foose and Ballou 1988, Hedrick and Miller 1992, Foose 1991, Foose et a!. 1995). Concerns about the fitness, evolutionary potential, and locally adapted gene pools of natural populations require that conservation efforts also consider intraspecific genetic variation (Soul~ 1986, Millar and Libby 1991, Hedrick and Miller 1992, Cronin 1993). Molecular markers (allozymes, restriction fragment length polymorphisms, microsatellites, mitochondrial DNA) can aid in identifying current and historic levels ofpopulation subdivision, gene flow, and population characteristics (Milligan et a!. 1994, Avise 1995). However, it is important to note that molecular markers identify only a small portion ofthe genome and arenot specifically or necessarily tied to traits involved in either adaptation or fitness.
Identifying the genetic structure ofthe population being augmented is considered a first step towards assuring that appropriate subpopulations are targeted for propagation and release (Brambell 1977, Lyles and May 1987). Peninsular bighorn sheep are distributed in a metapopulation comprising approximately eight subpopulations, although the degree to which this structure reflects anthropogenic forces is unknown (Torres et a!. 1994, Boyce et a!. 1997, Rubin et a!. 1998, Boyce eta!. 1999).
The genetic effects ofpopulation subdivision are quantified by the fixation index (F; Wright 1951), which describes the proportion ofgenetic variation within bighorn sheep subpopulations relative to the total variation in the population. The fixation index can also be used as an index of genetic differentiation among populations. A high fixation index value indicates significant genetic substructuring ofthe population. Moderate values (defined as F of0.05 to 0.15, ST
Wright 1978) for mean F were found for six populations within the Peninsular ST Ranges using nuclear DNA markers (micro-satellite loci [F equals 0.113] and the major histocompatibility complex loci [F equals 0.120]). They suggest ST
there are relatively high levels ofmale-mediated gene flow among populations (Boyce et a!. 1997). When managing a group ofclosely related subpopulations migration should be maintained while also allowing for genetic differentiation 179
among demes in response to local selective pressure (Nelson and Soul~ 1987, Ryman eta!. 1995).
Other factors to consider in reintroduction or augmentation programs are effects to the native gene pool, including introgression, and an increase in the variance in family size or the number of offspring per individual (Ryman et a!. 1995).
Introgression occurs when populations with different genetic characteristics are mixed. It may cause the loss oflocally adapted genes through interbreeding, loss ofentire gene pools as a result ofdisplacement, and/or homogenization of a previously genetically structured population through swamping with a common gene pool. Factors relating to introgression that should be considered include: the amount ofgenetic divergence between the captive and wild populations, the genetic population structure ofthe wild population, and the number of animals to be released relative to the size ofthe recipient population (Ryman eta!. 1995).
Without knowledge ofthe genetic characteristics ofthe natural population, it is nearly impossible to predict the occurrence orimportance ofchanges in the genetic structure ofthe augmented population. Although problems with outbreeding depression usually involve populations that are distinct subspecies, the effects ofgenetic mixing are difficult to predict, ranging from no effect to outbreeding depression even within the same species under similar circumstances (Ryman et a!. 1995). There are some circumstances when introgression can be beneficial, for example, when a natural population has been genetically depleted over an extended period due to small population size (Ryman et al. 1995).
A second problem with captive or supportive breeding programs is the potential to increase the variance in family size or number ofoffspring produced per individual (Ryman et a!. 1995). Taking a fraction ofthe wild population into captivity for enhanced reproduction and survival may increase population numbers, but it can reduce genetic variation by inflating the variance in family size, a parameter that is inversely related to the genetically effective size ofthe population (Ryman and Laikre 1991). Pedigree analysis, rotation ofbreeding stock, and genetic management ofthe captive and wild populations can help lessen concerns associated with introgression and variance in family size. For example, in the northern Santa Rosa Mountains, the origin (captive or wild-born) ofall animals in this herd is known and the sire and/or dam ofmost individuals is 180
known (Ostermann and DeForge 1996). In this case, particular wild-born bighorn sheep native to the gene pool can be targeted for captive propagation if necessary.
This situation presents a unique opportunity to use high intensity genetic management (Lacy et a!. 1995) to improve or maintain the genetic variability in a free-ranging population.
Se!ection ofbreeding stock
Even when the main goal of an augmentation project is to provide population support, Kleiman (1989) recommended first considering the genetic characteristics of potential release animals. Animals released into the wild should be similar to the native animals ofthe region because over evolutionary time, successful populations are expected to become morphologically, physiologically, and behaviorally adapted to the local environment (Brambell 1977, Kleiman 1989, Lynch 1996). Obtaining locally adapted stock for captive breeding and release into the wild is proposed as a method to approximate the correct, locally adapted genotype, although this may add relatively little genetic variability to the wild population (Lyles and May 1987). However, given the habitat fragmentation and small size ofseveral demes in the Peninsular Ranges, genetic exchange to avoid inbreeding depression should be considered.
Only bighorn sheep less than 1 year of age are recommended for capture for breeding stock if animals are to be placed in small enclosures (approximately less than 2 hectares [5 acres]) for quarantine. Young bighorn sheep adjust more readily to a captive environment than adult bighorn sheep (J. DeForge, pers. comm.), which have died from colliding with fences while in captivity (Montoya 1973, Sandoval 1981). Larger enclosures would reduce this risk.
Matingstrategies
Appropriate level of genetic management ofcaptive populations depends on the information available, intended intensity ofmanagement, and goals ofthe program (Lacy et a!. 1995). Breeding programs for bighorn sheep vary from small populations receiving high-intensity genetic management to large herds where only low-intensity genetic management is possible. Several low-intensity mating strategies based on maximizing the effective population size and maximum avoidance ofinbreeding have been developed (Princee 1995). This document 181
focuses on concepts for intensive genetic management, which applies mainly to small captive populations.
The genetic importance of an animal is defined as a measure ofthe probability that it carries founder genes that are currently at risk ofbeing lost (MacCluer et al. 1986, Ballou and Lacy 1995, Thompson 1995), though this value may be compromised by the presence ofdeleterious genes. Although animals with many living relatives in a population may be less genetically valuable than animals with few relatives, this larger group ofrelatives may be more successful due to superior fitness. “Mean kinship”, one ofseveral methods used to identify genetically important individuals, is defined as the average ofthe kinship coefficients between an individual and all living individuals including itself (Ballou and Lacy 1995). Animals with low mean kinship values are genetically important. Because mean kinship is insensitive to the age structure ofa population, the concept of kinship value was introduced. “Kinship value” considers the age and reproductive value ofanimals when calculating mean kinship (Ballou and Lacy 1995). Kinship values will exceed mean kinship for animals whose relatives are ofprime reproductive age.
Both theory and computer simulation studies suggest that mating strategies based on mean kinship (and therefore kinship value) retain the highest level ofgene and allele diversity (Ballou and Lacy 1995, Miller 1995). To the extent possible, a strategy based on kinship value (Ballou and Lacy 1995) should be used to arrange matings in the captive population, precluding matings between relatives. Target founder representation and kinship value can be used to assess the genetic importance of animals and help direct rotation ofbreeding stock. Rams will generally contribute genes faster than ewes and will therefore need to be rotated more frequently than ewes.
Genetic evaluation
Captive breeding programs should include provisions for genetic testing, including mitochondrial DNA sequence analysis and microsatellite typing on all founders in the captive population. Genetic testing of captive-born offspring is particularly important in populations with low intensity genetic management or in cases where paternity is unknown. Molecular genetic analyses can be used to 182
determine the genetic similarity between captive-reared and free-ranging sheep, as well as to construct pedigrees for captive or wild populations.
Population management
General objectives for population management oflarge captive populations with multiple generations in captivity are: (1) establishment of a self-sustaining captive population, (2) expansion ofthe population to a predetermined carrying capacity as quickly as possible within genetic management guidelines, (3) stabilization ofthe population at a given capacity, with an age and sex ratio that will achieve the goals ofthe program (such as production ofsurplus stock for release) (Foose and Ballou 1988). For small captive breeding programs, population management is most relevant to the behavioral stability ofthe captive population and minimizing the impact ofstock rotation. In most cases bighorn sheep should be released into the wild by 10 years of age, to prevent an accumulation ofold-age animals. Ewes that fail to recruit a lamb for 3 consecutive years should be considered forrelease because they are not contributing to the goal of producing stock for release into the wild.
Surplusor unfit animals
Healthy animals displaying abnormal behavioral or physiological characteristics should be evaluated. Preferably, ifthe characteristic has potential to be altered to allow release into the wild, the animal should be retained in captivity until suitable forrelease. Ifan animal’s genetic characteristics cause it to be unfit forrelease into target populations, that animal can be released into a nontarget subpopulation so long as deleterious traits are not introduced to the wild. Because the primary goal of captive propagation is reintroduction or augmentation, bighorn sheep should be released into the wild whenever possible. As a last resort, animals may be transferred to a zoo facility in cooperation with the American Zoological and Aquarium Association.
183
Release and Monitoring
Research and data collection on the captivepopulation
Captive populations can provide an ideal control population for experimental or developmental studies. Data on the population characteristics, behavior, physiology, nutrition, and diseases ofthe captive population should be collected to the extent possible without risking the animals’ survival or ability to be released into the wild. Handling or continuous observation at close range should be minimized to avoid habituation. The captive population at Bighorn Institute has been used in several studies (Castro et al. 1989, Jessup et al. 1990, Borjesson et a!. 1996) that required little or no additional handling.
A SPARKS (Single Population Analysis and Records Keeping System; International Species Information System [ISIS] 1989) orsimilar format studbook should be maintained to record the identification, sex, parentage, date ofbirth, release date, release location, and date as well as cause of death for each individual born or brought into captivity. Marking of animals to facilitate data collection may be necessary in large captive populations. Locations ofbirths within enclosures and individual ewe reproductive success should also be recorded. Notes recording the feeding rations, general health, and behavior of captive animals, and unusual environmental conditions should be collected at least once daily.
Research and data collection on released bighorn sheep
Each release should be designed as an experiment to test various techniques related to factors such as release site and time (May 1991).
Monitoring post-release animals is one ofthe most critical components of a reintroduction or augmentation program because it allows for the assessment of methods, use ofadaptive management, and can provide a framework for theoretical studies. All released bighorn sheep should be fitted with a radiocollar and eartag and monitored as frequently as possible (more than weekly) to record their integration process, habitat use, behavior, health, survivorship, and reproductive success. At a minimum, monitoring should be designed to document survival and reproductive 184
rates, cause-specific mortality, habitat use ofreleased bighorn sheep though their first year in the wild, and key biotic and abiotic factors, such as habitat quality and weather. Most importantly, post-release studies should provide data to evaluate the success ofthe program. Long-term (greater than or equal to 3 years) monitoring on at least a monthly basis of greater than or equal to 50 percent ofreleased animals in a subpopulation should be included in all programs. Monitoring ofpost-release animals should include planned studies comparing captive-reared and wild-reared sheep (e.g., reproductive success, survivorship, vigilance, maternal behavior, reactions to disturbance, etc.), and theoretical studies (May 1991, Sarrazin and Barbault 1996).
Peer-reviewedProgram Assessment
Guidelines forreintroductions (Kleiman 1989, Stanley Price 1991, Chivers 1991) suggest an assessment phase in which the experiences, results, and conclusions of a reintroduction or augmentation program would be published at intervals or at the completion ofthe study. Short-term success ofsuch programs can be evaluated by: 1) the survival and/or reproductive rates ofreleased animals, or 2) the amount of genetic diversity retained and/or habitat preserved, or 3) public education and research interest generated, or 4) the time gained to allow continued research into the problems suppressing the population (Kleiman 1989; Caughley and Gunn 1996). The multi-faceted nature of captive breeding and release programs requires that assessments examine both the captive breeding and release phases, as well as the indirect benefits generated from the program. Reporting failures encountered in captive breeding and release programs is ofequal or greater value than reporting successes, although it is done much less frequently.
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Ostermann, S. D., J. R. DeForge, and W. D. Edge. Captive breeding and reintroduction evaluation criteria: a case study ofPeninsular bighorn sheep. Conservation Biology. In press.
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194
APPENDIX D. GUIDELINES FOR SAFELY CAPTURING. HANDLING,
AND MONITORING BIGHORN SHEEP
Standard research methods, including surveys (foot, helicopter, and fixed wing aircraft), field capture, biological sampling, and radiotelemetry monitoring have been used for assessing abundance and abundance trends (DeForge et a!. 1995, 1997; Rubin et a!. 1998), recruitment patterns (Wehausen et a!. 1987, DeForge et a!. 1995, DeForge et a!. 1997, Rubin et a!. 2000, Ostermann et a!. in press), adult survivorship and cause-specific mortality (Hayes et a!. 2000, DeForge et a!. 1997, DeForge and Ostermann 1 998b, Ostermann et a!. in press), health status and disease exposure (DeForge eta!. 1982; Clark eta!. 1985, 1993; Jessup and Boyce 1993; Elliott eta!. 1994; Boyce 1995; Crosbie et a!. 1997), genetic profiles (Boyce eta!. 1997, Boyce eta!. 1999), and spatial distribution ofthe population (Rubin et a!. 1998) in specific subpopulations ofbighorn sheep within the Peninsular Ranges. Adaptive management (Holling 1978) will require the continued use ofthese field research methodsto achieve recovery of Peninsular bighorn sheep.
As with any human intervention, these research methods are not without risks and consequences for free ranging bighorn sheep. Low-level helicoptersurveys provide an effective method for estimating population size and distribution.
However, alterations in behavior, movement, and distribution ofbighorn sheep resulting from helicopter disturbance (Bleich et a!. 1990a) could potentially introduce bias into those estimates or adversely affect survivorship and reproduction in bighorn sheep populations (Bleich eta!. 1994). Jessup et a!. (1984) compared the relative risks and benefits of different capture methods, including drop-netting, drive-netting, darting from helicopters, stationary corraltrapping and the use ofa hand-held net gun operated from a helicopter. Some methods were found to be inherently safer than others. All methods presented some risk to individual animals, and no single method ofcapture was best for all situations. Bleich et a!. (199Gb) documented chronic injuries to the mandibles and necks of bighorn rams from ill-fitting radiotelemetry collars and proposed potential adverse effects on foraging behavior and decreased fitness ofthese otherwise dominant males.
195
Through constant critical re-assessment ofresearch activities, risks can be recognized and addressed to minimize the impact ofthese activities on bighorn sheep populations. In the past, epidemiological analysis ofcapture data documented the relative safety ofdrop net and helicopter net gun capture of bighorn sheep over other methods including drive-net, chemical immobilization, and corral trapping (Jessup et a!. 1988). Recommendations on collar tightness (Bleich et a!. 1 990b) have reduced jaw and neck injuries in bighorn rams in recent years. Risks associated with future research activities can be minimized by requiring: (1) adequate justification for the activity, (2) thorough planning, (3) selection ofappropriate survey and capture methods, experienced personnel, and proper equipment for the activity, and (4) constant critical re-assessment of research activities to recognize and address problems arising from these activities.
Guidelines for specific research activities
Surveys
Fixed-wing aerial surveys have a very low probability ofaffecting bighorn sheep because aircraft are typically flown at high altitude. During these flights, telemetry locations ofradio-collared animals are obtained but visual observations are not usually attempted. The risk ofdisturbance to bighorn sheep is greater during helicopter and foot surveys.
Helicopter surveys may temporarily disrupt normal bighorn sheep behavior and may negatively affect bighorn sheep if not conducted properly. Helicopter surveys should be avoided during periods when bighorn sheep may be especially sensitive to disturbance. These periods include the late winter through early summer months, when the majority ofewes give birth, and the summer months, when bighorn sheep are dependent on scant water sources. During surveys, the helicopter should only remain above a group ofanimals long enough to determine group size and composition. Ifthe group appears to be running excessively, if terrain conditions are potentially dangerous for the animals, or if young lambs are observed in a group, the safety ofthe animals should take priority over data collection, and the survey crew should continue moving to the next portion ofthe survey area. During surveys, the location ofroads should be considered, and 196
flight paths should proceed from roads into habitat, so as to avoid driving animals towards automobile traffic.
Foot surveys are not typically considered a risky research activity but the following considerations will further reduce any negative impact on bighorn sheep. Bighorn sheep appear to be more comfortable when they are able to remain higher than their human observers and watch them from a distance.
Observers should approach bighorn sheep from below and avoid approaching too closely. Care should be taken to avoid startling bighorn sheep by appearing suddenly around a corner or over a ridge. Time near springs and guzzlers should be kept to a minimum to avoid displacement ofanimals from water sources, especially during the summer.
Capture
The active management ofbighorn sheep may require: (1) marking or tagging to determine population numbers, range usage, movement patterns, behavior, reproduction, survival, and cause-specific mortality; (2) treating orsampling diseased individuals; (3) sampling ofhealthy bighorn sheep forresearch; and (4) relocation (Jessup et al. 1984). In skilled, experienced hands, the use ofa net gun from a helicopter has been shown to be a safe method ofcapture, with fewer stress related complications and lower injury and mortality rates than other methods (Jessup et a!. 1988). Due to the steep, rough terrain and the scattered distribution ofbighorn sheep found in the Peninsular Ranges, net gun capture appears to be the most practical and cost-effective capture technique. The use of drop nets and tangle nets may also be necessary on the rare occasion when an animal hasto be captured within or on the fringes ofthe urban environment. The safe use ofthese techniques requires careful planning and adequate numbers of experienced personnel trained in handling net-captured bighorn sheep. Thorough discussions ofcapture methods and veterinary medical concerns can be found in The Wi!d!fe Restraint Handbook (California Department ofFish and Game 1996), and the Wild!~fe Restraint Series (International Wildlife Veterinary Services 1996).
The most common veterinary problems occurring during the helicopter net gun capture of bighorn sheep are physical injury, capture stress/capture myopathy (disorder ofmuscle tissue or muscles) and hyperthermia. Physical injury can 197
occur when a netted animal tumbles on rough, rocky terrain, takes a fall down a steep slope, or when the net tangles around the animal’s neck and compromises respiration. The risk ofphysical injury can be minimized by netting the animal as it runs uphill or capturing animals on relatively flat saddles or in flat sandy canyon bottoms. Capture stress/capture myopathy occurs when an animal severely overexerts itself, resulting in pathologic metabolic changes and cellular damage in muscle tissue and internal organs. Hyperthermia occurs when an animal’s heat production from muscle activity exceeds its ability to dissipate that heat. Due to the physical exertion experienced during helicopter pursuit, the rectal temperature ofmost bighorn sheep at capture will be higher than 38.9 degrees Celsius (102 degrees Fahrenheit), considered normal for resting domestic sheep (California Department of Fish and Game 1996), and will often reach 39.4 to 40.6 degrees Celsius (103 to 105 degrees Fahrenheit) or greater. These animals are susceptible to hyperthermia regardless ofthe ambient temperature. Dousing with water around the flanks, inguinal region, thorax, head, and neck at capture to cool the animal should be routine during warm weather and anytime an animal shows an increasing trend in rectal temperature. Animals with heavy winter pelage also may have a problem dissipating heat even in cold weather and may require efforts to cool them. Keeping chase times within conservative limits will prevent most problems with capture stress/capture myopathy and hyperthermia. A “safe” chase time will vary with the condition ofthe animal, terrain, environmental conditions, and the intensity of pursuit. Most individual chase times during California Department ofFish and Game bighorn sheep captures are under 3 minutes.
Pursuit of a running animal should not exceed 5 minutes. Attention must be paid to total chase time as animals in a group may be run repeatedly as individual herd members are captured. Pursuit should be called offif the animal appears disoriented, exhausted, or injured, or anytime a member ofthe capture crew determines that there is excessive risk in continuing the capture effort.
Prolonged restraint can also contribute to capture stress/capture myopathy and hyperthermia. Most bighorn sheep cease struggling when eye covers and hobbles are applied. Positioning the animal in a normal resting position with its head up will allow the sheep to belch ruminal gas and minimize bloat and regurgitation.
Vital signs should be taken immediately and monitored continuously to monitor the need/effectiveness of cooling treatment orto determine if a severely distressed 198
animal should be released. A severelycompromised animal that is not ambulatory requires aggressive therapy. Jessup (1999) recommended that wild sheep with rectal temperatures greater than 41.7 degrees Celsius (107 degrees Fahrenheit), respiration rates of 75 per minute, and/or heart rates greater than 200 per minute receive intensive treatment for capture stress/myopathy including cooling baths, balanced intravenous fluids, anti-inflammatory drugs (fast acting corticosteroids), vitamin and mineral supplements, and possibly intraperitoneal bicarbonate.
Medical treatment of a moderately compromised animal that is ambulatory involves the trade-offofcontinued stress during the treatment period with the benefits ofmedication. Some medications themselves may have adverse effects when administered. For example, pharmacologic doses ofcorticosteroids used in treating shock may induce parturition in ewes in late stages of pregnancy (Plumb 1995). In a field situation, the decision to treat or release is ajudgement call made by capture personnel in consultation with an experienced wildlife veterinarian.
Airtransport ofbighorn sheep to base camps should be accomplished in “sheep bags” (heavyweave plastic mesh bags custom designed for this purpose), which support the animal in a sternal position. “Air transport ofmountain sheep upside down suspended by their hobbled legs is inappropriate and unnecessary” (Jessup 1999). During captures using base camp processing, the capture crew should be prepared to process animals exhibiting capture stress at the capture site to reduce the handling time.
Processing (application oftags and collars, collection ofbiological specimens, administration ofprophylactic medications) should be carried out in a quick, efficient manner with minimal disturbance to the animal. Prior to release, the animal should be positioned so that release occurs in the direction with the fewest physical hazards and that allows the animal to move toward the area from which it was captured.
Other issues to consider when capturing and handling bighorn sheep include:
Pregnancy status - capture of ewes in the last two months ofpregnancy should be avoided whenever possible (December through early summer). 199
Caution should be used when capturing ewes with very young lambs (spring through late summer) due to possible abandonment ofthe lamb or exposure ofthe lamb to predation in the absence ofthe mother. These ewes should be processed at the capture site, and should not be transported to a base camp.
Extreme caution should be used when capturing young lambs. Lambs should be processed and released at the capture site whenever possible.
Whenever possible, processing at the capture site is preferred to minimize stress on the animal, However, for adult animals, the choice ofprocessing at the capture site or transport to a base camp will vary with local conditions. Very important for ewes and less so for rams, the location and distance ofbase camps from the capture site should allow direct access back into the area in which the animal was captured. A general guideline is that the release site should be within the home range ofthe ewe group and within 5 kilometers (3.1 miles) ofthe capture location with no insurmountable or dangerous obstacles separating the animal from its home range.
Capture personnel should be made aware ofhuman safety and zoonotic disease concerns.
Key points to consider before capture of bighorn sheep:
A detailed capture plan must be prepared in advance ofthe capture that outlines goals, methods, potential problems, personnel and safety procedures (California Department ofFish and Game 1988).
A pre-capture meeting should be mandatory for all participating personnel.
All personnel must be trained in proper animal handling techniques.
Experienced veterinary assistance and emergency medical supplies and equipment should be readily available to treat a physically distressed or 200
injured animal. Frequent post-capture monitoring ofindividual bighorn sheep is mandatory to determine effects of capture, tags, and collars on survivorship, reproduction, and well being.
A written report should be prepared after each capture that documents the activity, provides a critical assessment ofthe capture, and suggests improvements for future capture activities.
References
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Responses ofmountain sheep to helicopter surveys. California Fish and Game 76(4): 197-204.
Bleich, V. C., J. D. Wehausen, J. A. Keay, J. G. Stahmann, M. W. Berbach. 1 990b. Radiotelemetry collars and mountain sheep: a cautionary note.
Desert Bighorn Council Transactions 34:6-8.
Bleich, V. C., R. T. Bowyer, A. M. Paub, M. C. Nicholson and R. W. Anthes. 1994. Mountain sheep Ovis canadensis and helicoptersurveys:
ramifications for the conservation oflarge mammals. In: Biological Conservation 70(1): 1-7.
Boyce, W. M. 1995. Peninsular bighorn sheep population health and demography study. Final Progress Report - June 1, 1995. California Department of Fish and Game. Sacramento, California.
Boyce, W. M., P. W. Hedrick, N. E. Muggli-Cockett, S. Kalinowski, M. C. T.
Penedo, and R. R. Ramey II. 1997. Genetic variation ofmajor histocompatibility complex and microsatellite loci: a comparison in bighorn sheep. Genetics 45 :421-433.
Boyce, W. M., R. R. Ramey II, T. C. Rodwell, E. S. Rubin, and R. S. Singer. 1999. Population subdivision among desert bighorn sheep (Ovis 201
canadensis) ewes revealed by mitochondrial DNA analysis. Molecular Ecology 8:99-106.
California Department ofFish and Game. 1988. Capture and Relocation of Wildlife. In: Fish and Game Operations Manual; Wildlife Management Program, Sect.3620-3625. Sacramento, California.
California Department ofFish and Game. 1996. Medical Concerns. In: Wildlife Restraint Handbook pp.9/1-9/14. Wildlife Investigations Laboratory, 1701 Nimbus Rd., Suite D. Rancho Cordova, Ca. 95670.
Clark, R. K., D. A. Jessup, M. D. Kock, and R. A. Weaver. 1985. Survey of desert bighorn sheep in California for exposure to selected infectious diseases. Journal ofthe American Veterinary Medical Association 187:1175-1179.
Clark, R. K., C. A. Whetstone, A. E. Castro, M. C. Jorgensen, J. F. Jensen, and D.
A. Jessup. 1993. Restriction endonuclease analysis ofherpes viruses isolated from two Peninsular bighorn sheep (Ovis canadensis cremnobates). Journal ofWildlife Diseases 29(1):50-56.
Crosbie, P. R., W. L. Hoff, D. Stiller, D. A. Jessup, and W. M. Boyce. 1997. The distribution ofDermacentorIiunteri and Anap!asma sp. in desert bighorn sheep (Ovis canadensis). Journal ofParasitology 83(1): 31-37.
DeForge, J. R., D. A. Jessup, C. W. Jenner, J. E. Scott. 1982. Disease investigations into high lamb mortality ofdesert bighorn in the Santa Rosa mountains, California. Desert Bighorn Council Transactions 26:76-81.
DeForge, J. R., E. M. Barrett, S. D. Ostermaun, M. C. Jorgensen, and S. G.
Torres. 1995. Population dynamics of Peninsular bighorn sheep in the Santa Rosa Mountains, California, 1983-1994. Desert Bighorn Council Transactions 39:50-67.
202
DeForge, J. R., S. D. Ostermann, C. W. Willmott, K. B. Brennan, and S. G.
Torres. 1997. The ecology ofPeninsular bighorn sheep in the San Jacinto Mountains, California. Desert Bighorn Council Transactions 41:8-25.
DeForge, J. R. and S. D. Ostermann. 1998b. The effects ofurbanization on a population of desert bighorn sheep. Abstract for the 5th Annual Conf. of Wild. Soc., Buffalo, NY.
Elliot, L. F., W. M. Boyce, R. K. Clark, D. A. Jessup. 1994. Geographic analysis ofpathogen exposure in bighorn sheep (Ovis canadensis). Journal of Wildlife Diseases, 30(3):3 15-318.
Hayes, C. L., E. S. Rubin, M. C. Jorgensen, R. A. Botta, and W. M. Boyce. 2000.
Mountain lion predation on bighorn sheep in the Peninsular Ranges, California. J. Wildl. Manag. 64(4):954-9.
Holling, C. 5. 1978. Adaptive Environmental Management. Academic Press.
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Jessup, D. A., W. M. Boyce. 1993. Diseases of wild sheep. In: Zoo and Wild rd
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Ostermann, S. D., J. R. DeForge, and W. D. Edge. Captive breeding and reintroduction evaluation critena: a case study ofPeninsular bighorn sheep. Conservation Biology. In press.
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204
APPENDIX E. PROTOCOLS FOR MONITORING POPULATION
ABUNDANCE
This appendix presents protocols for two methods ofmonitoring the abundance and population trends of Peninsular bighorn sheep. These two methods are: (1) waterhole counts and (2) aerial helicoptersurveys. For explanations of terminology (e.g., ewe group) or reference to specific names oflocations, please refer to the main body ofthe recovery plan and papers cited therein.
Waterhole counts have been conducted in selected parts ofAnza-Borrego Desert State Park since 1971 (M. Jorgensen, pers. comm.) and have been used to assess abundance trends ofPeninsular bighorn sheep (Rubin et a!. 1998). Prior to 1993, no marked animals were present in the areas in which counts were conducted.
Count data were, therefore, only appropriate for use as an index ofabundance ratherthan for calculation of an absolute population estimate. Since 1993, however, collared animals have been present and waterhole count data can be used to generate population estimates for some ewe groups in Anza-Borrego Desert State Park.
Waterhole counts are organized and conducted by volunteers under the direction ofPark staff. Although helicopter surveys provide a more comprehensive population estimation tool, waterhole counts should be continued. Continuation for at least 10 more years will allow investigators to determine the correlation between waterhole count and aerial survey population estimates, which may make it possible to generate historical population estimates using early waterhole count data. In addition, waterhole counts provide data that are difficult to determine from a helicopter (e.g., reproductive status ofindividually marked ewes; refer to section II.D.2.1 ofthe recovery plan), and provide an opportunity for the community to participate in Peninsular bighorn sheep conservation projects (refer to section II.D.3).
Helicopter surveys have been conducted in the Santa Rosa Mountains annually since 1977 (Wehausen eta!. 1987, DeForge eta!. 1995), the San Jacinto Mountains in 1983, 1984, and annually since 1987 (DeForge et a!. 1997), and in some parts of Anza-Borrego Desert State Park in the early 1980’s (M. Jorgensen, 205
pers. comm.). Radio-collared animals have been present in the northern Santa Rosa Mountains since the early 1980’s (DeForge et a!. 1995) and in the San Jacinto Mountains since 1992 (DeForge et a!. 1997). In 1994, 1996, and 1998, radio-collared animals were present throughout the Peninsular Ranges and surveys covered all parts ofthe ranges for the first time, making it possible to generate population estimates for the entire range as well as for subregions (Rubin et a!. 1998). Currently, helicopter surveys in the San Jacinto Mountains and the Santa Rosa Mountains are conducted by California Department of Fish and Game and the Bighorn Institute, while surveys ofthe remainder ofthe range are conducted by California Department ofFish and Game and Anza-Borrego Desert State Park.
The following sections outline specific protocols for each monitoring technique.
Aerial Helicopter Surveys
Frequency ofsurveys
Helicopter surveys covering the entire range should be conducted at least every other year. Recently, the San Jacinto Mountains and Santa Rosa Mountains have been surveyed annually, while the remainder ofthe range has been surveyed every other year (1994, 1996, 1998).
Time ofsurvey
Helicopter surveys should be conducted ideally between late September and early November. This method reduces the risk to bighorn sheep by avoiding periods when young lambs are present, periods when ewes reach late gestation, and months ofhigh summer temperatures. In addition, this time period coincides with part ofthe rut, or breeding season. This approach allows the most accurate estimate ofthe sex ratio because bighorn tend to congregate during this time.
Areas to be surveyed
All bighorn sheep habitat in the Peninsular Ranges should be surveyed. For consistency among years, the same predetermined areas should be flown every year, with the same amount oftime (effort) spent per area during each year. Flight areas and associated approximate survey times are included in this appendix (Tables E-l and E-2). Maps are not included here because the geographic references in the Tables below accurately describe the survey areas and this plan is 206
Table E-l. Approximate polygons flown by Bighom Institute in annual helicoptersurveys ofthe San Jacinto and Santa Rosa Mountains. Topography and sheep sign influenced the amount of time spent per area. Flight polygons were developed while the population was at a low, and some areas where sheep sign (trailing, bed sites, etc.) has not been noted for several consecutive years are flown less intensely than areas with sign. Ifthe population increases, more time may be needed to thoroughly survey areas that are only cursorily surveyed now. Flighttimes are actual time within the polygon.
Polygon Area/Canyons Notes
Number
San Jacinto Mountains:
west fork of Palm Canyon north to
Blaisdell Canyon
2 Santa Rosa Mountains:
Calcite Mine west to Rattlesnake
Canyon
3 Santa Rosa Mountains:
western Santa Rosa Mountains, west of
Rattlesnake Canyon to Buck Ridge and
Rockhouse Canyon
4 Santa Rosa Mountains:
Big Wash north, Wonderstone Wash,
Travertine Palms, and Barton, Alamo,
and southern Sheep Canyons.
5 Santa Rosa Mountains:
north Sheep Canyon, Martinez Canyon
6 Santa Rosa Mountains:
Agua Alta and Toro Canyons
7 Santa Rosa Mountains:
Guadalupe, Devil, and Bear Canyons
8 Santa Rosa Mountains:
Coyote, Sheep, Deep, Carrizo, and Dead
Indian Canyons.
9 Santa Rosa Mountains:
Magnesia, Bradley, and Cathedral
Canyons.
Approx.
flight time
(hours)
2.25 2.25
2.25 1.75
Areas south of Andreas and north
ofChino have been flown less
intensely in recent years due to
lack of bighorn sheep sign. It will
be necessary to add survey time if
distribution expands.
Buck Ridge flown cursorily.
Barton, Alamo, and Sheep
Canyons flown cursorily due to
lack ofsign.
1.25 2.00
2.25 2.25
2.00 Polygon should include Indio and
Eisenhower Mountains.
Western Cathedral Canyon
appears to have been abandoned
recently — minimal flight time
spent west ofCathedral Canyon.
Surveys may need to intensify
west ofCathedral Canyon proper
if the population increases.
207
Table E-2. Survey polygons flown inbighorn sheep habitat outside ofthe Santa Rosa and San Jacinto Mountains. Flight times are actual time within the polygon.
Polygon Area Polygon Description
Number
10 11
12 13
14 15
16 17
18 19
20 21 Carnzo Canyon area
22 ‘‘
23 ‘‘
24 ‘‘
25 Fish Creek
Mountains
26 CoyoteMountains
27 5. ofInterstate 8
Coyote Peak
NE side of Coyote Canyon
SW side ofCoyoteCanyon
N ofCounty Rd 22 (Montezuma Grade)
S ofCounty Rd 22 and Yaqui Ridge
Pinyon Ridge and N side of Sentenac Canyon
Pinyon Mts to Pinyon Canyon
Sunset Mm, Harper Flats, to Harper Canyon
Harper Canyon to Hapaha Flats to Alma Canyon
Alma Canyon to Fish Creek Wash to Split Mm
Whale Peak (Fish Creek Wash to Smuggler
Cyn)
Tierra Blanca Mts to Rockhouse Canyon
W side Carrizo Wash (to Blackwater Canyon)
Camzo Gorge to Tule Cyn, E. to Dos Cabezas
E side ofCarrizo Wash (N of railroad tracks)
Fish CreekMountains
Coyote Mountains
Dos Cabezas to U.S.-Mexico border
Approx. flight
time (hours)
1.25 3.00
2.25 2.75
2.00 1.00
2.25 1.50
1.75 1.25
1.25 2.00
1.25 2.00
1.25 1.75
1.75 2.00
Coyote Canyon
N. San Ysidro Mts
S. San Ysidro Mis
Vallecito Mountains
not intended to represent a comprehensive compendium ofinformation related to bighorn conservation activities.
Survey techniques
The survey crew consists ofthree observers in addition to the pilot. When possible, the same pilot and pool ofexperienced observers should be used each year. The doors ofthe helicoptershould be removed for optimum visibility. Each polygon should be flown systematically at 40 to 60 kilometers per hour (25 to 35 miles per hour), following topographic contours of 100 to 150-meter (330 to 490- foot) intervals. The pilot and the observers should not be aware ofthe locations ofradio-collared sheep, and telemetry should not be used to locate groups or individuals. The number ofradio-collared animals in each survey polygon should be determined immediately before or during the helicoptersurvey, by additional personnel, using aerial fixed-wing or ground monitoring. These animals serve as “marked” animals in the calculation ofabundance estimates using mark-recapture methods (see below). The Global Positioning System base station at AnzaBorrego Desert State Park headquarters should be run during the entire survey so 208
that Global Positioning System location data can be corrected by staff at their General Plan office. All four individuals in the flight crew are considered observers, and each ofthe three passengers is assigned one ofthe following additional tasks: (1) to monitor the progress ofthe flight on a topographical map, advise the pilot of polygon boundaries, and record the location of each observed sheep on the map, (2) maintain a data sheet onto which the date, time, elevation, group size and composition, number ofcollared animals, and, possibly, identification of collared animal is recorded for each group ofanimals, or(3) record the flight ofthe survey and the location of each observed animal using a Global Positioning System unit. All observed animals should be classified as yearling ewe, adult ewe, yearling ram, Class II ram, Class III ram, Class TV ram, or lamb (classifications modified slightly from those used by Geist 1971). When possible, simultaneous double-counts should be conducted during each survey, following the methods ofGraham and Bell (1989), to provide an additional abundance estimate. All sightings offeral animals and deer should be recorded during surveys. The location and condition ofsprings, tinaj as, and other water sources also should be recorded.
Data Ana!yses
Population estimates should be generated using estimators such as Chapman’s (1951) modification ofthe Peterson estimator (Seber 1982), orthe joint hypergeometric estimator (e.g., Neal et a!. 1993). Estimates should be calculated separately for each sex and for the total population (rams and ewes combined). In the event that low numbers ofcollared rams prevent the estimation ofram numbers, the ram to ewe ratio and the estimated number ofewes can be used to generate an estimate of adult numbers. Confidence intervals (95 percent) should be calculated using methods such as those ofSeber (1982). Simultaneous doublecount data should be used to estimate the number ofgroups missed and to generate an additional estimate ofthe minimum number of animals present within the surveyed areas (Graham and Bell 1989). All reported results (e.g., lamb to ewe or ram to ewe ratios) should clearly state whether or not yearlings are included.
209
Estimates should be generated for the entire range, as well as for individual ewe groups. It is important to note that ewe group distribution may change slowly over time. Monitoring ofradio-collared ewesto determine ewe group structure will therefore, have to be continued, and stratification ofsurvey data may have to be modified slightly. Furthermore, ewe group delineations in the Santa Rosa Mountains south ofHighway 74 and in the Vallecito Mountains still need to be more clearly resolved.
Further considerations
Initially, a sufficient number ofactive radio-collared animals must be present in each portion ofthe range for use in mark-recapture estimate calculations. The number ofcollared animals should be sufficient to achieve an accuracy ofplus or minus 25 percent with probability of 0.05, following the methods described in Krebs (1989) and Robson and Regier (1964), or approximately 30 percent ofthe estimated ewe population should be radio-collared. However, a “sightability” estimate may be generated after additional multiple surveys are conducted, thereby eliminating the need to maintain this percentage ofradio-collared animals.
This approach would be especially beneficial if/when population numbers become large.
As batteries expire, collars become non-functional and the actual number of marked animals present in the survey area becomes difficult to know. Only those bighorn sheep with functional collars should be used as marked animals. This approach will require that bighorn sheep with “functional” collars be distinguishable from those with “nonfunctional” collars at a glance, from the helicopter. Therefore, an accurate inventory of all collared animals must be maintained and the choice ofcollar and eartag color combinations must be considered during collaring efforts. No newly collared animal should match (in collar and eartag color combination) an animal that is possibly still present in the field.
Within a polygon, an attempt should be made to “sweep” across the survey area, ratherthan flying over an area more than once. This method will reduce the chance ofdouble counting animals. Helicopter activity at times cause bighorn sheep to move (Bleich et a!. 1994); therefore, adjacent polygons should, when 210
possible, be flown consecutively so that groups can be recognized and possible double counts eliminated. The flight polygons delineated in this document were chosen, in part, so that natural breaks in topography orroadways coincided with polygon boundaries.
Data should be maintained in an electronic data set that can be used by investigators in the future. All raw data should be retained. That is, data should not be summarized before being entered into a data set.
Waterhole Counts
Frequency ofCounts
Waterhole counts should be conducted annually.
Time ofCounts
Counts should be conducted at the same time every year so that yearly comparisons ofram:ewe ratios, lamb:ewe ratios, group size, and number ofsheep observed at watersources are most meaningful. In addition, counts should be conducted during the hottest and driest time ofthe year to maximize the number of animals coming to drink at water sources. Counts have typically been conducted during the July 4th weekend, and should continue to be held between mid June and the first week ofJuly.
Areasto be Counted
Annual counts have been conducted in the southern part ofthe park (Carrizo Canyon area) during 1973 to 1982, and in the northern part ofthe park (San Ysidro Mountains, Coyote Canyon, and one site in the south Santa Rosa Mountains) since 1971. Counts in the southern portion ofthe park were discontinued after 1982 because ofthe large number ofvolunteers that were needed to conduct counts at both ends ofthe State park, and the complex logistics oforganizing and getting teams set up in fairly remote count sites.
In the past, the number ofsites counted in each area has varied slightly across years because of variation in the number ofavailable volunteers or unexpected problems (for example, a fire near count sites). The number ofsites did not 211
significantly influence the number ofsheep counted in each portion ofthe range (Rubin et a!. 1998). However, an attempt should be made to keep the number and locations ofcount sites constant during future years. Priority sites should be those that have been counted most consistently in the past. Additional or “secondary” sites should be counted when additional volunteers are available. Data analyses can then focus on data collected at “priority” sites, while “secondary” sites can be used for more cursory monitoring ofsheep presence.
Count Techniques
Teams ofthree to five observers should be assigned to each count site. Each team should include at least two individuals who are experienced at classifying bighorn sheep by age and sex. At each count site, the entire team should be stationed at a location that allows observation of animals coming to a water source, while minimizing disturbance ofthe animals orinterference with their use ofthe water source. These locations have been identified by Anza-Borrego Desert State Park personnel. While at these sites, observers should minimize noise and movement.
Observations should be made during 7 a.m. to 5 p.m. on 2 consecutive days and 7 a.m. to 2 p.m. on the third day. During these periods, observers should systematically scan all areas within view and record all sheep observations on the supplied data sheet. Data to be recorded include date, time, temperature, group size and composition, the presence of collared animals, and, if possible, the identification ofcollared animals. Additionally, interactions among individuals (e.g., breeding behavior, lamb nursing bouts) and observations ofother species (e.g., deer, coyotes, birds) should be recorded. The location ofeach group of bighorn sheep should be noted on a topographic map.
Repeat sightings ofindividual sheep should be recorded as such, but they should not be counted. At the end ofeach day, each team should review and discuss their observations with neighboring teams so that repeat observations can be identified and eliminated from the final tally.
Data Analysis
The primary use ofdata collected during waterhole counts is to monitor abundance trends. Rubin et a!. (1998) used count data to assess long-term trends.
In this case, linear regression analysis was used to determine if the number of 212
ewes observed per day showed an increasing or decreasing trend over a period of 10 to 26 years. If a sufficient number ofcollared animals are present in each ewe group area, abundance estimates can be generated for some ewe groups, using mark-recapture techniques. Lamb to ewe ratios can be calculated to monitor reproductive success ofewe groups. Most lambs are 3 to 5 months old during waterhole counts and these ratios will not be directly comparable to ratios generated from helicoptersurveys, which represent lamb recruitment to an older (approximately 6 to 8 months) age. The reproductive status (lamb present versus not present) ofindividual radio-collared ewes can supplement observational data collected by biologists monitoring reproductive patterns ofPeninsular bighorn sheep. Ram to ewe ratios should be generated for comparison among years. The rut typically peaks after July, so these ratios may underestimate the actual ram to ewe ratios since some rams may not have joined ewe groups yet.
Further Considerations
To make waterhole count data as useful as possible for future investigators, it is important for teams to determine the composition ofeach group as accurately as possible. Given the great distancessometimes involved, an effort should be made to equip each team with a spotting scope and at least one individual should be experienced at using it to observe and classify bighorn sheep.
All new observers must complete a one day orientation and training session led by Anza-Borrego Desert State Park personnel. In addition, all new observers must be paired with individuals experienced at classifying bighorn sheep in the Peninsular Ranges (Bleich 1998).
Data should be maintained in an electronic dataset for use in the future. All raw data should be retained. That is, data should not be summarized before being entered into a primary data set.
Reinitiation ofwaterhole counts in the Santa Rosa Mountains should be considered. This approach may enhance the probability ofdetecting relationships between aerial helicopter data and water hole count data, thereby facilitating a retrospective interpretation of numbers ofsheep in the Santa Rosa Mountains in the past.
213
References
Bleich, V.C., R. T. Bowyer, A. M. Pauli, M. C. Nicholson, and R. W. Anthes. 1994. Mountain sheep Ovis canadensis and helicopter surveys:
ramifications for conservation oflarge mammals. Biological Conservation 70:1-7.
Bleich, V. C. 1998. Importance ofobserver experience in classifying mountain sheep. Wildlife Society Bulletin. In press.
Chapman, D. G. 1951. Some properties ofthe hypergeometric distribution with applications to zoological sample censuses. University ofCalifornia Publication in Statistics 1(7): 131-160.
DeForge, J. R., E. M. Barrett, S. D. Ostermann, M. C. Jorgensen, and S. G.
Torres. 1995. Population dynamics ofPeninsular bighorn sheep in the Santa Rosa Mountains, California, 1983-1994. Desert Bighorn council transactions 39:50-67.
DeForge, J. R., S. D. Ostermann, C. W. Willmott, K. B. Brennan, and S. G.
Torres. 1997. The ecology of Peninsular bighorn sheep in the San Jacinto Mountains, California. Desert Bighorn Council Transactions 41:8-
25. Geist, V. 1971. Mountain sheep: a study in behavior and evolution. University ofChicago Press, Chicago. 383pp.
Graham, A. and R. B. Bell. 1989. Investigating observer bias in aerial survey by simultaneous double-counts. Journal of Wildlife Management 53(4):1009-1016.
Jorgensen, M. pers. comm. Calif Dept. Parks and Recreation.
Krebs, C. J. 1989. Ecological Methodology. Harper Collins Publishers. New York, N.Y. 6S4pp.
214
Neal, A. K., G. C. White, R. Bruce Gill, D. F. Reed, and J. H. Olterman. 1993.
Evaluation of mark-resight model assumptions for estimating mountain sheep numbers. J. Wildl. Manage. 57:436-450.
Robson, D. S. and H. A. Regier. 1964. Sample size in Peterson mark-recapture experiments. Transactions ofthe American Fisheries Society 93 :215-226.
Rubin, E. S., W. M. Boyce, M. C. Jorgensen, S. G. Torres, C. L. Hayes, C. S.
O’Brien, and D. A. Jessup. 1998. Distribution and abundance ofbighorn sheep in the Peninsular Ranges, California. Wildlife Society Bulletin 26(3):539-551.
Seber, G. A. F. 1982. The Estimation ofAnimal Abundance. Charles Griffin and Company, Limited, London, England.
Wehausen, J.D., V. C. Bleich, B. Blong, and T. L. Russi. 1987. Recruitment dynamics in a southern California mountain sheep population. Journal of Wildlife Management 51(1):86-98.
215
APPENDIX F. RECOMMENDED CONSERVATION GUIDELINES
BACKGROUND
Bighorn sheep in the Peninsular Ranges are afforded protection pursuant to the California Fish and Game Code (sections 4700 as a fullyprotected species and 2050 as a threatened species). Section 4700 ofthe Fish and Game Code does not allow for issuance ofpermits orlicenses to take fully protected mammals, except for scientific research, notwithstanding any other provision oflaw; therefore, a California Endangered Species Act section 2081 permit that would authorize incidental take ofPeninsular bighorn sheep cannot be issued. This take prohibition in turn limits the type of mitigation that can be required pursuant to the California Environmental Quality Act. The sheep also is listed at 50 CFR §
17.11 by the U.S. Fish and Wildlife Service as an endangered species and protected against take at 50 CFR § 17.21. Regulations that authorize take under prescribed circumstances are found at 50 CFR Parts 17 and 402.
The California Environmental Quality Act requires that mitigation measures be identified and implemented for any significant impacts unless a finding ofoverriding considerations is adopted. Section 15370 ofthe California Environmental Quality Act Guidelines provide five categories ofmitigation measures: “...avoid, minimize, rectify, reduce or compensate.” These forms ofmitigation are appropriate for bighorn sheep only to the extent that they avoid take ofthe species, pursuant to Section 4700 ofthe Fish and Game Code, and avoid take under 50 CFR § 17.21, unless otherwise authorized by the U.S. Fish and Wildlife Service under 50 CFR § 17.22. Accordingly, the Fish and Wildlife Service and California Department ofFish and Game work with lead agencies and project proponents on a case by case basis to identify which forms of mitigation would be appropnate.
OBJECTIVES
The objective ofthese guidelines is to provide a set ofconsistent mitigation measures for project proposals that do not otherwise threaten sustainable bighorn sheep populations needed for recovery. These mitigation measures are not 216
intended for projects proposed in locations that would fragment habitat or preclude effective reserve design and management ofthe species because those adverse effects cannot be offset. In such instances, the Fish and Wildlife Service and California Department of Fish and Game may recommend additional avoidance, minimization, and mitigation measures to ensure against the likelihood ofsignificant adverse effects that would impinge on take and jeopardy thresholds.
Through proper coordination, our agencies will assist local, State, and Federal governments in identifying whether the adverse effects ofproject proposals can be mitigated to a level ofinsignificance, based on project location, size, and potential for indirect effects, which typically are the primary criteria influencing the type and severity ofimpact. These guidelines may require future modification based on the availability ofnew information on threats, ecological requirements, species status, etc.
CONSERVATION MEASURES
I. HABITAT COMPENSATION: Acquisition of off-site habitat may be appropriate to offset any residual effects after application ofappropriate avoidance and minimization measures. For projects adjacent to bighorn sheep habitat that provide infrastructure to support larger humanpopulations, habitat compensation is generally appropriate because ofthe consequent increased levels ofhumanrelated disturbance in adjoining open space. The cumulative effects of human disturbance may be mitigated by acquisition ofsheep habitat that would otherwise be vulnerable to future development. Projects adjacent to sheep habitat that do not result in indirect effects to adjoining sheep habitat generally lack a mitigation nexus.
To maintain sustainable subpopulations (ewe groups), compensation habitat should be acquired within the range ofthe affected ewe group and at an elevation comparable to the impact. Bighorn sheep in the Peninsular Ranges are mainly threatened by habitat loss at lower elevations that provide unique resources unavailable farther up the mountain slopes. Therefore, loss of unique or limiting resources at lower elevations can not be offset by conservation of different resources associated with habitats at higher elevations. 217
Habitat acquisition promotes survival and recovery by reducing the potential future loss ofbighorn sheep habitat through permanent protection ofland currently available for development. Amount of compensation will be determined on a case by case basis because the effects ofindividual projects are variable. A management endowment should accompany all acquired lands so that the responsible public agency has the ability to effectively manage conserved lands.
II. FENCING: Fencing along the urban interface provides a barrier that separates bighorn sheep from urbanization threats (e.g., disease and mortality associated with toxic plants, traffic, parasites, irrigated landscapes, pesticides, etc.). Fencing also can help mitigate the adverse effects ofincompatible land uses adjoining sheep habitat. For example, fencing controls human access into habitat that may otherwise conflict with management objectives to minimize human disturbance, especially during sensitive time periods, such as lambing. Land uses along the habitat edge should be designed to not introduce additional human disturbance.
Recreational access should be provided only where access is coordinated with natural resource agencies and is consistent with management objectives in the regional trails plan. Fencing does not offset the effects of habitat loss and should be located along the edge and not within sheep habitat.
A. Fencing should be mandatory for any new development in or adjacent to sheep habitat, where bighorn sheep have begun or may begin using urban sources offood and water.
B. Fences should be 2.4 meters (8 feet) high, chain-link or functional equivalent.
C. Fences should not contain gaps in which sheep can be entangled [gaps should not be larger than 11 centimeters (4.3 inches)].
III. TOXIC PLANTS: Landscape plants can cause sickness or death. Only local native plants should be used along the wildland interface. Known and potential toxic plants should not be used in areas accessible to bighorn sheep. Ornamental plants currently known to be toxic to sheep include oleander, Prunus species, and plants in the nightshade (Solanaceae) family.
218
IV. LAMBING SEASON AND HABITAT RESTRICTIONS: Seasonal
restrictions during this period minimize impacts to bighorn sheep at a critical stage oftheir life cycle. Lambing habitat is often emphasized because ofthe sensitive nature and behavior ofewes and lambs. Lambing habitat comprises those areas used for breeding, sheltering, and nurturing oflambs up to the time of weaning, including those areas occupied by ewes 1 month before giving birth.
Though the lambing season can span the majority ofthe calendar year--from late winter through summer, January 1 through June 30 encompasses the majority of the lambing season. Trails that traverse lambing habitat should be managed during this period or relocated outside ofsensitive habitat areas.
V. SUMMER WATER SEASON: Available water sources during summer months are highly restricted and bighorn sheep are vulnerable to disturbance in these areas. Ifsummer rains fail, water may remain scarce until the first winter rains. Accordingly, interagency cooperation will be needed to adapt trails management prescriptions to the water requirements ofbighorn sheep. Public education, signage, rangers, and other forms ofmanagement should be provided at appropriate locations to control access during this period.
Title 14 ofthe Public Resources Code, Section 550(b)(1) and Sections 630(b)(l I) and (30) restricts access to water holes on State lands in the Santa Rosa Mountains. Closure periods are from June 15 to September 15.
VI. WATER FEATURE DESIGN SPECIFICATIONS: Any artificial water features (e.g. ponds, lakes) in areas adjoining bighorn habitat should be designed to preclude shallow, vegetated edges that provide breeding habitat for Cu!icoides midges, an invertebrate disease vector forbluetongue virus. Water bodies should be designed with steep sides and depths at least 0.6 to 0.9 meters (2 to 3 feet) along the edge [see: Mullens, B. A. 1989. A quantitative survey of Cu!icoides variipennis (Diptera: Ceratopogonidae) in dairy wastewater ponds in southern California. J. ofMedical Entomology 26(6):559-565; and Mullens, B. A. and J.
L. Rodriquez. 1990. Cultural management of bluetongue virus vectors. Calif.
Agriculture 44(l):30-32].
219
WILDLIFE AGENCY RECOVERY AND MANAGEMENT
RESPONSIBILITIES
AUGMENTATION: Augmentation is a potential recovery tool that is addressed within the context ofthe recovery plan and would be used until a self-sustaining population is established. The release ofcaptive reared or translocated wild animals to establish new populations or supplement small populations are not acceptable mitigation measures because they do not compensate forthe permanent loss ofhabitat or ensure the continued viability of habitat to support selfsustaining, wild populations.
PREDATOR CONTROL: Predator control is a potential management tool available to the Fish and Wildlife Service and California Department ofFish and Game to address specific situations. Bighorn sheep are adapted to survive natural levels ofpredation, drought, disease, competition, etc., which do not pose problems in properly functioning ecosystems. Because predator control is a temporary solution to remedy a short-term problem, it does not constitute mitigation for the permanent loss ofsheep habitat.
220
APPENDIX G. RESPONSE TO COMMENTS
The following issues are a compilation of all substantive comments received by the Fish and Wildlife Service from technical reviewers, agencies, and the public, which were not otherwise responded to by directly incorporating changes into the text ofthe final recovery plan. The issues are organized by general subject matter.
LEGAL ISSUES
Issue.~ Designation ofessentia! habitat i!lega!lv usurps authority over local !and use p!anning by imposingprohibitions on private property and mandating erection offences. Ident~fying private !andsfor protection without committing Federa!funding or conservation incentives exposes !oca! government to property taking lawsuits because cities and counties lack the wherewithal to cooperate in implementation of theplan. To avoid representing a moratorium on future deve!opment, can some deve!opment in essentia! habitat goforward ifadequately mitigated, and fso, what criteria orstandards would be used? Response: Essential habitat (in contrast to critical habitat, discussed below) is a nonregulatory indication ofthose areas we believe to be important to the conservation of bighorn sheep. The map is intended to provide information that can advance conservation efforts through the activities of other agencies and the public. By sharing biological information, we intend to promote public policy decisions that balance the conservation needs ofbighorn sheep with other competing land uses. As such, the designation ofessential habitat does not affect the discretion oflocal and State governments or private land owners over land use decisions. Given the biological importance ofthe habitat to recovery, limited development could occur in essential habitat if adequately mitigated and designed to be compatible with bighorn sheep recovery. Furthermore, the identification of areas with biological importance can provide a wider range ofpotential land uses that generate economic opportunity. For example, local governments and private landowners can structure economic incentives to conserve bighorn habitat by creating programs whereby developments in other areas can provide a source of income to land owners with habitat of higher conservation value. This mitigation bank concept has gained widespread acceptance in numerous other areas where 221
local government has created a mitigation nexus that avoids property taking lawsuits and promotes regional habitat conservation planning.
Issue: Membership ofthe Recovery Team and peer review team consists of individuals whose livelihood depends on funding, permits, and recommendations from the State and Federal government. Therefore, these individua!s are reluctant to voice criticisms with the recoveryplanningprocessforfear of retribution. In addition, authors of the draft recoveryplan stand to gain financially by creating an open checkbook/cash cow with questionable research projects having no accountability.
Response: At ourinvitation, members agreed to participate on the Recovery Team for the purpose ofproviding scientific advice to the Fish and Wildlife Service and cooperating agencies, including assistance in developing and implementing the recoveryplan. The draft recoveryplan was largely written by team members who provided the information and opinions needed to complete a draft plan. Though consensus was achieved on most issues addressed by the team, we and cooperating agencies judged how best to incorporate various views where full agreement was not reached. Many ofthe research topics recommended in the recovery plan are a reflection ofscientific questions that remain unresolved. Any funding to addressthese research needs will be directed on a competitive basis to the best qualified individuals available. Funding and permitting actions by us and cooperating agencies have and will follow applicable laws and regulations that ensure against preferential treatment and capricious behavior. Recovery Team members are not dependent upon the Fish and Wildlife Service or the listing of bighorn sheep for their continued livelihood. Members are under no obligation whatsoever and do not enjoy economic benefit for their voluntary participation on the Recovery Team.
Issue: Undue reliance on unpublished informationfails tojustify the spending of $16Mevery 5 yearsforseveral decades. The conclusions, recovery criteria, and habitat mapping lack credibility due to their reliance on over 100 unsupported citations and that underlying data were intentional4’ withheldfrom public review.
The public has a right to inspect all the unpublished information cited in the draft plan as an aid to provide informed comments; therefore, thepublic comment 222
period should be extended until after these data have been made available.
Following the response to all comments and correction of many deficiencies, the draft recoveryplan should be circulated again for public review.
Response: The draft recovery plan was based on the best available data, which includes personal experience ofcredible researchers. Unpublished information cited in the draft recovery plan was documented and compiled prior to completion ofthe final recovery plan and has been available along with published papers, for public inspection. Any facts or interpretations based on unpublished information cited in the draft recovery plan for which documentation could not be obtained have not been included in the final recovery plan. Justification forresearch recommended in the recovery plan was not based on cited unpublished information but on consensus recommendations ofthe Recovery Team and concurrence by the cooperating agencies. Upon reassessing the relative importance ofthe unpublished information cited in the draft recovery plan to the findings and conclusions in the recovery plan, we have determined that the unpublished information unavailable for review in the draft recovery plan did not materially affect any significant findings or recommendations in the final recovery plan. As a result, we elected to not reopen the public comment period. In response to any substantive comments received afterreview ofthe unpublished information, the recovery plan may be appended, revised or updated.
Issue: The recovery plan is too general to meet the spec~ficcriteria at 16 U S.C. 1533(1). The unusable scale ofthe essential habitat map was intentionally vague andfails to meet the site speqfic standards for describing management actions necessaryfor recovery.
Response: Section 4(f) ofthe Act requires that recovery criteria be measurable and site specific, with estimates ofassociated time frames and costs. We believe that these requirements have been satisfied. The scale ofthe draft essential habitat map in the draft recovery plan was designed to portray a specific concept outside and along the urban interface based on bighorn habitat requirements and principles ofconservation biology. The draft map was designed to elicit input from interested parties so that the final map could best reflect the concerns of local interests. We elected not to depict draft essential habitat in the draft 223
recovery plan at a parcel specific scale because it would have engendered unnecessary and unproductive controversy and suggested a predetermined outcome. We scheduled numerous meetings with all local jurisdictions and major landowners to refine the boundaries along the urban interface. As described below under the Essential/Critical Habitat section, consensus among Federal, State, and local governments was achieved along the majority ofthe urban boundary.
Issue: A recovery plan is unnecessary ~fbighorn sheep in the PeninsularRanges are synonymous with the Nelson ‘s subspecies.
Response: Section 4(f) ofthe Act requires preparation ofrecovery plans forlisted species whenever prudent. This comment implies that bighorn sheep in the Peninsular Ranges do not comprise an entity that can be listed under the Act.
Please refer to the FederalRegister Notice, dated March 18, 1998, as well as section l.A. 1. ofthe recovery plan, for a discussion ofthe applicability ofour policy on implementing the Act’s provisions for listing distinct vertebrate population segments.
Issue: The Fish and Wildlfe Service ‘s authority and intended use ofthe “Recommended Conservation Guidelines” in Appendix F is not apparent.
Furthermore, the guidelines appear intended to restrict thepower and override the legislative authority of lead agencies.
Response: The Fish and Wildlife Service and Department ofFish and Game prepared these guidelines to assist local governments in theirimplementation of the California Environmental Quality Act and land use decision making, not to usurp the discretion of other governmental agencies. It is ourintention to provide consistent guidance as early as possible in the decision making process so that (1) ourrecommendations do not come as a surprise later on in the planning process, and (2) projects can be designed to accommodate the habitat requirements of bighorn sheep.
224
PROCEDURAL ISSUES
Issue: The bibliograpiw contains many blanksfor the authors names, indicating that such information cannot be relied upon.
Response: The blank lines in place ofthe name ofan author is a bibliographic convention that indicates the same author as for the preceding reference. In the final plan the bibliographic format has been revised to show full references.
Issue. The recoveryplan should describe how thepublic will track agency implementation ofrecovery tasks, be involved in prioritizing lands to be acquired, be involved in future modifications to recovery criteria, comment on land exchanges, etc. Similarly, the draft recoveryplan did not ident~fr how entities, such as local government, were expected tofulfil! assigned task responsibilities in the Implementation Schedule. The recovery tasks often lacksite spec~city and do not ident~fy applicable mechanisms or responsible entitiesfor implementing the tasks. For example, the habitat protection objectivefor task 1.1 does not describe who, how, or where the action would be completed. As a result, affectedparties have beenprevented fromproviding meaningful review ofthe recovery plan.
Response: The public can track implementation by communicating directly with the agencies assigned to implement specific tasks. Progress and updates should be incorporated into the public education and outreach programs recommended in the recoveryplan. The public may also track the extent ofappropriations allocated by legislative bodies as an indication of agency capability for implementing the recovery plan. Local governmentsshould interpret the recovery plan as guidance for contributing to the recovery process. Many ofthe provisions in the recoveryplan should be implemented through the regional habitat conservation plan sponsored by the Coachella Valley Association of Governments. This plan represents a stakeholders group that provides an opportunity for involvement by all interests. Any ofthe recovery tasks that apply to respective jurisdictions should be viewed as an opportunity to cooperatively participate with other agencies in the common goal ofbighorn sheep recovery.
We encourage local governments to use their applicable authorities for conservation/management ofopen space in the furtherance ofbighorn recovery. 225
Participating agencies can provide more detailed guidance on the roles and responsibilities oflocal government as case specific questions arise. Ifthe recovery plan is updated orrevised in the future, the public will be given another opportunity to comment on the plan.
Issue: The recoveryplan should contain an economic impact analysis to estimate the costs ofrecovery. The total estimated costs ofrecovery implementation should be determined and provided to thepublicfor comment before the recovery plan is approved. Projectedfunding levelsfor monitoring appearinadequate; ~fa long-term monitoring program is needed, why are costs projectedfor only 5 years.
Response: Though an economic impact analysis is not required by law or regulation, section 4(f) ofthe Act requires an estimate ofcosts to achieve recovery. We have projected total costs based on a rough estimate of 25 years to recovery, with more detailed cost estimates forthe first five years. Certain costs are difficult to estimate accurately without detailed scopes ofwork, real estate appraisals, etc. As a result, cost estimates in the Implementation Schedule should be viewed as approximations that inform the public and participating agencies about the resource estimates necessaryto achieve the recovery objectives ofthe recovery plan.
Issue: The recoveryplan should describe the study areasfor allresearch conducted in the PeninsularRanges.
Response: The reader should refer to the references cited to obtain more detailed information on the study methods ofliterature cited in the recovery plan. The purpose ofthis recovery plan is not to compile and summarize all research conducted in the area at issue.
Issue: Reliance uponforthcomingplanning efforts, such as the Coachella Valley multispecies plan to address immediate bighorn sheep conservation needs, unnecessarily defers actions needed to avert the near-term risk of extinction. 226
Response: We are not aware of any such deferrals and intend to use our legal authorities under sections 4 (designation ofcritical habitat), 7 (interagency consultation), and 10 (habitat conservation planning) whenever appropriate during the interim period while the Coachella Valley plan is in preparation.
Issue: The recoveryplan should critically examinepast management mistakes so that they are not repeated in thefuture.
Response: Much ofthe recovery plan reflects on the past (e.g., section I.D) and looks to the future (e.g., section II.D). Many ofthe Recovery Team members have many years ofexperience in the Peninsular Ranges and, therefore, have a solid historical perspective. A focused, intensive historical inquiry likely would result in arguable conclusions ofdubious merit that could adversely affect current interagency cooperation. The purpose ofrecovery plans is to assess the current situation with a view towards future feasibility ofimplementing needed conservation actions.
Issue: Many of the tables were not as descriptive as they could have been because (1) the tables excludedpotentially available data, such asfrom years before or after those presented in the tables, and (2) statistical analyses were not conducted.
Response: In some instances, more recent data were not available; in other cases, data from earlier years were not comparable because of different data collection methodologies; and in other circumstances, available data have not yet been compiled and analyzed. In most instances, statistical analyses were not included because this information was provided in the references cited and because the purpose ofrecoveryplans is more informative and prescriptive than analytical and quantitative.
Issue: The recoveryplan should discuss thefinancialsituation ofthe Bighorn Institute, along with a detailed critique ofoverall operations.
Response: Financial issues associated with the Bighorn Institute are not a concern ofthe Fish and Wildlife Service or cooperating agencies. Overall operations 227
regarding research and captive rearing have been the subject ofannual reviews by the California Department of Fish and Game prior to Federal listing and now fall under the purview ofsection 10(a)(1)(A), not section 4(f) ofthe Act.
Issue: A repositoryfor all data collected on bighorn sheep should be created and made available to thepublic at large.
Response: Creation ofsuch a repository would not be possible unless agencies and researchers donated proprietary information and personal property. The concept poses numerous legal, economic, and administrative issues that exceed our authorities and those ofcooperating agencies.
Issue: Numerous comments requested the Fish and Wildl~fe Service and cooperating agencies to conduct additional research andfurther analyze data not in theirpossession before issuing a recoveryplan.
Response: The Act’s mandate to use the best available information does not require us to conduct additional research orobtain unavailable data as a prerequisite to preparing and completing recoveryplans. A court stipulated settlement agreement required completion ofthe recoveryplan under an established schedule.
Issue: The draft recoveryplan focuses excessively on habitat conservation instead ofpopu!ation recovery; the various problems should be dealt with in order of importance.
Response: As described in the draft and final recovery plans, multiple, apparently cumulative factors are depressing population levels, with contributing causes differing among ewe groups. The relative importance offactors affecting reproduction, recruitment, and adult survival are poorly understood in some ewe groups, though intensively studied in others. These complexities make it difficult to determine relative importance and management priority. Therefore, we have and will address concurrently all probable factors affecting individual ewe groups to the extent possible. Ifthe habitat base upon which bighorn sheep depend is not 228
protected, sufficient space will not be available to support “recovered” population levels.
Issue: The Fish and Wildlife Service should list credentials ofRecovery Team members.
Response: By practice and for consistency, we do not provide this information regarding team members. Members were selected for a variety ofskills and experiences that may not be apparent from briefsynopses.
Issue: The Fish and Wildl~fe Service rejected, without explanation, many comments provided by Recovery Team members themselves. Disagreements within the team should be discussed in the recoveryplan.
Response: The various views held by members ofthe team were discussed openly at team meetings until a consensus emerged. Various iterations, including the final recovery plan, have been reviewed multiple times by team members, and all comments have been incorporated into the recovery plan directly or after group discussion where further consideration was warranted. We are unaware ofany significant scientific disagreement within the team regarding the content ofthe recovery plan. Regardless, the Fish and Wildlife Service and cooperating agencies assume ultimate responsibility for the recovery plan, inasmuch as Recovery Teams function as expert advisorsto the Fish and Wildlife Service.
Issue: The peer reviewprocess ofthe draft recoveryplan wasflawed, failed to address all the issues raised and to follow academicprotocol, and therefore, should not be referred to as peer review. The draft recovery plan misleads the public into thinking that thepeer reviewers endorse the draft plan.
Response: The peer review processreferred to in the draft recovery plan represented separate technical and agency reviews prior to public release and was not intended to follow academic protocols. Though most ofthe comments received by the technical (peer) reviewers were addressed in the draft recovery plan, the draft recovery plan did not claim that the reviewers necessarily agreed with or endorsed the plan. The Recovery Team and Fish and Wildlife Service 229
have included and addressed in this list ofissues and responses all substantive comments submitted by technical reviewers not otherwise incorporated into the draft or final recovery plans.
Issue: Research tasks in the recoveryplan should identify testable hypotheses.
Response: The Recovery Team is not a research team; therefore, this recovery plan represents a general strategy for recovery that identifies major research topics that should be pursued. It would not be appropriate to propose various experimental designs and hypotheses at this time because the additional level of analysis required should more properly occur when detailed research proposals by individual researchers are prepared.
Issue: The Recovery Team should include a trained land useplannerto improve the effectiveness ofcoordinating conservation activities with localjurisdictions, such as the cities and counties.
Response: One ofthe current Recovery Team members has an extensive background in land use planning, havingworked in that capacity for numerous jurisdictions for many years. In addition, several other members work routinely with local government in land use planning matters and have a thorough understanding oflegal and procedural requirements needed to coordinate effective interagency conservation programs.
ESSENTIAL/CRITICAL HABITAT ISSUES
Issue: All localjurisdictions should be extended the same opportunity as the Indian tribes in determining essential habitat boundaries. Failure to do so will doom the recoveryplanning effort.
Response: Federally recognized Indian tribes enjoy a special relationship and trust privileges under numerous executive, legislative, and judicial mandates not extended to non-Tribal entities. Nonetheless, within the context ofthe Coachella Valley multispecies planning program, the Fish and Wildlife Service and California Department ofFish and Game convened numerous meetings with city 230
and county governmentsto discuss and refine essential habitat boundaries in a process similar to that used with the tribes. The Fish and Wildlife Service, Department of Fish and Game, and local jurisdictions achieved agreement along virtually the entire urban boundary except for about six proposed project sites.
The Fish and Wildlife Service and Department of Fish and Game will attempt to resolve residual differences for each ofthe proposed developments through individual regulatory actions.
Issue: The suggested 20percentslope delimiting lower elevational boundaries in most cases lies below the 213-meter (700-foot) lower elevation limit described elsewhere in the recoveryplan as the lower elevational limit ofsheep distribution.
The essential habitat line should be set along the 213-meter (700-foot) elevation contourfrom Palm Springsto La Quinta, which would avoid lambing and watering areas andprovide opportunitiesfor unrestricted hiking. Essential habitat should not extend onto the valleyfloorfarther than existing wilderness or theproposed National Monument boundary. The map appears to represent a no growth effort that would extort extreme mitigationfrom developers.
Response: The 213-meter (700-foot) lower elevational limit ofsheep distribution typically correspondsto the urban interface at the northern end ofthe Coachella Valley, whereas in the southern end ofthe valley, the urban interface occurs along lower elevational contours. As described elsewhere, sheep in the Peninsular Ranges are adapted to survive at lower elevations and depend on lower elevational slopes and alluvial habitats for important resources. The extent ofsuitable habitat is influenced by soils, aspect, and other topographic featuresthat do not necessarily correspond with fixed elevation contour lines, or wilderness and proposed monument boundaries, which were established for a variety ofreasons apart from the habitat needs of bighorn sheep.
Issue. Habitat compensation should not be requiredfor development adjacent to sheep habitat because development of thesefragmented areas would not affect sheep.
Response: Most ofthe proposed development along the urban interface occurs within, rather than adjacent to, sheep habitat. As discussed in the recovery plan, 231
bighorn sheep in the Peninsular Ranges spend much oftheir time at lower elevations, where otherwise scarce resources, such as food and water, commonly occur. Flatter topography contains more productive alluvial soils that support more diverse and nutritional food sources than occurs on steeper, rockier slopes.
Though alluvial habitats are more fragmented by urban development, these smaller patches still support habitat value, though much reduced from historical conditions. Development ofhabitat fragments also indirectly affects sheep by supporting a larger human population that increases the amount ofdisturbance in adjoining sheep habitat. As long as suitable habitat conditions exist within the historical range ofthe species and development results in indirect adverse effects to sheep in nearby habitat, local governments have a mitigation nexus under the California Environmental Quality Act. Mitigation measures can be designed to conserve larger patches ofcomparable value habitat by requiring offsite habitat replacement, thereby contributing to the conservation ofsheep even ifsmaller habitat fragments are permitted for development. To contribute to recovery, we recommend that local governments consider offsite habitat replacement for permitted development ofresidual habitats between the essential habitat boundary and 800 meters (2,624 feet) from toe of20 percent slope.
Issue: Proposed designation of essential habitat requires adequate legal notice to landowners in the vicinity of habitat proposedfor conservation so that an opportunity to comment on theproposal is provided. The public comment period should be opened indefinitely until essential habitat is displayed on detailed aerialphotography and has been made availablefor public comment. A more detailed map ofessential habitat then should be providedfor public comment before the recovery plan is completed.
Response: The Fish and Wildlife Service broadly announced a 45-day public comment period on the draft recoveryplan (64 FR 73057; December 29, 1999), which was extended an additional week as a convenience to the public. This noticing process fulfilled all legal requirements. As described above, the Fish and Wildlife Service coordinated with affected interests in soliciting input and promoting discussion to achieve consensus on the essential habitat boundary. 232
Issue. The draft recoveryplan does not adequately describe the importance ofthe Mount San Jacinto State Park to sheep recovery.
Response: The park is largely located above the elevation where bighorn sheep normally occur.
Issue.~ The essential habitat map should modelfood and water resources as was donefor physiography.
Response: Food and water resources generally are too dynamic to quantify because their distribution is a function ofunpredictably variable rainfall patterns.
For example, randomly occurring thunderstorms do not provide uniformly distributed moisture regimens throughout sheep habitat but rather result in localized green-up following high intensity, short duration precipitation events.
Sheep typically respond to these sporadic events by exploiting ephemeral sources offood and water. Patterns ofsheep distribution relative to perennial water sources have been analyzed and discussed in Appendix B.
Issue: The draft recoveryplan did not identify the spec~ficprojects previously approved by the Fish and Wildl~fe Service that would be excludedfrom areas mapped as essential habitat. Essential habitat should be designated on areas previously approved by the Fish and Wildl~fe Service for development Wscient~fic data indicate these areas should be part ofcritical habitatfor recovery. Essential habitat should include not yet constructedprojects that have been previously approved by the Fish and WiIdl~fe Service because these areas are neededfor sheep recovery.
Response: The Fish and Wildlife Service completed section 7 consultation on the Ritz-Carlton GolfCourse and Mirada development prior to release ofthe draft recovery plan, and completed section 7 conferences on the Jimenez Pit, Cahuilla Zone Reservoir, and Shadowrock projects prior to listing. The Fish and Wildlife Service and project proponents agreed to reconfiguration ofproject designs and other conservation measures on the former four projects. Agreement on the latter project has not been achieved and the affected area is considered essential habitat 233
unless the project is reconfigured to be consistent with the section 7 conference opinion.
Issue: Critical habitat should be designated even fit divulges locations and consequently exposes sheep to harm.
Response: On July 5, 2000, the Fish and Wildlife Service published a proposed rule (65 FR 41405)to designate critical habitat under a separate process pursuant to a recent settlement agreement with the plaintiffs who challenged our not prudent finding that accompanied the listing. This topic was discussed in the proposed rule.
Issue. The recovery plan should describe the relationship ofessential habitat and critical habitat from a regulatory and proceduralperspective.
Response: Though the two designations are similar in theirfocus on defining future survival and recovery needs, they differ significantly from a regulatory perspective. For purposes ofthis plan, essential habitat is an informative designation intended to provide scientific guidance to cooperating agencies and the public, while critical habitat is statutorily defined with implementing regulations that govern Federal agency activity. Critical habitat receives protection under the Act through the prohibition against destruction or adverse modification ofcritical habitat asset forth under section 7 ofthe Act with regard to actions carried out, funded, or authorized by a Federal agency. Aside from the protection that may be provided under section 7, the Act does not provide other forms ofprotection to lands designated as critical habitat. Critical habitat designation does not impose any restrictions to activities on private or other nonFederal lands that do not involve a Federal permit, authorization, or funding. The process for designating critical habitat is distinct from the process for completing the recovery plan. A proposal to designate critical habitat for the Peninsular bighorn sheep was published in the Federal Register on July 5, 2000 (65 FR 41405). The essential habitat mapped in the recovery plan has the same boundary as the proposed critical habitat, with slight discrepancies introduced by a legal description for critical habitat along boundaries imposed by a township/range/section coordinate grid.
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Issue: Undeveloped butfenced property should not be mappedas essential habitat.
Response: Areas that can be enhanced orrestored are included as essential habitat if they are necessary for recovery. Fencing often does not establish an effective movement barrier to sheep, though it can cause entanglement, injury, and death.
The Fish and Wildlife Service advises that fences constructed to exclude bighorn sheep could result in take ifbuilt at the wrong location orimproperly designed.
Issue: The recoveryplan shouldprovide more spec{fic guidelines to local jurisdictionsfor conserving habitat and reducing the effects ofurbanization. For essential habitat to be effective, the recoveryplan shouldprovide guidance on future regulation oftake under sections 7 and 10 of the Act, which should spec(17cally prohibit authorization offuture take fewe grouppopulation levels drop belowpredetermined thresholds and/or populations increase to a point suggesting progress towards recovery. For example, the threshold approach used for predator management also could be applied to habitat loss.
Response: Appendix F was designed to provide general guidelines that would fit most projects in oradjacent to sheep habitat. More specific guidelines would be difficult without a case by case analysis ofindividual projects. The Fish and Wildlife Service can not use recoveryplans to predetermine future regulatory decisions under sections 7 and 10 because the Act did not envision recoveryplans as a regulatory mechanism.
Issue: The draft recoveryplan places inordinate importance on land use controls and too little emphasis on reducingpredationpressure. Byfailing to manage threats under its control, such as predation, the Fish and Wildl~fe Service unfairli’ shqis onerous regulatory impositions onto privateproperty owners. Another commenter claimed that the acknowledged lack of understanding concerning factors limiting population viability undermines the credibility ofthe proposed land use controls, and that the uncertainty over adverse effects of urban development eliminates any nexusfor governmental regulation. 235
Response: The Fish and Wildlife Service intends on concurrent implementation of numerous recovery tasks commensurate with available funding. Completion of the recoveryplan provides a basis for increased funding allocations to cooperating agencies. Because numerous factors are depressing population growth, it would not be appropriate for the Fish and Wildlife Service and cooperating agencies to attempt to prioritize threats and address only one at a time. Focusing solely on predator control and allowing continued loss of valuable habitat would be based on a theory that habitat loss does not adversely affect bighorn sheep. The available evidence suggests the opposite. The ewe groups adjoining metropolitan areas historically have declined to a greater degree and currently are more severely threatened with extirpation than more southerly and remote ewe groups that have not sustained substantial loss ofhabitat in the past.
Issue: The draft recoveryplan does not adequately identify the specific lands mapped as essential habitat and targets all available habitat without scientflcalh’ analyzing whetherportions ofthe area support any suitable habitat at all.
Response: Appendix B presents a habitat model that analyzed a variety ofhabitat characteristics based on information in the scientific literature and distributional data throughout the Peninsular Ranges. Areas with unsuitable soils and topographywere excluded, as were areas greater than 800 meters(2,624 feet) from toe of20 percent slope, though sheep are known to use these areas. Based on the wide-ranging movements ofsheep in the Peninsular and other ranges throughout the desert southwest, sheep are known to use a broad range ofhabitats in desert environments. None ofthe areas mapped as essential habitat contains soils, vegetation, ortopography that is unsuitable for use by sheep. Though sheep may not use or occur in certain areas as frequently when population sizes are small and distribution is more constrained, it is sometimes difficult to track sheep movements, especially when only a small percentage ofcertain subpopulations have radio collars. Thus, the known distribution is always an underestimate of actual distribution.
Issue: The designation of “essential habitat” is an illegalsubterfugefor avoiding the statutory requirementfor designating critical habitat and analyzing consequent economic effects.
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Response: A proposal to designate critical habitat for the Peninsular bighorn sheep was published in the FederalRegister on July 5, 2000 (65 FR 41405), under terms ofthe settlement agreement referenced above. A notice ofavailability for the draft economic analysis on proposed critical habitat designation was published in the Federal Register on October 19, 2000 (65 FR 62691).
Issue: Numerous land owners requested that their lands be specifically removed from areas designated as essential habitat because ofthe significant social and economic impacts thatshould be minimized per existing Fish and Wildlife Service policy on recoveryplanning.
Response: As discussed above, the Fish and Wildlife Service has met with many landowners and agencies in an effort to refine the essential habitat boundary so that social and economic impacts are minimized to the extent that the potential for recovery is not compromised. These discussions resulted in substantial agreement with all parties involved over the vast majority ofthe urban interface. The resulting essential habitat boundary was designed to minimize economic conflict to the extent consistent with maintaining the likelihood offuture recovery.
Essential habitat differs significantly from critical habitat. Under critical habitat, exclusions are a procedural outcome ofapplying section 4(b)(2) and/or “special management” under the Endangered Species Act. Under 4(b)(2), economic and social impacts are evaluated. However, there is no such process identified for exclusions for essential habitat because recovery plans are nonregulatory documents designed to guide, not dictate, recovery ofthe species.
Issue: The draft recoveryplan was deficient because it did not quant~fy the acreage of diferent landownerships, historical distribution, and extent of proposed essential habitat.
Response: Acreages were not calculated in the draft recovery plan because an updated landownership map was not available and a precise boundary along the urban interface was not delineated. In the final recovery plan, land ownership is delineated with respect to essential habitat in Figure 4; however, the land ownership map is somewhat outdated and any acreage figures would be approximate. Approximate land ownership percentages are summarized in 237
Section I.E. ofthe plan. Historical trends along the urban interfaces are summarized in Section D. 1.
Issue: Lands that historically never were used by sheep should be identified. The term “unoccupied habitat” is scient~ficallv undefined and inappropriately used to describe unsuitable habitatfrom which bighorn sheep are absent.
Response: Historical information prior to the use ofaerial surveys and radio telemetry is oflimited utility because the rugged topography and lack ofroads throughout the Peninsular Ranges greatly restricted the extent of access on the ground. Therefore, it is not possible to reliably conclude that certain areas were not used historically. Similarly, given the relatively small sample size ofradiocollared sheep at present, especially rams (which are far more wide ranging than ewes), more recent data cannot be properly interpreted to conclude that sheep are absent from certain areas. Therefore, the remaining undeveloped portions of historical range constitute the current distribution ofbighorn sheep in the Peninsular Ranges. Use ofthe terms “occupied~~, “unoccupied~~, “suitable”, and “unsuitable”, are more conceptual than empirical. Thus, these terms add little to our understanding ofsheep biology, and as a result, the final recovery plan avoids use ofthis terminology.
Issue: Given the tendency ofsheep to not venturefarfrom escape terrain, justification in the recoveryplan is not adequate to support the needfor habitat up to 0.8 kilometer (0.S mile)from toe of20 percentslope. Twentypercent slope does not represent effective escape terrain; therefore, a steeperslope should be usedfor ident{fying habitat in need of conservation. The recoveryplan does not adequately describe what constitutes a movement corridor on the desert floor. If sheep avoid human disturbance, thefragmented habitat patches on the desert floor within the urban matrix would appear to have low habitat valuefor sheep.
Response: Though sheep typically are found in steeperterrain, numerous records exist in the Peninsular Ranges and elsewhere of occurrences over 0.8 kilometer (0.5 mile) from escape terrain. The 0.8 kilometer (0.5-mile) distance was selected to capture the more typical movements onto the alluvial slopes. The 20 percent slope for escape terrain was taken from the published literature. As discussed in 238
Appendix B, a range ofslopes have been recognized by various authors as escape habitat. Flatter topography encompasses more productive soils that support more diverse and nutritious forage that is seasonally critical to sheep. Flatter topography also can be important for dispersal and for sources ofseasonal water.
Sheep in other areas ofthe desert southwest have been known to move many kilometers across the desert floor to reach neighboring mountain ranges. Given the limited number ofdocumented movements ofthis kind, not enough is known to delimit linkage dimensions. Rams are especiallyprone to use flatter areas farther removed from escape terrain. Ruggedness on flatter topography can function as escape habitat but has been difficult to measure and account forin studies published to date. The essential habitat map excludes the less frequently used and lower value habitats characterized by small patch size and proximity to human disturbance.
Issue: Designation ofessential habitat asproposed would restrict accessfor construction and maintenance of infrastructuralfacilities likeflood control and water supply. Flood controlfacilities should not be included in essential habitat because any use by sheep is incidental to theprimarypurpose ofthese lands.
Response: Case by case project reviews under the regulatory provisions of sections 7 and 10 ofthe Act will detennine whether construction ofinfrastructural facilities are compatible with sheep survival and recovery. Based on discussions with Riverside County Flood Control and Water Conservation District and Coachella Valley Water District, normal operations and maintenance ofexisting facilities would not conflict with the management objectives for essential habitat.
Flood control facilities typically occur in washes and alluvial habitat that have been most affected by historical habitat losses and often still support the same important habitat values as the surrounding areas. As such, these facilities are not defacto unsuitable or detrimental to sheep use. Ifreasonably managed, these areas can fulfill their intended function while at the same time not conflicting with sheep use in the area.
Issue: The recoveryplan does not discuss thepossibility thatpast habitat loss from urbanization in the San Jacinto and northern Santa Rosa Mountains may 239
have resulted in irreversible population declines, rendering essential habitat designation in this area potentially useless.
Response: The recovery plan strives to intensify management efforts to offset the loss ofhistoric habitat, and thereby maintain functional population levels in the future. If populations become extirpated and the Recovery Team and cooperating agencies determine that habitat areas are no longer capable ofsupporting selfsustaining populations, future revisions ofthe recoveryplan may delete essential habitat and management objectives for those areas.
BIOLOGICAL ISSUES
Issue: One commenter thought that the eyesight ofbighorn equaling that of humans aided by 8-power binoculars should be emphasized.
Response: According to Geist (1971), scientific evidence is not available to support this popular myth, which probably originated with the experiences of hunters with the species.
Issue: The regular sightings ofbighorn sheep in Chino Canyon and Tachevah Canyon alleged by Fish and Wildlife Service biologists appear inconsistent with portions of the draft recoveryplan that state bighorn sheep vanishedfrom the northern San Jacinto Mountains after construction ofthe Palm Springs Aerial Tramway.
Response: Though rams still range north ofChino Canyon, ewes have not been documented in the northern San Jacintos (north ofChino Canyon) since the late 1980’s. The tramway was constructed in the early to mid-1960’s.
Issue: The high number ofundetermined causes ofdeath indicates that a better explanation is needed of how the deaths were discovered and how the causes were diagnosed.
Response: Most deaths were discovered from radiocollared animals because the fate ofuncollared animals is far more difficult to ascertain. When dead animals 240
are found, the cause ofdeath is sometimes difficult to determine because in many cases, coyotes and other scavengers have consumed the carcass so thoroughly that the original cause of death (whether predation or not) can not be determined.
Issue: Some commenters thought the recovery criteria of 25 ewes per 9 ident~fied regions and an average of 750 adultsfor delisting is too low to assure survival and recovery, and that the estimated rangewide carrying capacity of 1,000 sheep appears low. Another commenter thought the criteria requiring a minimum of 25 ewes in each ewe group would be too dfftcult to achieve.
Response: The team and agencies decided that it would be difficult to justify a higher population level than was known historically, especially given the extensive habitat loss and fragmentation, and other factors that likely have reduced carrying capacity over time. Team members most familiar with the Peninsular Ranges assessed current and historic habitat quality, and made regional comparisons with other bighorn sheep habitats in estimating current conditions and carrying capacity. The 9 regions were deemed capable ofsupporting in excess of 25 ewes, with the carrying capacity in most ofthe regions substantially exceeding the minimum. Because 750 is an average figure, it would be necessary forthe population to rise above that level for some period oftime, likely in response to changing carrying capacity. The averaging criterion was selected because it allows natural population fluctuations and management flexibility. If the long-term carrying capacity exceeds 750 animals, the population likely would exceed the 750 minimum established in the recovery plan.
Issue: The operations by the Bighorn Institute are contributing to the decline instead ofthe recovery of bighorn sheep. Alternative methods, such as on-theground surveys, should be used for estimating population size and distribution, instead ofmore highly disruptive helicopterflights. Helicopter censuses and captures arefar more stressful to sheep than researchers, hikers, and riders quietly moving through sheep habitat.
Response: The Bighorn Institute conducts hundreds of days ofon-the-ground work and only about 6 days ofhelicopter work each year. Conducting on-theground studies is often not feasible on private property and could result in 241
significant disruption to sheep if implemented at a level needed to estimate population distribution and abundance at precision levels comparable to aerial techniques. Even at current levels, on-the-ground disturbance associated with research activities could be detrimental if not for rigorous safeguards. For example, Bighorn Institute biologists regularly document through radio telemetry that their presence “bumps” or “pushes” sheep in flight away from them, at which point the field methodology requires backing off, which often prevents the recording offield data.
Issue. Why is agricultural use adjoining bighorn sheep habitat considered a more compatible use, whereas residential and resort developments are not? Response: Agricultural activities do not generate the high levels ofsecondary impacts, such as human recreation in adjoining habitat, as is typically associated with urban land uses. In addition, agricultural lands can be restored to sheep habitat, whereas urban land uses can not. Though agricultural lands were excluded from delineated essential habitat, several Recovery Team members recommended they be included because oftheirrestoration potential.
Issue: Numerous commenters inquired whetherstudies have been conducted and evidence existsfor thepresence ofbighorn sheep on theirlands.
Response: We have included a map with known locality records to provide a better indication ofbighorn sheep distribution. References cited throughout the recovery plan should be perused to determine study areas and methods. The lack ofrecords for certain areas does not necessarily indicate that sheep are absent, only that their presence has not been documented.
Issue: The slow reproductive rate and long-term estimatesfor recovery should be accelerated by importing sheep to increasepopulation levels.
Response: Unless the factors that limit population growth in the Peninsular Ranges are addressed, it is unlikely that a program to introduce animals from outside areas would be successful. However, alleviating in situ decimating factors would allow the resident population to expand on its own, which would forego the 242
need for translocation. Importing animals also poses risks ofdisease transmission. Regardless, bighorn sheep populations throughout the Mojave Desert are currently depressed to the extent that surplus animals are not available for importation.
Issue: Given the history ofpopulation declines in regions adjoining urban areas, it does not seem plausiblefor the recoveryplan to claim that Peninsular bighorn sheep have a high potentialfor recovery.
Response: The recoveryplan attemptsto build on past examples and taking action soon enough to reverse the decline ofsheep in our mountains. The Recovery Team and cooperating agencies believe that the recovery potential is high ifthe management recommendations in the recovery plan are implemented.
Issue: Thefurther research andplanning required through the captive rearing and augmentation guidelines in Appendix C does not recognize or expedite the immediate recovery needs and issues that must be addressed in the short-term.
After manyyears ofoperation, these issues should already have been addressed and a plan ready to implement.
Response: The existing operations ofthe Bighorn Institute are reviewed annually by the agencies and adjustments made if needed. Captive breeding for population augmentation, population monitoring, and research have been and continue to be the primary emphases until changes in direction are agreed to by the Institute, agencies, and Recovery Team.
Issue: One commenter suggested that the draft recovery plan was deficient because a recent discovery ofa desert bighorn sheep population in Ventura County was not addressed.
Response: Sheep populations in Ventura County are not included in the distinct population segment listed in the Peninsular Ranges and, therefore, are not relevant to the recovery plan.
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Issue: Because bighorn sheep arewilderness animals, more emphasis should be place on conservation efforts in Anza-Borrego Desert State Park, instead of urbanizing Coachella Valley, where prospectsfor success are less than in more remote areas.
Response: Numerous subpopulations are necessary to maintain the larger Peninsular Ranges metapopulation. Therefore, recovery will require protection of all areas needed to maintain the constituent subpopulations. This protection will require increased management emphasis and cooperation among land managers in urbanized areas.
Issue: The limited dispersal and colonization capabilities contradict statements elsewhere in the recoveryplan that bighorn sheep arewide ranging animals dependant upon large tracks ofhabitat.
Response: True, each individual is a wide-ranging animal with a relatively large home range. This behavior and knowledge ofthese areas is learned by the offspring, which is transmitted across generations. Though colonizations ofnew habitat are known to occur, they are not a common event. Rams are more wideranging than ewes and are known to move between mountain ranges and ewe groups.
Issue: The draft recovery plan does not clearly indicate how or whether models would be used to assist in gaining a better understanding ofthe interacting factors thatplace sheep at risk.
Response: Models are a tool that help assimilate knowledge and understand factors that place bighorn sheep at risk, for later application through management prescriptions. Models should be used anytime they can help us to better understand bighorn sheep population dynamics, genetics, or ecosystems. Though the recovery plan provides examples ofhigh priority issues that should be examined with models, the points at which amodel would be appropriate are difficult to predict. Modeling is included in the section on research because it is an ongoing process that will have to be applied and modified as questions arise and more databecome available.
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Issue: The recoveryplan is biologically inconsistent, arguing on the one hand that human disturbance in wildareas causesthem to avoid otherwise important habitat but on the hand arguing thatfences are needed to preventsheepfrom being attracted to urban areas.
Response: Bighorn sheep react differently to various kinds ofdisturbance depending on numerous factors, including location. The northern Santa Rosa Mountains ewe group is the only herd that has habituated to using the urban interface, yet when inwild habitat distant from the urban edge, these same sheep react similarly to nonhabituated herds—that is, individuals revert to normal wild behavior when away from the urban edge. The reaction is perhaps most pronounced during the lambing season, when ewes with lambs are frequently displaced by human disturbance. This effect has been repeatedly documented through radio telemetry research, where sheep are sometimes inadvertently “bumped” or “pushed” farther away by researchers, even though the sheep are still hundreds ofmeters distant and not visible to the researchers. In other words, behavioral reactions often depend on geographical and seasonal context, with the spectrum ofcontrasting responses to human stimuli most clearly evident within this ewe group.
PREDATOR CONTROL ISSUES
Issue: Radiocollars may rendersheep more vulnerable to predation and therefore should not be used as prevalently as they are today.
Response: We are not aware ofdata that indicatesradiocollared animals are at greater risk ofpredation than uncollared animals. Nonetheless, cooperating agencies have attempted to balance the number ofradiocollars to minimize potential risk without compromising information needed to achieve population recovery.
Issue: Whereas one commenter assertedthat theproposedpredator management measures were too lax and should be more aggressive in termns of moving predatorsfrom the area before they become an issue, another commenter claimed 245
that scientflc evidence wassufficient to indicate that mountain lion predation was not a problem and that management measures, therefore, were not warranted.
Response: This issue was discussed vigorously by the team and agencies.
Because documented mortalities were particularly high in certain ewe groups, the team and agencies decided the prudent course ofaction dictated a measured management response, which would be modified as more data became available.
Issue. Predator management should be given higher priority than land management restriction because mortality to predators is the more likely limiting factor on bighorn populations.
Response: The draft recoveryplan and available evidence indicate that individual subpopulations are affected by a variety ofinfluences that affect population levels and that the combinations and relative strength ofthese influences typically differ among ewe groups and change over time. Therefore, the recovery plan focuses on the range ofthreats facing bighorn sheep. The recovery plan prescribes predetermined criteria for initiating predator management and recognizes the importance ofhabitat protection so that recovered populations have sufficient space to inhabit.
Issue: The long-term decline in habitat quality and deer populations in the Santa Rosa Mountains should be identified as a cause ofhigh levels ofmountain lion predation on bighorn sheep, with a strategy to reverse the situation. The recovery plan should more clearly establish the relationship of bighorn sheep to mule deer by superimposing a deer distribution map.
Response: Mule deer typically occur at higher elevations than bighorn sheep, though ranges may overlap regionally and seasonally, such as during the winter when deer in some areas move to lower elevations. Traditional predator/prey theory holds that predator populations increase and decrease in response to fluctuating prey populations. However, there are no data indicating that high levels of predation are due to declines in habitat quality or deer populations, or whether prey switching may be occurring in the Peninsular Ranges. Because data on habitat quality, as well as deer and mountain lion populations in the Peninsular 246
Ranges are not sufficiently robust to provide insight into these questions, the draft and final recovery plans propose focused research to address this ecological issue.
Issue: The recoveryplan does not provide compelling evidence that the predator/prey system is not viable, and therefore, predators should not be managed unless a cause and effect relationship with bighorn population declines is established.
Response: The high incidence ofpredation, comparatively lower adult survivorship rates than in other regions, and long-term population declines suggest to land managers that predation is a limiting factor to population growth in some areas ofthe Peninsular Ranges. The cooperating agencies have agreed that this evidence is sufficient to prompt responsible but cautious management intervention.
Issue: One commenter argued that counterto claims in the draft recovery plan, the only available scientflc evidence indicates a declining trend in statewide mountain lionpopulations.
Response: The evidence presented by the commenter lacked associated statistical analysis; therefore, the statistical resolution ofthe data cannot be evaluated and no -conclusion on population trend is possible.
TRAIL ISSUES
Issue: The constantpresence ofbighorn sheep along Highway 111 in Rancho Mirage indicates human activities, such as hiking andjeep use, may not create movement barriers, assuggested in the draft recoveryplan. Further information is requested to support why back roads and trails are detrimental to sheep when they are known to cross 6-lane highways (e.g. Highway 111 in Rancho Mirage).
Response: The recovery plan cites numerous studies that have documented avoidance behavior to human related disturbance (see Papouchis et al. 1999 for example). Numerous records of vehicular related mortality provide further evidence ofadverse effects. The recovery plan seeks to remedy the maladaptive 247
behavior ofhabituation to urban sources offood and water so that sheep are better able to survive in the wild.
Issue: A trails map to clarfy and accompany Table 10 is needed.
Response: Though a good idea, an accurate trails map is not currently available.
The cooperating agencies are pursing the development ofsuch a map.
Issue: Detailed maps oflambing, rearing, and watering habitat are needed to just~fyany decisions to close trails.
Response: The distribution oflambing, rearing, and watering habitat is incompletely known and, therefore, cannot be accurately mapped. The final recoveryplan has been modified to include a more complete set ofinformation upon which trails decisions should be based.
Issue.’ A permit system should be usedfor controlling trail use on all trailsfor which conflicts were identified in the recovery plan.
Response: The cooperating agencies are working with interest groups in the formulation ofa range ofalternative trails strategies that include this option.
Issue: The recovery plan should consider that in the San Jacinto Mountains, the existing trails network appears to provide a passive disturbance boundary that may control sheep access to the urban interface and prevent exposure to the urban hazards experienced in the northern Santa Rosa Mountains. Consequently, seasonal orpermanent trail closures could have unintended adverse effects.
Response: A trails management plan prepared by the land management agencies and interest groups will consider the merits ofthis comment. Certain adjustments to the existing trails network and associated monitoring could be implemented to improve upon this concept.
Issue: More specificity is needed in describing where human disturbance and other indirect effects ofurbanization is conflicting with sheep conservation. 248
Response: Human intrusion and associated disturbance has the potential to extend wherever access into habitat is provided. Though lambing and watering habitats are particularly vulnerable, excessive human use throughout the year may also affect bighorn persistence.
Issue.’ Will mitigation credits be givenfor the eradication ofinvasive non-native plants?
Response: Conservation measures for proposed projects will be determined on a case by case basis through regulatory processes oflocal, State, and Federal agencies.
Issue: The January through June trailconflicts in the San Jacinto Mountains appear excessive ifthe lambing season there extends only through mid-March.
Response: The draft recovery plan stated on page 12 that DeForge et a!. (1997) found a similar onset to the lambing season in February in the San Jacintos.
Cunningham found that lambing in Carrizo Gorge extended only to mid-March.
Lambs are critically dependent upon theirmothers for several months after birth.
Issue: Rather than monitoring to ensure compliance with seasonal trail closures before allowing construction oftrailreroutes out oflambing habitat, the recovery plan should allow simultaneous construction ofalternative trail routes to enhance the effectiveness ofseasonal closures on existing trails in lambing habitat.
Response: The finalrecovery plan has been modified to incorporate flexible approaches that will be provided in more detail in the trails management plan prepared by the cooperating agencies and interests. Without adequate management and monitoring, this approach could result in more trails and no reduction in use ofproblematic trails.
FENCING ISSUES
Issue: The draft recoveryplan does not provide evidencefor the effectiveness of the proposedfencing as a mitigation measure andfails to address the associated 249
financial and visual burdens. Except in areas with vehicular related mortalities, the needforfencing is questionable, considering the potentially detrimental effects ofsevering habitat, restricting sheep movement, and rendering sheep more vulnerable to predation againstfences. Alternativesto fences, such as nonmotorized trails adjoining development, which would provide a deterrent to sheep movement into urban areas, warrant more analysis. By imposing the mandateforfencing on privateproperty without adequatejustification, the draft recoveryplan acted in an arbitrary manner in excess ofstatutory authority.
Response: The cooperating agencies are open to alternative means ofcontrolling sheep movements into urban areas. However, some landowners and jurisdictions have chosen fencing as an affordable and reliable solution to the problem of behavioral habituation. When installed, fences have proven effective and aesthetic concerns have been addressed through alternative designs and alignments. Fencing along the urban interface is intended to benefit sheep by curtailing movement into areas with unnatural sources ofmortality and help reduce herd mortality rates to sustainable levels. The demonstrated loss of animals to vehicular related mortality, poisoning from landscaping plants, drownings, etc., establish a legal nexus to warrant measures to prevent these adverse effects.
NON-NATIVE ANIMAL ISSUES
Issue: The recoveryplan needs to establish a bufferzone between bighorn sheep habitat and cattle grazing, as was donefor domestic sheep grazing, so that the risk ofdisease transmission is minimized.
Response: There is no conclusive evidence to support a buffer zone for disease protection from cattle as there is for domestic sheep. The recovery plan recommends research on disease transmission between livestock and bighorn, and if a buffer zone is shown to be warranted, future iterations ofthe recovery plan will be amended accordingly.
Issue: Cattle grazing and associatedfencing should not be allowedfor various reasons, including disease hazards and risk ofphysical injury to bighorn sheep. 250
Response: We agree that fencing should be minimized and eliminated if possible.
Iffencing is necessary, design guidelines have been developed that minimize and prevent the risk ofinjury. The recovery plan establishes the need to thoroughly review the appropriateness ofcattle grazing in sheep habitat and take action if prudent.
251
Region 1
U.S. Fish and Wildlife Service
Ecological Services
911 N.E. 11th Avenue
Portland, Oregon 97232-4181
October2000
CITY COUNCIL STAFF REPORT
04/07/2022 2. B.
City Clerk -
SUBJECT
AN APPEAL BY ERIC KRUT OF CARMELITA PROPERTIES LIMITED OF THE
DECISION BY THE PLANNING COMMISSION TO DENY MAJOR
ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR MODIFICATIONS (AMM) APPLICATIONS, CASE 3.4216 MAJ AND CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT SINGLE-FAMILY RESIDENCE WITH A 10-FOOT FRONT YARD SETBACK AND THE MAXIMUM BUILDING HEIGHT OF
25.8 FEET ON A 11,206-SQUARE-FOOT UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27 (CASE
3.4216 MAJ & CASE 7.1633 AMM)
RECOMMENDATION:
1. Open the appeal hearing and receive testimony.
Adopt a Resolution entitled, “A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PALM SPRINGS, CALIFORNIA, DENYING THE APPEAL BY ERIC KRUT OF CARMELITA PROPERTIES LIMITED AND UPHOLDING THE
PLANNING COMMISSION’S DECISION TO DENY MAJOR ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR MODIFICATION (AMM)
APPLICATIONS, CASE 3.4216 MAJ AND CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT SINGLE-FAMILY RESIDENCE WITH THE FRONT YARD SETBACK OF 10 FEET AND THE MAXIMUM
BUILDING HEIGHT OF 25.8 FEET ON AN UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27 (CASE 3.4216 MAJ & CASE 7.1633 AMM).”
2. Alternatively, adopt a Resolution entitled, “A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PALM SPRINGS, CALIFORNIA, OVERTURNING THE PLANNING COMMISSION’S DECISION TO DENY AND APPROVING MAJOR ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR
MODIFICATION (AMM) APPLICATIONS, CASE 3.4216 MAJ AND CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT
SINGLE-FAMILY RESIDENCE WITH THE FRONT YARD SETBACK OF 10 FEET AND THE MAXIMUM BUILDING HEIGHT OF 25.8 FEET ON AN UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27 (CASE 3.4216 MAJ & CASE 7.1633 AMM).”
3. Attachments
Item 2B
Attachment 11 - Public Comment
CITY COUNCIL STAFF REPORT
DATE: APRIL 7, 2022 PUBLIC HEARING
SUBJECT: AN APPEAL BY ERIC KRUT OF CARMELITA PROPERTIES LIMITED OF
THE DECISION BY THE PLANNING COMMISSION TO DENY MAJOR
ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR
MODIFICATIONS (AMM) APPLICATIONS, CASE 3.4216 MAJ AND CASE
7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT SINGLE-FAMILY RESIDENCE WITH A 10-FOOT FRONT YARD
SETBACK AND THE MAXIMUM BUILDING HEIGHT OF 25.8 FEET ON A 11,206-SQUARE-FOOT UNDEVELOPED HILLSIDE PARCEL LOCATED
AT 322 WEST CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27 (CASE
3.4216 MAJ & CASE 7.1633 AMM)
FROM: Justin Clifton, City Manager
BY: Development Services Department
SUMMARY:
This is a request for the City Council to consider an appeal by Eric Krut of Carmelita Properties Limited to overturn the decision made by the Planning Commission to deny Major Architectural (MAJ) and Administrative Minor Modification (AMM) applications, Case 3.4216 MAJ and Case 7.1633 AMM, for the construction of a 3,344-square-foot single-family residence with a 10-foot front yard setback and the maximum building height of 25.8 feet on a 11,206-square-foot undeveloped hillside parcel. Staff recommended approval of the project to the Planning Commission subject to conditions of approval; however, the Planning Commission voted 4-1-2 to deny the applications on February 23, 2022.
RECOMMENDATION:
1) Open the appeal hearing and receive testimony; and
2) Adopt Resolution No. ____, “A RESOLUTION OF THE CITY COUNCIL OF THE
CITY OF PALM SPRINGS, CALIFORNIA, DENYING THE APPEAL BY ERIC
KRUT OF CARMELITA PROPERTIES LIMITED AND UPHOLDING THE
PLANNING COMMISSION’S DECISION TO DENY MAJOR ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR MODIFICATION (AMM) APPLICATIONS, CASE 3.4216 MAJ AND CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT SINGLE-FAMILY RESIDENCE WITH THE FRONT YARD SETBACK OF 10 FEET AND THE MAXIMUM BUILDING HEIGHT OF 25.8 FEET Item 2B - 1
City Council Staff Report
April 7, 2022 -- Page 2
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
ON AN UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST
CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27 (CASE 3.4216 MAJ & CASE
7.1633 AMM).”; or
2) Alternatively, adopt Resolution No. ____, “A RESOLUTION OF THE CITY
COUNCIL OF THE CITY OF PALM SPRINGS, CALIFORNIA, OVERTURNING THE PLANNING COMMISSION’S DECISION TO DENY AND APPROVING
MAJOR ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR
MODIFICATION (AMM) APPLICATIONS, CASE 3.4216 MAJ AND CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-SQUARE-FOOT SINGLEFAMILY RESIDENCE WITH THE FRONT YARD SETBACK OF 10 FEET AND THE MAXIMUM BUILDING HEIGHT OF 25.8 FEET ON AN UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST CRESTVIEW DRIVE, ZONE R-1- C, SECTION 27 (CASE 3.4216 MAJ & CASE 7.1633 AMM).”
BUSINESS PRINCIPAL DISCLOSURE:
The applications were submitted by Eric Hawkins, AIA, of Hawkins + Marshall, on behalf of Carmelita Properties Limited. James H. Moore and Eric Krut are the officers and directors of the entity. James H. Moore is the sole owner of the entity. The Public Integrity Disclosure Form is attached to this report as Attachment 3.
BACKGROUND:
On February 23, 2022, the Planning Commission voted 4-1-2 (No: Roberts; Absent: Ervin & Moruzzi) to deny the applications following prior reviews by the AAC, ARC, and Planning Commission. The history of the application review is summarized in the table below, and the excerpts of the meeting minutes that are relevant to the project are attached to this Staff Report (Attachment 6). The Planning Commission’s grounds for denial are explained in the attached Resolution No. 6902 (Attachment 7).
Related Relevant City Actions
06/07/2021 Architectural Advisory Committee (AAC) reviewed the proposed project and voted unanimously for further study.
07/19/2021 Architectural Review Committee (ARC) reviewed the proposed project and voted unanimously for further study.
08/30/2021
ARC reviewed the proposed project and voted 6-1-1 (Abstain: Jakway) to recommend approval to the Planning Commission subject to conditions of approval.
12/08/2021
Planning Commission reviewed the proposed project and voted unanimously to continue to date certain of January 12, 2022, with the direction to the applicant to install story poles and submit better renderings from all views for further review.
Item 2B - 2
City Council Staff Report
April 7, 2022 -- Page 3
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
Related Relevant City Actions
01/12/2022
Planning Commission reviewed the proposed project and voted unanimously to continue to date certain of January 26, 2022, with the direction to the applicant to: 1) provide a certification of story pole installation; 2) tie strings from a pole to a pole to depict the building massing; 3) provide revised renderings to show the design of the rear of the proposed residence with peers and a reduction of the overall building height; and 4) provide a revised landscape plan for further review.
01/26/2022 Planning Commission voted 6-1 (Absent: Hirschbein) to continue to date certain of February 9, 2022.
02/09/2022 Planning Commission voted unanimously to continue to date certain of February 23, 2022.
02/23/2022 Planning Commission voted 4-1-2 (No: Roberts; Absent: Ervin & Moruzzi) to deny the project.
Pursuant to Palm Springs Zoning Code Section 94.04.00(D)(1)(e), the Planning Commission’s decision is final unless further appeal is made to the City Council in the manner provided by Chapter 2.05 of the Palm Springs Municipal Code. On March 3, 2022, the applicant filed an appeal request in accordance with the applicable law. The Appeal Form is attached to this staff report (Attachment 4), and an addendum to the Appeal Form was submitted by Eric Hawkins, project architect, to the Planning Division on March 21, 2022, on behalf of the appellant (Attachment 5).
PROPOSED PROJECT:
The applicant is proposing to construct a 3,344-square-foot single-family residence, which includes a 2,811-square-foot primary residence and a 533-square-foot detached garage, on a 11,206-square-foot undeveloped hillside parcel. The proposed residence meets the R-1-C Zone development standards of Palm Springs Zoning Code Section 92.01.03, except for the proposed 10-foot front yard setback and the maximum building height of
25.8 feet. Pursuant to Palm Springs Zoning Code Section 94.06.01(A)(10), a 10-foot front yard setback and the building height not exceeding 30 feet is allowed on a hillside parcel subject to Administrative Minor Modification (AMM) approval. The conformance of the project to the applicable development standards is analyzed in Attachment 8, and the development plans and supplementary materials that were denied by the Planning Commission on February 23, 2022, are attached to this staff report (Attachment 9 & Attachment 10).
APPELLANT’S GROUNDS FOR APPEAL REQUEST:
In the Appeal Form (Attachment 4), the appellant explains the basis for filing the appeal request as follows:
Item 2B - 3
City Council Staff Report
April 7, 2022 -- Page 4
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
1) “The home design was unanimously approved by the ARC.” 2) “The Planning Department recommended approval at the first and every subsequent hearing.”
3) “ARC and Planning Commission have provided conflicting direction and comments as to site and design.”
4) “Both homes comply with all current regulations – city, county, and state.” Additionally, the appellant submitted an addendum on March 21, 2022, to further explain their grounds for appeal below, which is also attached to this staff report (Attachment 5). “As part of the adoption of the General Plan in 2007, which is used as the basis for objections 1 and 3 by the Planning Commission, development restrictions were placed on properties that contained slopes steeper than 30% which were not in place at the time of construction of any of the surrounding homes. This single-handedly prevents the desired consistency with "the historic development pattern of the neighborhood" where large flat pads could be created on the surrounding hillside lots. The proposed design is a direct response to this portion of code as the cantilevered design avoids grading on the hillside, maintaining the natural quality of the hillside as is desired by the Community Design Element. Furthermore, the Community Design Element of the General Plan contains many additional objectives than are mentioned in the Planning Commission findings. The full context of desired objectives of the Community Design Plan is the following:
This part of the General Plan focuses on Citywide and neighborhood-level details rather than project- and parcel-based specifics. The objectives of this element are to:
- Preserve and enhance the visual quality of the City
- Reinforce/Strengthen the community identity of Palm Springs - Protect and strengthen the sense of place and character of neighborhoods
- Enhance vehicular and pedestrian corridors through the use of consistent design features
- Enhance the energy, vitality, and urban village character of the downtown
- Retain the architectural quality and diversity of Palm Springs - Protect the character of historic neighborhoods
- Protect viewsheds and scenic corridors
- Encourage environmentally friendly and sustainable design and building practices
Our projects promote the desired architectural diversity as is consistent with not only the City of Palm Springs, but also with the neighborhood of the Mesa. A defining feature such as a cantilever in this neighborhood only Item 2B - 4
City Council Staff Report
April 7, 2022 -- Page 5
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
ADDS to the diversity of the neighborhood architecture, as opposed to mimicking the historic development patterns that are no longer viable due to code changes over the years. Variety and Character in the form of differing materials, rooflines, massing, etc. were all requested qualities of the designs by both the ARC and the Planning Staff, resulting in unanimous approval by the ARC and recommendation of approval by the Planning Staff. Planning Commission's determination contradicts not only the intention of the Community Design Element it references, but also the direct design guidance that was provided by the ARC and the Planning Staff in the preceding stages of review. Furthermore, the Planning Commission rejects the Minor Modifications solely based on their interpretation of the projects not being consistent with the General Plan. Despite the fact that the projects ARE consistent with the General Plan, as noted above, AND are direct responses to both the ARC and Planning Staff recommendations, the neighboring houses consistently have a reduced front setback, in many cases much less than the 10' being requested. The proposed building heights were significantly adjusted numerous times throughout the ARC process, ultimately resulting in a unanimous approval. Planning Staff nor ARC ever requested or advised on maintaining a maximum height of 18'. Instead, they supported the pursuit of an AMM and asked for specific incremental reductions in height which we complied with, resulting in unanimous approval.
In response to Finding #2, the average size of the homes in the immediate neighborhood is 2563 sf. Additionally, many of the more recent developments in the Mesa are much larger than this. Our respective proposed projects of 2775 sf and 2811 sf are clearly not significantly larger than the average in the immediate neighborhood as is claimed by the Planning Commission and are significantly smaller than some of the more contemporary construction in the neighborhood. Furthermore, our rooflines are lower than the surrounding neighbor's homes behind and next to our properties. These were direct design responses to the ARC and City Planning Staff criteria so that perceived massing would be minimized and viewshed corridors would be maintained.”
STAFF ANALYSIS:
Staff responds to the appellant’s grounds for filing an appeal request, which are stated in the previous paragraph (‘Appellant’s Grounds for Appeal Request’) as follows:
1) “The home design was unanimously approved by the ARC.” The applications, Case 3.4216 MAJ and Case 7.1633 AMM, were submitted prior to the City Council adoption of Ordinance No. 2042, which amended the architectural review procedures and approval authority. Hence, the proposed project was reviewed in Item 2B - 5
City Council Staff Report
April 7, 2022 -- Page 6
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
accordance with the pre-amendment architectural review procedures, which required ARC (formerly AAC - Planning Commission Architectural Advisory Committee) and Planning Commission review.
As an advisory body to the Planning Commission, the ARC’s authority in reviewing a Major Architectural (MAJ) application was limited to recommending approval, conditional approval, or denial to the Planning Commission. The Planning Commission, not the ARC, has the authority to approve, conditionally approve, or deny the project, subject to appeal to the City Council. Although the ARC recommended approval of the project to the Planning Commission subject to conditions of approval on August 30, 2021, it was not official approval of the proposed project.
2) “The Planning Department recommended approval at the first and every subsequent hearing.”
The actions recommended by Staff to the AAC, ARC, and Planning Commission are summarized in the table below:
Meeting Date Review Body Recommended Actions by Staff
06/07/2021 ARC Continuation for further study
07/19/2021 ARC Recommend approval to the Planning
Commission subject to conditions
08/30/2021 ARC Recommend approval to the Planning
Commission subject to conditions
12/08/2021 Planning Commission Approve, subject to conditions 01/12/2022 Planning Commission Approve, subject to conditions 02/23/2022 Planning Commission Approve, subject to conditions The excerpts of meeting minutes from the previous ARC and Planning Commission meetings are attached to this staff report (Attachment 6). Staff interpreted and analyzed the General Plan policies and zoning ordinance regulations in preparing findings and delivering recommendations to the ARC and Planning Commission. However, the ARC and Planning Commission are at liberty to exercise their own independent judgment in reviewing the project consistent with applicable law. In this case, contrary to the findings prepared by Staff, the Planning Commission found that the proposed project is neither consistent with the intent of the General Plan Community Design Element nor compatible with the surrounding development and the development pattern of the neighborhood. The City Council is now authorized to render a decision on appeal with regard to the project. 3) “ARC and Planning Commission have provided conflicting direction and comments as to site and design.”
To the extent that the Planning Commission exercised its independent judgment and viewed the project differently from the ARC, the Commission may have, in fact, given Item 2B - 6
City Council Staff Report
April 7, 2022 -- Page 7
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
“conflicting direction” by making different findings. However, as noted in Finding #1 above, the Planning Commission was not required to follow the ARC’s recommendation and it believed that the required findings could not be made for the project. This matter is now before the City Council on appeal.
4) “Both homes comply with all current regulations – city, county, and state.” The proposed residence at 322 West Crestview Drive conforms to the R-1-C Zone development standards except for the 10-foot front yard setback and the maximum building height of 25.8 feet. The applicant submitted an Administrative Minor Modification (AMM) application, Case 7.1633 AMM, to address the setback and building height conformance issues as prescribed in Palm Springs Zoning Code Section 94.06.01(A)(10).
However, the Planning Commission found that AMM application is not consistent with the General Plan. Without AMM approval, the project does not meet the zoning code. The construction of a single-family residence within a residential zone is categorically exempt from further environmental review in accordance with Section 15303(a) of the CEQA Guidelines.
PUBLIC COMMENTS:
The public comments the Planning Division has received relative to the proposed project are identified as Attachment 11. Due to the volume and length of the comments received, all public comment materials are available at the following link:
https://publicportal.palmspringsca.gov/WebLink/Browse.aspx?id=1301607&dbid=0&rep o=CityHall-Primary
ENVIRONMENTAL ASSESSMENT:
If the applicant’s appeal request is denied, the action will be statutorily exempt from the terms of the California Environmental Quality Act (“CEQA”), because “CEQA does not apply to projects which the public agency rejects or disapproves” per Section 15270(a) of the CEQA Guidelines. Should the City Council decide to approve this project, however, the proposed development is considered a “project” pursuant to the terms of the California Environmental Quality Act (“CEQA”) and has been determined to be categorically exempt pursuant to Section 15303(a) of the CEQA Guidelines (Class 3, New Single-Family Residence).
FISCAL IMPACT:
No fiscal impact.
Item 2B - 7
City Council Staff Report
April 7, 2022 -- Page 8
Case 3.4216 MAJ & Case 7.1633 AMM Appeal
REVIEWED BY:
Assistant Planning Director: David A. Newell
Deputy City Manager: Flinn Fagg
City Manager: Justin Clifton
ATTACHMENTS:
1. Vicinity Map
2. Draft City Council Resolutions & Exhibit A
3. Public Integrity Disclosure Form
4. Appeal form
5. Addendum submitted by Eric Hawkins on behalf of the appellant
6. Excerpts of ARC and Planning Commission meeting minutes relative to the project
7. Resolution No. 6902
8. Development standards analysis
9. Plans denied by the Planning Commission on February 23, 2022
10.Renderings
11.Public comments (Available at the following link):
https://publicportal.palmspringsca.gov/WebLink/Browse.aspx?id=1301607&dbid= 0&repo=CityHall-Primary
Item 2B - 8
ATTACHMENT 1
Item 2B - 9
Department of Planning Services
Vicinity Map
CITY OF PALM SPRINGS
Carmelita Properties Limited
322 West Crestview Drive (APN: 513-361-003)
Case 3.4216 MAJ & Case 7.1633 AMM
Item 2B - 10
020
Legend
~ Project Site
c::J 500-Foot Radius
PD
• . W E .
.
.
s
R2
ATTACHMENT 2
Item 2B - 11
RESOLUTION NO. _____
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PALM
SPRINGS CALIFORNIA DENYING THE APPEAL BY ERIC KRUT
OF CARMELITA PROPERTIES LIMITED AND UPHOLDING THE
PLANNING COMMISSION’S DECISION TO DENY MAJOR
ARCHITECTURAL (MAJ) AND ADMINISTRATIVE MINOR
MODIFICATION (AMM) APPLICATIONS, CASE 3.4216 MAJ AND
CASE 7.1633 AMM, FOR THE CONSTRUCTION OF A 3,344-
SQUARE-FOOT SINGLE-FAMILY RESIDENCE WITH THE
FRONT YARD SETBACK OF 10 FEET AND THE MAXIMUM
BUILDING HEIGHT OF 25.8 FEET ON A 11,206-SQUARE-FOOT
UNDEVELOPED HILLSIDE PARCEL LOCATED AT 322 WEST
CRESTVIEW DRIVE, ZONE R-1-C, SECTION 27.
WHEREAS, Eric Hawkins of Hawkins + Marshall (“Applicant”) filed a Major Architectural (MAJ) application, Case 3.4216 MAJ, with the Planning Division of the City of Palm Springs Development Services Department on behalf of Carmelita Properties Limited, property owner, pursuant to Section 94.04.00 (Architectural Review) of the Zoning Ordinance for the construction of a new 3,344-square-foot single-family residence on a 11,206-square-foot undeveloped hillside parcel located at 322 West Crestview Drive, Zone R-1-C, Section 27.
WHEREAS, Eric Hawkins of Hawkins + Marshall (“Applicant”) filed an Administrative Minor Modification (AMM) application, Case 7.1633 AMM, with the Planning Division of the City of Palm Springs Development Services Department on behalf of Carmelita Properties Limited, property owner, pursuant to Palm Springs Zoning Code Section 94.06.01(A)(10). The AMM application was filed for: 1) a 10-foot front yard setback instead of the code-required 25-foot minimum, and 2) the maximum building height of 25.8 feet instead of the code-required maximum 18 feet.
WHEREAS, on June 7, 2021, the Architectural Advisory Committee (AAC) reviewed the project and voted 6-2 (Absent: Lockyer and Poehlein) for the project to be continued for further study.
WHEREAS, on July 19, 2021, the Architectural Review Committee (ARC) reviewed the project and voted unanimously for the project to be continued for further study.
WHEREAS, on August 30, 2021, the Architectural Review Committee (ARC) reviewed the project and voted 6-0 (1 absent, Doczi, 1 Abstain, Jakway) to recommend approval to the Planning Commission subject to the conditions of approval. The conditions of approval are:
1. Incorporate staff comments (side setback and landscape).
2. Add landscape materials in front and rear of the residence and design in natural condition.
3. Reduce height of the garage parapet.
4. Work with staff to lower the overall building height.
Item 2B - 12
Resolution No. _____