by
Ralph W. Larson
Washington Department of Game
600 North Capitol Way
Olympia, Washington 98504
Seabirds are one of the most visible biological components of ecosystems, and yet little is known about them. They could readily be used as an index of marine environmental quality if adequate studies were conducted to determine populations, habitat needs, and causes of fluctuations in abundance. The lack of adequate funding at the State level has precluded necessary studies to make these determinations and to provide habitat protection and preservation.
The State of Washington has developed a funding source for protection, preservation, and enhancement of nongame wildlife, which includes seabirds. The sale of personalized license plates for vehicles is now providing some funds for nongame wildlife management—funds which should increase as the popularity of the licensing program increases. Outdoor Recreation Bonds are providing funding for habitat preservation. Authorities provided the Washington Game Department are adequate to manage and protect seabird species. Other State laws offer additional protection to their habitat—specifically the Shoreline Management Act of 1971 and the State Environmental Act.
It has been often stated that seabirds are one of the most visible biological components of ecosystems, and yet little is known about them. Most studies to date have been on fish, and because of their recreational and commercial value, the concern for maintaining the marine environment has been primarily a result of the concern for maintaining the fishery resource. The visible knowledge of the fishery resource, however, becomes an "after-the-fact" knowledge since the status of the stocks relates to the value and amount of the fishery—a fishery resulting from survival under the surface in the marine environment that can be very secretive about its quality until it is too late to do something about it. Seabirds, however, are visible above the surface, in numbers that can reflect changes in the marine environment that occur below the surface, since many depend on the subsurface quality that reflects populations of fish.
Studies in Oregon have indicated that consumption of pelagic fish by murres (Uria spp.), cormorants (Phalacrocorax spp.), storm-petrels (Oceanodroma spp.), and shearwaters (Puffinus spp.) account for about 22% of the annual production of various species of these fish. A decline in this food source will reflect a decline in the seabird population. Why then should it be necessary to use only fish populations as an index of marine environmental quality, when seabirds can more readily be observed and can reflect the same changes that occur?
As a public wildlife agency, the Washington Department of Game is often attempting to justify the value of seabirds, and sometimes that is not easy. When fishermen complain that the seabirds are eating all of the food of our mighty salmon, and hunters indicate little compassion because the birds have no value to sport hunting, one has to think a little to explain their value. However, rhinoceros auklets (Cerorhinca monocerata) do drive herring into ball-shaped schools, which attracts salmon in search of food—which in turn provides a signal to fishermen that salmon may soon be in the area. Explaining value to the hunter is a bit more difficult, but anyone who has taken the time to go out on our marine waters and observe the many species of seabirds and watch them flying and feeding cannot help but be fascinated by them. The flight of thousands of murres skimming over the water surface and somehow managing not to dash headlong into a wave is a fascinating sight.
We who are in fish and wildlife work have had to readjust our thinking and values during recent years. Our primary programs and concerns for many years were with the fish, birds, and animals that were of value to fishermen and hunters. Species of wildlife that we now classify as nongame received incidental benefit from programs related to game fish, game birds, and game animals, but we did not do badly in maintaining and enhancing these incidental wildlife species, mostly by indirection. However, in the last few years our Department, at least, has taken on a new responsibility and a new look as related to nongame wildlife.
Our first positive step in this direction was to develop a funding source for nongame wildlife programs. Our funding attempt charted its way through stormy waters, but finally ended up being voted on by the citizens of the State. Our citizens passed Referendum 33, which provided funds to the Department for nongame wildlife programs from the sale of personalized license plates. Although the funds have not been adequate, they are a step in the right direction and have permitted the Department to engage in a modest program of research and management. We have placed one person in charge of our program to do the planning and programming so necessary for developing an effective, growing program. During the 1st year of operation, we contracted studies on the rhinoceros auklet, the tufted puffin (Lunda cirrhata), and the black oystercatcher (Haematopus bachmani). These studies have provided a basic knowledge of some of the problems facing these seabird species. As funds increase, additional studies will be made to provide more information on these birds and others.
During the 1975 legislative session we were successful in amending the personalized license program to include automobiles other than passenger cars—a step which should further enhance our funding. We anticipate that funding will increase from the sale of these license plates each year. They serve as their own advertisement, and as more plates are sold, the exposure to the public increases. We anticipate that within the next few years the funding should reach $150,000 per year—a modest sum to be sure, but nevertheless adequate to establish a viable program.
We have been involved in studies funded through other agencies that involve seabirds. The principal reasons for the studies are not seabirds, but they become an integral part of any analysis that must be made of our saltwater environs. One such study involves a comprehensive status survey of the marine shoreline fauna of Washington. The Department of Ecology has provided the funding as a part of their analysis of resources that may be adversely affected by oil spills and economic development of our shorelines. This study will be the first one designed to comprehensively identify wildlife species associated with our shorelines and will determine the species, their status, location, and habitat. This study will provide a basis for readily identifying visually the results of oil spills and of the economic development of critical habitat areas, and provide sound basic data for use in combating destructive projects in the marine environment.
We are finding that you cannot separate functions of other governmental agencies that deal with marine waters from seabird analysis. Pollution responsibilities, shoreline management, coastal zone management, clam dredging, channel dredging, erosion control, housing development, industrial expansion, shipping port development—to name a few—all must have some effect on our seabird species. Therefore, we must concentrate on obtaining an adequate data base to insure the perpetuation of these valuable marine species.
As I indicated earlier, the Department of Game has not had a special program to manage seabirds in the past, but this should not indicate that we have not assisted in maintaining the seabird resource. Our basic land acquisition program designed for waterfowl enhancement has benefited seabirds. We now own some 15,500 acres of lands, tideland, and marshes bordering the marine waters (including our Skagit and Nisqually holdings) which provide habitat and protection for many seabirds. We also recently acquired 48 acres on Protection Island, designed to protect the nesting area of the rhinoceros auklet. This purchase was an excellent example of how combined efforts of several groups accomplished a nearly impossible goal.
Protection Island had been subdivided for summer home development and many lots had been sold. The developer, however, got caught in the requirements of our Shoreline Management Act with his last subdivision. The uproar caused due to the use of this subdivision by auklets created an atmosphere that made subdivision a real conservation issue. The outspoken critics of the project from the Audubon Society, Fish and Wildlife Service, independent conservationists, and our Department enlisted the aid of Nature Conservancy to negotiate for purchase of this subdivision, and after lengthy negotiations the option was obtained, and the Department purchased the land from the Nature Conservancy with funds provided by the Interagency Committee for Outdoor Recreation. The area now is destined to be a seabird sanctuary, with limited public viewing and incidental recreation use. This project is an excellent example of the power of cooperative efforts by conservationists to protect a resource.
The State of Washington now has a reasonably good legislative base to insure constructive programs for management of our seabird resource. Our legislative authority lies in State statutes under Title 77. These authorities first provide that the wild birds, wild animals, and game fish of the State are the property of the State and that they shall be preserved, protected, and perpetuated. Any regulations for taking shall be designed so as to not "impair the supply thereof."
The commission also has the authority to classify wild birds. Seabirds, other than hunted species, fall into the category of nongame birds. We also have the authority to regulate the propagation and protection of wild birds, develop rules and regulations for taking them (or to prohibit taking them), and to create game reserves and closed areas where necessary to protect various species. Our authorities also include the obligation to enforce the laws, rules, and regulations pertaining to the protection of all wild birds.
The Department may also acquire land for habitat and for sanctuaries for nongame birds and may exchange lands for these purposes. We may also enter into agreements with the Federal Government, persons, and municipal subdivisions of the State for all matters relating to propagation, protection, and conservation of all wild birds, and may lease State lands for this purpose.
We believe our authorities are now totally adequate to satisfactorily manage the State's marine bird resources.
In addition to our personalized license plate legislation, which earmarks funds for nongame wildlife, other State laws and programs assist in protection of this resource. One program that has assisted materially in providing funds for habitat acquisition is a bond issue passed by citizens of the State designed to acquire and develop recreational land in the State for public use. Our Interagency Committee for Outdoor Recreation provides the necessary mechanism for funding of projects, using these bond monies to match Federal funds. Although recreation is a key factor in obtaining funding, it is still possible to acquire key habitat for wildlife and develop a people-use program around the primary purpose for acquisition.
The purchase of a portion of Protection Island was accomplished by use of these funds, as I indicated earlier, and we are now working again with Nature Conservancy to acquire key bald eagle habitat on the Skagit River in northwestern Washington. The bond issues total some $50 million, of which this Department receives about 15%. The State now is in its third bond issue, and we hope the citizens will continue to support this program.
One of the newer laws is the Shoreline Management Act of 1971. This act provides for development of comprehensive shoreline management programs designed to control the development of these areas to insure protection of the public interest, while still recognizing and protecting private property rights consistent with this public interest. These plans must be developed with citizen involvement. Shoreline classification generally falls into four categories—natural, conservancy, rural, and urban. The natural classification can accomplish the most substantial benefit for marine birds. Provisions are also made for protection of "shorelines of statewide significance." Plans for these areas must give preference to uses favoring the public and long-range goals. These shorelines cover the areas between low and high tide levels on inland waters and high water and the western boundary of the State on our Pacific Ocean coast.
Our State Environmental Policy Act, which requires that environmental impact statements be prepared for various programs and developments, gives our Department an opportunity to insure that our valuable wildlife resources are given consideration during the planning phase of the proposed project.
The Department feels that our authorities at this time are adequate to protect marine bird populations and their habitat. The one lacking factor, as usual, is the funding for both adequate management programs and habitat protection. Our marine habitat is rapidly being developed for recreational homesites and public use which can eliminate key habitat use. A greater public awareness of the needs of marine birds can be a help in preventing destruction of their habitat; however, money talks the loudest. The acquisition of these key habitats is the most positive means of insuring their retention. We have no solution at this time to the funding problem and only hope that someone smarter than we are can provide an acceptable solution before all of our efforts become too little and too late.